HomeMy WebLinkAboutMINUTES - 10181988 - IO.4 TO- ` BOARD OF SUPERVISORS I .O. 4
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FWW: INTERNAL OPERATIONS COMMITTEE Cz tra
October 10, 1988 Costa�J'v`�" "J
DATE;
Proposed Response to the Final Report
SUBJECT; of the 1987-88 Grand Jury
SPECIFIC REQUEST(S) OR RECOMMENDATION(S) & BACKGROUND AND JUSTIFICATION
RECOMMENDATIONS:
1 . Direct the County Administrator to amend the proposed draft
response to the Final Report of the 1987-88 Grand Jury as is
indicated below and return the revised draft response to the
Board of Supervisors on November 1, 1988 at 11:00 A.M. for
the purpose of conducting hearings on the proposed response,
revising it as the Board sees fit, and then adopting the
Board' s response to the Final Report of the 1987-88 Grand
Jury.
2 . Open the hearing on the Board' s proposed response to the
Final Report of the 1987-88 Grand Jury and then continue the
hearing to November 1, 1988 at 11: 00 A.M. for the purpose of
receiving testimony on the proposed response to the Final
Report of the 1987-88 Grand Jury.
3 . Remove this item as a referral to our Committee.
BACKGROUND:
On August 2, 1988, the Board of Supervisors referred to our
Committee the Final Report of the 1987-88 Grand Jury and directed
the County Administrator to prepare a proposed response to the
Final Report of the 1987-88 Grand Jury and forward it to our
Committee for discussion with the Grand Jury and subsequent
review by the full Board.
On October 10, 1988, our Committee met with members of the
1987-88 and 1988-89 Grand Juries and reviewed the proposed
response to the Final Report of the 1987-88 Grand Jury as
prepared by the County Administrator. We had a very thorough and
candid discussion of the proposed response with the staff from
the County Administrator' s Office and members of the Grand. Jury.
Also present were James Olsson, County Clerk-Recorder and James
McTigue, Chief Deputy District Attorney.
CONTINUED ON ATTACHMENT: X YES SIGNATURE:
RECOMMEND TION OF COUNTY ADMINISTRATOR X_ RECOMMENDATION OF BOARD COMMITTEE
X APPROVE OTHER
W Ire s
SIGNATURE SI: Sunne W. McPeak p p Tom Torlakson
ACTION OF BOARD ON October 18, 1988 APPROVED AS RECOMMENDED x and OTHER X
Also, REQUESTED County Administrator to forward volunteers' names (Recommended Changes #9) to the Volunteer
Bureau and AUTHORIZED thank you letter signed by the Chair to be sent to said individuals.
VOTE OF SUPERVISORS
1 HEREBY CERTIFY THAT THIS IS A TRUE
X UNANIMOUS (ABSENT I, II AND CORRECT COPY OF AN ACTION TAKEN
AYES; NOES: AND ENTERED ON THE MINUTES OF THE BOARD
ABSENT: ABSTAIN: OF SUPERVISORS ON THE DATE SHOWN.
cc: Listed on Page 4 ATTESTED (1,����..,J /wait /9 88
PHIL BATCHELOR, CLERK OF THE BOARD OF
SUPERVISORS AND COUNTY ADMINISTRATOR
BY ,DEPUTY
M 382/7-83
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Page 2
Based on our discussions, we are requesting that the proposed
response be revised in the following areas and be returned to the
Board of Supervisors on November 1, 1988 at 11:00 A.M. as the
report of the Internal Operations Committee on this subject. We
have recommended the date of November 1, 1988 at the request of
the foreperson of the 1987-88 Grand Jury since she will not be
able to attend the Board meetings on either October 18 or October
25. The following page references refer to the proposed response
of the -County Administrator which is attached to this report.
Where no references are made to proposed responses, our Committee
concurs . with the proposed response prepared by the County
Administrator:
RECOMMENDED CHANGES:
1. Page 1 - Recommendation #1: The response should provide
direction to the Retirement Administrator to insure that
accruals and adjustments are made in a timely manner. The
response should also include a timetable each year by which
all such accruals and adjustments will be completed.
2. Page 1 - Recommendation #2: The response should include a
realistic target date by which the County and the
Redevelopment Agency will complete the contracting and
financial agreements between them relating to the Pleasant
Hill-BART Project.
3 . Page 5 - Recommendations dealing with the future of the
"old" County jail and the closure of Pine Street to create a
County Civic Center Area. Our Committee is concerned that
designation of the "old" jail as a historic site may no
longer be a viable alternative to destruction of the
building since the Contra Costa County Historical Society is
apparently unable to finance the completion of the
designation of the building as an historical site and the
necessary restoration that would be required to make that
designation realistic. We would like to see the response
speak to the possibility of reconsidering this designation.
In addition, we agree with the Grand Jury that the Master
Plan for the County Civic Center needs to be updated. We
also believe that additional coordination needs to take
place between the County and the City of Martinez to
accomplish this updating. We would ask that the response
include a suggestion that the County Administrator' s Office,
the Community Development Department, and other appropriate
County departments propose to the Board of Supervisors a
mechanism by which this increased coordination might occur.
One suggestion we would advance is for the County and the
City of Martinez to jointly agree to the formation of a
County Civic Center Task Force chaired by Supervisor Nancy
Fanden to study previous plans for the Civic Center area,
update them, and return recommendations and cost projections
to their respective bodies for further consideration.
4. Page 6 - Recommendations dealing with the Maintenance of
County Facilities. Our Committee agrees that a failure to
have an effective preventive maintenance program would be
shortsighted. We do not agree that the County is this
shortsighted. We would ask that the County Administrator
review the major capital expenditure items and major repairs
which have been undertaken over the past five years to
determine any instances in which preventive maintenance
would have prevented the need for the repair, or would
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4 . (continued)
have substantially reduced the cost of the project. We
would further ask that this report be forwarded by the
County Administrator to the Finance Committee and the Grand
Jury for their review and discussion as to any policy
changes which may be indicated by the review.
5. Page 7 - Recommendations Addressing Veterans ' Buildings.
Our Committee agrees with the County Administrator and the
Grand Jury that the County may not have total discretion to
do with Veterans ' Buildings as we might wish. This does
not, however, prevent the Board of Supervisors from
initiating discussions on a voluntary .basis to determine the
best use of all of the Veterans ' Buildings in the County.
For this purpose, we would recommend that the Veterans
Service Officer_ include within his work plan for the
calendar year 1989 heading up a Task Force on the Future Use
of Veterans ' Buildings in Contra Costa County. This Task
Force should include County staff, staff from the cities in
which Veterans' Buildings are located, representatives of
veterans organizations, and members of past Grand Juries who
have expressed an interest in this subject and are willing
to serve.
6. Page 8 - The County Clerk' s Department. The responses
should be updated to reflect the positive changes which have
taken place recently, including the addition of space for
the County Clerk from the freeing up of the Jury Assembly
Room and other space, changes which have been made in the
use of other departments for delivering documents and that
no employee of the County Clerk' s Office must any longer
make a special trip to deliver documents unless they are
otherwise making the trip for other reasons, assuming that
the County Administrator agrees that such changes have been
made. Also, the response should reflect the fact that due
to retirements, and other personnel changes, delegation of
management responsibility has improved if, in fact, the
County Administrator agrees that such changes have taken
place.
7. Page 9 - The Department of Social Services and the Homeless.
The response should be expanded to suggest that the Social
Worker responsible for the after-hours emergency telephone
line be asked to make a presentation to the CHART group and
that consideration be given to the wisdom of including this
Social Worker as a regular member of CHART.
8. Page 11 - Contra Costa County' s Alcohol/Drug Abuse/Mental
Health Programs. The response to Recommendation #1 should
be expanded to include reference to the fact that the Board
of Supervisors has directed that planning take place for a
multi-jurisdictional Drug Summit in 1989 to include all of
those agencies which are -attempting to address the problems
of drug abuse in our society. This Summit will attempt to
address the causes, treatment for and solutions to the drug
problem, both from a human services and law enforcement
perspective.
9. Page 12 - Contract Monitoring of Alcohol, Drug Abuse, and
Mental Health Programs. We have received overwhelming and
sincere offers of support from members of the 1987-88 Grand
Jury who would like to head up an effort to recruit more
volunteers for County programs. In particular, we would
note the willingness of Dan Robertson and Ted Green to not
only volunteer their time, but to assist the County by
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9. (continued)
recruiting other volunteers. We would request that the
response to this area include a most sincere invitation from
the Board of Supervisors to Mr. Robertson and Mr. Green to
head up a volunteer effort designed to recruit more
volunteers for County programs.
10. In an appropriate place with the response to the law and
justice issues, we would like to see included reference to
the fact that the County has supported legislation for a
Home Detention Pilot Program, which has recently been signed
into law by the Governor. This program is one of the few
remaining vehicles by which the Sheriff and the County
Probation Officer can reduce the overcrowding in the County
jails and the Juvenile Hall. We look forward to the
possibility that this program can be implemented in Contra
Costa County.
We would like to express our appreciation to the 1987-88 Grand
Jury for the thorough and professional way in which they
approached their duties. Seldom have we had the opportunity to
work with such a dedicated, objective, hard-working and
thoroughly professional group of citizens as we did with the
membrs of the 1987-88 Grand Jury. Their Final Report reflects
each of those qualities and yet is objective and reflects the
very best interests of the citizens of this County whom the
members of the Grand Jury represent.
cc: County Administrator
Foreperson, 1987-88 Grand Jury
Grand Jury Secretary
County Clerk-Recorder
District ,Attorney
Sheriff-Coroner
County Counsel
Social Services Director
Health Services Director
Mental Health Director
Veterans Service Officer
Director of Community Development
Director of General Services
OFFICE OF COUNTY ADMINISTRATOR
CONTRA COSTA COUNTY
Administration Building
Martinez, California
Internal Operations
Committee ( Supervisors
Date:
To: McPeak and Torlakson) October 6, 1988
Phil Batchelor, Proposed Response to
From: County Administrat Subject: 1987-88 Grand Jury
by Scott Tandy Report
The attached proposed response to the 1987-88 Grand Jury Report
is submitted for consideration of your Committee at 10 : 15 a.m.
on Monday, October 10 , 1988 .
This item will be calendared for the Board of Supervisors on
either October 18 or October 24 as a result of your discussion
with the Grand Jury.
ADL: sr
attachment
cc : Chris Adams, Foreperson
1987-88 Grand Jury
Philip E. Sitzman, Foreperson
1988-89 Grand Jury
"REVIEW OF THE COUNTY FINANCIAL AUDITS FOR FISCAL YEAR 1986-87" (Page
13)
RECOMMENDATION #1
Employee Retirement System:
a. ERS bank and 'investment accounts be reconciled immediately
upon receipt of statements.
b. The ERS and Auditor-Controller develop a checklist for
accruals and adjustments needed to facilitate preparation of
the County' s CAFR.
c. The ERS reconcile investment accounts to its general ledger
on a periodic and timely basis.
d. The ERS general ledger accounts be reconciled to the County
records on a periodic and timely basis.
RESPONSE
A checklist of accruals and adjustments has been compiled, and the
necessary entries for fiscal year 1987-88 have been made. The
reconciliations called for in the recommendation are being worked on,
and Retirement staff feels they are under control.
RECOMMENDATION #2
Contra Costa Redevelopment Agency
a,. The RA and County formalize in writing the contracting and
financial agreements between them as related to the Pleasant
Hill BART Project.
b. . The RA improve its documentation related to sales of real
estate and retain either originals or copies .
RESPONSE
We agree that documentation of financial arrangements with the County
need to be formalized and this process is underway. Files of real
estate transactions are maintained in the Real Property Division of
Public Works.
RECOMMENDATION #3
Financial Assistance Programs:
a. Total cost of all federal and state financial assistance
programs be included in the County' s CAFR.
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f.
b. The County' s CAFR indicate separately the monies passed
through departments or to agencies and that retained for
administrative expenses .
RESPONSE
There was insufficient lead time to include these program
recommendations in the FY 1988-89 County budget. The recommendations
will be reviewed with the department' s administering the programs as
part of next year ' s budget process.
RECOMMENDATION #4
Workers ' Compensation Trust:
a. The County develop and implement a system to investigate all
outstanding checks which are older than six months and keep
bank reconciliations and cash accounts updated.
b. The compensation checks be imprinted with "void After 60
Days" or similar date control.
RESPONSE
This recommendation has been implemented.
RECOMMENDATION #5
EDP Department:
a. A development of disaster recovery plan including
assignments for personnel, off-site storage of files, an
alternate EDP processing facility, and a backup power source
for the existing computer. The disaster recovery plan
should be developed immediately and tested annually.
RESPONSE
A disaster contingency task force has been created which meets
regularly to develop the recommended plan.
RECOMMENDATION #6
Single Audit
The Family Support Division of the District Attorney' s Office consider
updating the child support manual to align it with its current
financial structure.
RESPONSE
The District Attorney has submitted a request to the State of
California for authorization to install a new computerized management
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.information and accounting system to replace the existing system.
Operating manuals will be written for all phases of the new system.
RECOMMENDATION #7
The Community Development Department ensure that quarterly reports are
received from the subrecipients on a timely basis so that monitoring
procedures may be performed. Documentation should be retained in the
subrecipient files .
RESPONSE
The Community Development Department is closely monitoring the
submission, of quarterly reports by subrecipients. Staff has been
assigned to follow-up with subrecipients not submitting reports as
required. All contact with the subrecipients is documented in
writing.
RECOMMENDATION #8
Program income be itemized on the demand forms submitted by the
subrecipients to the Community Development Department. The department
should then review demand forms to ensure that program income is
reported, if applicable. Demand forms should be retained, and the
total program income indicated on the demand forms checked to agree
with the amount of program income reported in the Grantee Performance
Reports .
RESPONSE
The Community Development Department has developed a new form for the
reporting of program income. Each subrecipient which receives program
income is now using this form. The reported income' is reconciled with
the Grantee Performance Reports.
RECOMMENDATION #9
The County consider contacting the Department of Housing and Urban
Development to . determine whether they can include the County-wide
allocation plan in their indirect cost proposal. Inclusion of such
costs may result in an increased reimbursement for allowable costs.
RESPONSE
The Community Development Department will include the costs identified
in the- County-wide cost allocation plan when developing administrative
overhead rates. In addition, staff will contact the Department of
Housing and Urban Development to determine whether the administrative
costs claimed in prior years can be retroactively adjusted to include
these additional costs .
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RECOMMENDATION #10
The County determine whether monthly reimbursement requests of the
Private Industry Council for program costs be requested on a more
frequent basis under the Job Training Program. Alternately, the
Count- should determine whether the forecast method r requesting
funds is available under this Program, as opposed to the present cost
reimbursement method. Implementation of either of these methods would
result in improved cash flow for the County.
RESPONSE
As recommended, the Private Industry Council has increased the
frequency of its drawdown requests. This has improved the cash flow
for the program.
RECOMMENDATION #11
The County perform a review of its EDP system capabilities and
determine whether these systems can be enhanced to provide this
additional information for its federal financial assistance programs.
Departments receiving federal financial assistance should be
instructed to monitor and compile this additional disclosure
information so, that the information may be incorporated in subsequent
years ' reports .
RESPONSE
The format of the Schedule of Federal Financial Assistance meets all
of the Single Audit Act requirements . The County has not been advised
by its cognizant agency to report additional data. Generally, the
additional data elements referenced in the recommendation are
available within the County departments administering the programs .
RECOMMENDATION #12
All County employees be advised annually of their responsibilities
under the Hatch Act.
RESPONSE
Responsibilities under the Hatch Act are reviewed with all employees
attending the , County' s New Employee Orientation. Reference
information is available to all employees through Administrative
Bulletin #305 . 1 Subject: "Political Activities" .
RECOMMENDATION #13
PMM&Cobe awarded the 1987-1990 contract for the fiscal and single
audit of Contra Costa County in accordance with their proposal of
March 17 , 1988 .
RESPONSE
This recommendation has been implemented.
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RECOMMENDATION #14
The audit contracts be reviewed annually to guarantee a continued high
level of efficiency.
RESPONSE
The County Auditor-Controller agrees with this recommendation.
"TETE OLD COUNTY JAIL" (Page 25)
RECOMMENDATION #1
The Old Jail be torn down by the end of fiscal year 1988-89 .
RESPONSE
We agree that the portion of the old jail built in 1944 should be
demolished. However, we see no possibility that funds will be
available during the current year. An application has been submitted
to place the 1904 building on the National Register of Historic sites.
RECOMMENDATION #2
The site be made into a small parking area, landscaped open space, or
some other low-cost use , until long-range planning can determine the
best use for this property.
RESPONSE
These recommendations can be considered when plans are made to clear
the site.
RECOMMENDATION #3
The County and the City of Martinez start immediately working together
to develop a master plan ,for the future of the entire downtown area.
RESPONSE
The master plan for the Civic Center calls for open space with
. reflecting pools an er seemed to be a high priority project in
times of difficu finding.
RECOMMENDATION #4
Serious thought be given to developing plans for construction of an
office building. A lease-purchase building agreement should be
considered to conserve county capital funds.
RESPONSE
The small size of the property allows only a very small footprint of a
building and probably would be✓uneconomical project.
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RECOMMENDATION #5
A study be made of closing the one-block area of Pine Street between
the County Administration Building and the Old ,jail to see if it could
be advantageously used for a larger building on the Old Jail site and
for a landscaped courtyard to provide attractive open space.
RESPONSE
The response `(? this recommendation is incorporated in the response to
Recommendatioi,,. #3 .
"MAINTENANCE OF COUNTY FACILITIES" (Page 33)
RECOMMENDATION #1
The Board of Supervisors recognize that allowing small problems to
turn into large emergency repairs is not cost-effective.
RESPONSE
We are fully cognizant that allowing small problems to turn into major
emergencies is not cost effective .
RECOMMENDATION #2
The most cost-effective maintenance program be adopted, even if an
apparent and temporary increase in maintenance costs results .
RESPONSE
A cost-effective maintenance program has been adopted, and we are very
concerned about allocating money to the most. critical maintenance
needs of the County.
RECOMMENDATION #3
The Board of Supervisors encourage Department Heads to insist on
adequate maintenance of the facilities they occupy.
RESPONSE
The overall responsibility for both the maintenanceand the means for
funding that maintenance rests with the General Services Department.
Department Heads are not the least reluctant to bring maintenance
problems to the attention of the General Services Department which
responds to departments ' requests for higher level maintenance to the
extent that funds are available. Departments can use their
discretionary funds for additional maintenance if they wish.
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"VETERANS MEMORIAL BUILDINGS" (Page 39)
RECOMMENDATION #1
The General Services Department become more than a tru.tee of the
veterans ' buildings. It should develop written mission; policy, and
goals statements, including what the County sees as the ultima..e fate
of the buildings and properties.
RESPONSE
Military an--" Code Section 1262 specifics the County' s
authority in providing County buildings for use of benefit of
Veterans ' Associations . The authority is essentially limited to
providing .sites, buildings , memorial hall, meeting places, memorial
parks or recreation centers and for their repair or maintenance.
RECOMMENDATION #2
The General Services Department develop a five-year cost-effective
maintenance plan and budget money for it, starting in the fiscal year
1988-89 .
RESPONSE
Prioritized lists are developed with estimates of work to be
accomplished on the various memorial halls. The amount of money
allocated in the budget process dictates the amount of work that will
be accomplished in a given year.
RECOMMENDATION #3.
The General Services Department meet quarterly with the veterans '
associations to encourage accountability, stay abreast of the
veterans ' needs , guide them in their planning, help them in attracting
leases, assess maintenance problems, and review other items of common
interest.
RESPONSE
As noted in the response to Recommendation #1 , the County' s authority
is limited.
RECOMMENDATION #4
The veterans ' associations review their own mission, policy, and goal
statements, on a county-wide basis, to help the General Services
Department in their obligations to the veterans and the taxpayer.
RESPONSE
This recommendation is directed to the Veterans ' Associations .
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RECOMMENDATION #5
The General Services Department and the veterans jointly develop a
plan for the buildings and properties which will better meet the
contemporary needs of the veterans , County., and various communities .
RESPONSE
General Services will be happy to work with the groups in any new
endeavors to enhance the use of the buildings and property.
RECOMMENDATION #6
The County and the veterans reexamine the potential for selling the
existing properties, pooling the proceeds and constructing a
contemporary building( s) suited to today' s business and social needs .
RESPONSE
Past efforts to combine veterans ' groups and assets have not been met
with enthusiasm from the veterans. Any renewed efforts will receive
our support.
"COUNTY OWNED BUILDINGS IN RICHMOND" (Page 47)
There were no recommendations in this report.
"THE COUNTY CLERK'S DEPARTMENT" (Page 51)
RECOMMENDATION #1
A joint study of court filing tasks , work loads , and work methods be
undertaken immediately by the Clerk' s Department and the County
Administrator. Written mission and goal statements should be made,
modern job procedures formulated and implemented, space needs
identified and provided, information systems created, and other needs
identified. Outside consultants should be considered to assist in
this task. The recommendations of this study should be speedily
implemented by the Clerk-Recorder.
RESPONSE
A joint study was conducted in 1980 and the Clerk-Recorder has been
implementing recommendations as opportunities and resources allow.
The Clerk-Recorder was instrumental in providing for needed automation
support through allocation of specific fees dedicated to this purpose.
RECOMMENDATION #2
The Clerk-Recorder actively seek opportunities to use services
available through other departments and to provide services to others
where possible. Examples would be use of mail pickup and delivery by
General Services and shared use of microfilm equipment by other
departments.
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RESPONSE
The Clerk-Recorder utilizes the inter-office mail and printing
services of the General Services Department. The Court
Administrator ' s Office calendars certain matters. The Clerk-Recorder
provides microfilming services to the Clerk of the Board.
RECOMMENDATION #3
The Clerk-Reco -der establish responsibilities and authority for each
supervisory group, to be implemented by delegating both responsibility
and authority to lower levels.
RESPONSE
The Clerk-Recorder feels responsibilities and authority delegation is
adequate.
In accordance with Penal Code Section 933, the Clerk-Recorder' s
comments are attached as Attachment A.
"THE DEPARTMENT OF SOCIAL SERVICES AND THE HOMELESS" (Page 63)
RECOMMENDATION #1
The following measures be taken to improve coordination of services to
the homeless through an improved system of information management.
a. Step One: The Department of Social Service provide its intake
and social workers with frequently updated listings or available
public and private resources which can assist the homeless and
the general guidelines for each. The purpose of such a reference
source would be to increase the efficiency and accuracy of DSS
workers in providing emergency assistance to those in need of
shelter .
b. Step Two: The Board of Supervisors assign a department, or
contract with an agency, to develop and maintain a listing of all
public and private resources available to provide assistance to
the homeless. This department or agency should be responsible
for assembling, interpreting, indexing, updating, and
distributing the processed information to all service providers,
including DSS workers . Should it ,be determined that the best
agency to perform this role would be a private, nonprofit
organization, it should be funded, at least in part, by public
funds at a level which would provide. staffing sufficient for its
function. The purpose of such a program would be to better
coordinate the efforts of all providers of services to the
homeless.
C. Step Three: The Department of Social Service assign a high
priority and act promptly to computerize program information.
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RESPONSE
The Social Services Department matched private donations to provide a
computer and SHELTER INC. , a non-profit community age:ncv , to assist
the homeless . This is used to link County agencies , non-profit
service providers , and others to HANDSNET, a State-wid- Information
Program and to each other. The up-to-date information is then shared
among agencies and staff . We feel this is responsive to the Grand
Jury.
RECOMMENDATION #2
The County seek to contract with more private: shelter providers to
open and operate, as needed, emergency shelters in the eastern,
western, and central portions of the County. The independent
organizations should staff and manage the shelters , and the County
should provide the building and funding for security, maintenance, and
operation.
RESPONSE
Shelters have recently been opened in West County and East County.
The County has designated a non-profit corporation to establish with
County funding a facility in Central County.
RECOMMENDATION #3_
The Department of Social Service make strong efforts to simplify,
clarify, and streamline the application process, wherever possible,
and be aggressive in offering assistance in filling out forms. As a
matter of course, receptionists should advise applicants that if they
have any questions about the applications they should bring them to
their appointed eligibility worker who will assist them.
RESPONSE
The Department has begun efforts to evaluate and simplify the
application process .
The General Assistance Redesign Task Force is working to clarify and
streamline the process for General Assistance applicants whose
applications will be processed by specialized Eligibility Workers.
The application forms have been revised and simplified. Applicants
will be advised by Reception that they are to complete the forms as
best they can, and that they will receive assistance and clarification
from their Eligibility Worker in an orientation meeting as well as in
the Intake interview. The Department contracts with translators and
also has bilingual staff to assist non-English speaking applicants.
The time between application and granting will be reduced due to this
streamline process.
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An Intake Redesign Task Force has been convened to evaluate and
simplify the Intake process for aid programs other than General
Assistance.
While the Department is not at liberty to charge State forms, most of
those used in the Intake process, the Task Force will be --^:viewing and
assessing all County Forms.
RECOMMENDATION 04
The Department of Social Service develop guidelines for the granting
of County Emergency Assistance to allow for a narrower range of
discretionary ,decisions by eligibility workers.
RESPONSE
The Social Services Department drafted proposed regulation revisions
for the County Emergency Assistance program, which are being reviewed.
"CONTRA COSTA COUNTY'S ALCOHOL/DRUG ABUSE/MENTAL HEALTH PROGRAMS"
(Page 93)
,,
RECOMMENDATION #1 .
The Board of Supervisors take a strong leadership position in:
a. Conveying to the appropriate federal and state bodies the need
for additional funding for programs in the fields of alcohol,
drug abuse , and mental health.
b. Encouraging the participation of local governments, school
districts, businesses , and community organizations to invest in
substance abuse programs on a matching basis.
RESPONSE
We have provided strong leadership in pulling together a broad network
of public and private agencies to address the drug and alcohol
problems in Contra Costa County. The Contra Costa County Health
Promotion Policy: Focus on Alcohol/Drug Abuse and Violence Prevention,
was adopted by the Board of Supervisors and many cities and school
districts throughout the County. The Task Force to Support Prevention
of Alcohol/Drug Abuse and Violence Among Youth is the group
responsible for the development of this policy. The efforts of this
bipartisan task force eventually led to the creation of the Challenge
Grants which have funded many new and innovative programs to address
these issues.
We have also initiated steps to hold a tri-county drug abuse
conference to review the trends in drug abuse as well as potential
strategies for prevention intervention and treatment of drug
dependency. We have also taken important steps to generate more
revenue for drug and alcohol abuse programs by advocating increasing
alcoholic beverage excise taxes.
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Individual Board members have taken a more visible leadership role in
order to stress the substantial public policy issues and decisions
which need to be made during this crisis .
RECOMMENDATION #2
The Alcohol/Drug Abuse/Mental Health Division prepare proposals for
substance-abuse programs in the County' s detention facilities .
RESPONSE
The Alcohol Program is currently negotiating with the Probation
Department to provide alcohol counseling staff to the juvenile
facilities . In addition, Mental Health provides two full-time Mental
Health Treatment Specialists to the juvenile facilities and a
consulting psychiatrist six hours a week. The Director of the Youth
Interagency Assessment and Consultation Team (Y. I .A.C.T. ) is also
available on a case by case basis at the juvenile facilities and also
provides consultation to the Probation Department ' s runaway children
shelter, Sherman House.
We are hopeful the additional federal funds for incarcerated youth
will allow for the development of more services within the criminal
justice system.
RECOMMENDATION #3
The Board of Supervisors assign the highest possible priority to
budgetary support of substance abuse treatment programs at County
detention facilities for both adults and juveniles.
RESPONSE
Last year, funding was allocated to hire a Mental Health Treatment
Specialist for full time assignment at the juvenile facilities . In
addition, the Board approved the allocation of War on Drugs monies to
purchase eight residential beds to help provide a specialized group
placement for adolescents incarcerated at County juvenile facilities
who are polysubstance abusers.
We agree that additional funding is needed to provide for the
development of increased services within the Criminal Justice System.
RECOMMENDATION #4
The Alcohol/Drug Abuse/Mental Health Division conduct a thorough
review of their contract programs in an effort to get the greatest
benefit from the limited funds available.
RESPONSE
A/DA/MH Division personnel have been working with our Internal
Operations Committee to refine our contract monitoring policy to
assure the greatest benefit from our contract funds. This contract
-12-
monitoring policy has been shared with other counties. by the State
Department of Mental Health as a model to assure contract compliance.
The Drug Program Office is continuing to develop standards whereby
reimbursement rates will be more equitable among the various
providers. Part of this standardization process will allow for
automating information with regular printouts.
RECOMMENDATION #5
The alcohol and drug abuse programs continue their close and
cooperative relationship.
RESPONSE
The Alcohol and Drug Programs will continue their close, cooperative
relationship and will include Mental Health. That that end, a
consultant was hired to develop a memorandum of understanding to
assure clear roles and responsibilities and to help write grants that
will be of mutual benefit to these programs.
RECOMMENDATION #6
The County immediately complete negotiations to acquire two additional
private beds for juvenile acute care psychiatric patients.
RESPONSE
Contra Costa County has entered into an agreement with Walnut Creek
Hospital to acquire additional psychiatric beds for latency age and
adolescent severely emotionally disturbed children. The Health
Services Department is also negotiating with Herrick Hospital, East
Bay Hospital and First Hospital Vallejo to create additional capacity
in addition to Walnut Creek Hospital.
RECOMMENDATION #7
The Alcohol/Drug Abuse/Mental Health Division explore the possibility
of acquiring a computerized information management system for the
mental health program.
RESPONSE
The Health Services Department, following a competitive RFP process,
will soon be contracting with the PSP Information Group to implement a
state=of-the-art management information system that will include- Mental
Health, Alcohol and Drug Programs.
"LOS MEDANOS HOSPITAL DISTRICT" (Page 103)
RECOMMENDATION #1
No recommendations were included.
-13-
"MT. DIABLO HOSPITAL DISTRICT TRAVEL EXPENSE ACCOUNTING"' (Page 105)
RECOMMENDATION #1
Members of the Mt. Diablo Hospital District. Board of Directors follow
existing policies and procedures for the accounting and payment of
their travel expenses .
RESPONSE
The District Eoard of Directors should respond to this recommendation.
RECOMMENDATION #2
The advice of the Mt. Diablo Hospital district auditors be sought in
establishing and implementing procedures which will ensure that travel
expenses of the Board of Directors not be paid without proper
authorization and supporting documentation.
RESPONSE
The District Board of Directors should respond to this recommendation.
"TRAVEL EXPENSES OF HOSPITAL DISTRICTS" (Page 111)
RECOMMENDATION #1
Payment of travel expenses for spouses or companions of hospital
district board members be recognized as an unlawful gift of public
funds .
RESPONSE
The Districts ' Governing Board should respond to this recommendation.
RECOMMENDATION #2
All hospital districts within Contra Costa County examine their bylaws
and policies to ensure they do not pay for travel expenses for spouses
or companions.
RESPONSE
The Districts ' governing boards should respond to this recommendation.
"THE ESCAPE FROM THE MARTINEZ DETENTION FACILITY ON JULY 23, 1987"
(Page 115)
RECOMMENDATION #1
Deputy Operations Officers and Sergeants visit each module at least
once a week. "D" Module should be given highest priority for these
visits. Ample supervision must be provided to line personnel.
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"VETERANS MEMORIAL BUILDINGS" (Page 39)
RECOMMENDATION #1
The General Services Department become more than a truFtee of the
veterans ' buildings. It should develop written mission; policy, and
goals statements , including what the County sees as the ultimate fate
of the buildings and properties .
RESPONSE
Military an- Veterans Code Section 1262 specifics the County' s
authority in providing County buildings for use of benefit of
Veterans ' Associations . The authority is essentially limited to
providing sites, buildings, memorial hall, meeting places, memorial
parks or recreation centers and for their repair or maintenance.
RECOMMENDATION #2
The General Services Department develop a five-year cost-effective
maintenance plan and budget money for it, starting in the fiscal year
1988-89 .
RESPONSE
Prioritized lists are developed with estimates of work to be
accomplished on the various memorial halls. The amount of money
allocated in the budget process dictates the amount of work that will
be accomplished in a given year.
RECOMMENDATION #3
The General Services Department meet quarterly with the veterans '
associations to encourage accountability, stay abreast of the
veterans ' needs , guide them in their planning, help them in attracting
leases , assess maintenance problems, and review other items of common
interest.
RESPONSE
As noted in the response to Recommendation #1, the County' s authority
is limited.
RECOMMENDATION #4
The veterans ' associations review their own mission, policy, and goal
statements, on a county-wide basis, to help the General Services
Department in their obligations to the veterans and the taxpayer.
RESPONSE
This recommendation is directed to the Veterans ' Associations .
-7-
RECOMMENDATION #5
The General Services Department and the veterans jointly develop a
plan for the buildings and properties which will better meet the
contemporary needs of the veterans , County, and various communities .
RESPONSE
General Services will be happy to work with the groups in any new
endeavors to enhance the use of the buildings and property.
RECOMMENDATION #6
The County and the veterans reexamine the potential for selling the
existing properties, pooling the proceeds and constructing a
contemporary building( s) suited to today' s business and social needs .
RESPONSE
Past efforts to combine veterans ' groups and assets have not been met
with enthusiasm from the veterans . Any renewed efforts will receive
our support. .
"COUNTY OWNED BUILDINGS IN RICHMOND" (Page 47)
There were no recommendations in this report.
"THE COUNTY CLERK'S DEPARTMENT" (Page 51)
RECOMMENDATION #1
A joint study of court filing tasks, work loads, and work methods be
undertaken immediately by the Clerk' s Department and the ' County
Administrator. Written mission and goal statements should be made,
modern job procedures formulated and implemented, space needs
identified and provided, information systems created, and other needs
identified. Outside consultants should be considered to assist in
this task. The recommendations of this study should be speedily
implemented by the Clerk-Recorder.
RESPONSE
A joint study was conducted in 1980 and the Clerk-Recorder has been
implementing recommendations as opportunities and resources allow.
The Clerk-Recorder was instrumental in providing for needed automation
support through allocation of specific fees dedicated to this purpose.
RECOMMENDATION #2
The Clerk-Recorder actively seek opportunities to use services
available through other departments and to provide services to others
where possible. Examples would be use of mail pickup and delivery by
General Services and shared use of microfilm equipment by other
departments.
-8-
RESPONSE
The Clerk-Recorder utilizes the inter-office mail and printing
services of the General Services Department. The Court
Administrator ' s Office calendars certain matters. The Clerk-Recorder
provides microfilming services to the Clerk of the Board.
RECOMMENDATION #3
The Clerk-Recci-der establish responsibilities and authority for each
supervisory group, to be implemented by delegating both responsibility
and authority to lower levels .
RESPONSE
The Clerk-Recorder feels responsibilities and authority delegation is
adequate.
In accordance with Penal Code Section 933, the Clerk-Recorder' s
comments are attached as Attachment A.
"THE DEPARTMENT OF SOCIAL SERVICES AND THE HOMELESS" (Page 63)
RECOMMENDATION #1
The following measures be taken to improve coordination of services to
the homeless through an improved system of information management.
a. Step One: The Department of Social Service provide its intake
and social workers with frequently updated listings or available
public and private resources which can assist the homeless and
the general guidelines for each. The purpose of such a reference
source would be to increase the efficiency and accuracy of DSS
workers in providing emergency assistance to those in need of
shelter .
b. Step Two: The Board of Supervisors assign a department, or
contract with an agency, to develop and maintain a listing of all
public and private resources available to provide assistance to
the homeless. This department or agency should be responsible
for assembling, interpreting, indexing, updating, and
distributing the processed information to all service providers,
including DSS workers. Should it be determined that the best
agency to perform this role would be a private, nonprofit
organization, it should be funded, at least in part, by public
funds at a level which would provide_ staffing sufficient for its
function. The purpose of such a program would be to better
coordinate the efforts of all providers of services to the
homeless .
C. Step Three: The Department of. Social Service assign a high
priority and act promptly to computerize program information.
-9-
RESPONSE
The Social Services Department matched private donations to provide a
computer and SHELTER INC. , a non-profit community agency, to assist
the homeless. This is used to link County agencies , non-profit
service providers , and others to HANDSNET, a State-wide• Information
Program and to each other. The up-to-date information is then shared
among agencies and staff . We feel this is responsive to the Grand
Jury.
RECOMMENDATION #2
The County seek to contract with more private shelter providers to
open and operate, as needed, emergency shelters in the eastern,
western, and central portions of the County. The independent
organizations should staff and manage the shelters, and the County
should provide the building and funding for security, maintenance, and
operation.
RESPONSE
Shelters have recently been opened in West County and East County.
The County has designated a non-profit corporation to establish with
County funding a facility in Central County.
RECOMMENDATION #3
The Department of Social Service make strong efforts to simplify,
clarify, and streamline the application process, wherever possible,
and be aggressive in offering assistance in filling out forms. As a
matter of course, receptionists should advise applicants that if they
have any questions about the applications they should bring them to
their appointed eligibility worker who will assist them.
RESPONSE
The Department has begun efforts to evaluate and simplify the
application process.
The General . Assistance Redesign Task Force is working to clarify and
streamline the process for General Assistance applicants whose
applications will be processed by specialized Eligibility Workers.
The application forms have been revised and simplified. Applicants
will be advised by Reception that they are to complete the forms as
best they can, and that they will receive assistance and clarification
from their Eligibility Worker in an orientation meeting as well as in
the Intake interview. The Department contracts with translators and
also has bilingual staff to assist non-English speaking applicants.
The time between application and granting will be reduced due to this
streamline process .
-10-
An Intake Redesign Task Force has been convened to evaluate and
simplify the Intake process for aid programs other than General
Assistance.
While the Department is not at liberty to charge State forms , most of
those used in the Intake process , the Task Force will be _:viewing and
assessing all County Forms .
RECOMMENDATION #4
The Department of Social Service develop guidelines for the granting
of County Emergency Assistance to allow for a narrower range of
discretionary decisions by eligibility workers.
RESPONSE
The Social Services Department drafted proposed regulation revisions
for the County Emergency Assistance program, which are being reviewed.
"CONTRA COSTA COUNTY'S ALCOHOL/DRUG ABUSE/MENTAL HEALTH PROGRAMS"
(Page 93)
RECOMMENDATION #1
The Board of Supervisors take a strong leadership position in:
a. Conveying to the appropriate federal and state bodies the need
for additional funding for programs in the fields of alcohol,
drug abuse, and mental health.
b. Encouraging the participation of local governments, school
districts , businesses , and community organizations to invest in
substance abuse programs on a matching basis.
RESPONSE
We have provided strong leadership in pulling together a broad network
of public and private agencies to address the drug and alcohol
problems in Contra Costa County. The Contra Costa County Health
Promotion Policy: Focus on Alcohol/Drug Abuse and Violence Prevention,
was adopted by the Board of Supervisors and many cities and school
districts throughout the County. The Task Force to Support Prevention
of Alcohol/Drug Abuse and Violence Among Youth is the group
-responsible for the development of this policy. The efforts of this
bipartisan task force eventually led to the creation of the Challenge
Grants which have funded many new and innovative programs to address
these issues.
We have also initiated steps to hold a tri-county drug abuse
conference to review the trends in drug abuse as well as potential
strategies for prevention intervention and treatment of drug
dependency. We have also taken important steps to generate more
revenue for drug and alcohol abuse programs by advocating increasing
alcoholic beverage excise taxes.
-11-
Individual Board members have taken a more visible leadership role in
order to stress the substantial public policy issues and decisions
which need to be made during this crisis.
RECOMMENDATION #2
The Alcohol/Drug Abuse/Mental Health Division prepare proposals for
substance-abuse programs in the County' s detention facilities.
RESPONSE
The Alcohol Program is currently negotiating with the Probation
Department to provide alcohol counseling staff to the juvenile
facilities . In addition, Mental Health provides two full-time Mental
Health Treatment Specialists to the juvenile facilities and a
consulting psychiatrist six hours a week. The Director of the Youth
Interagency Assessment and Consultation Team (Y. I .A.C.T. ) is also
available on a case by case basis at the juvenile facilities and also
provides consultation to the Probation Department' s runaway children
shelter , Sherman House.
We are hopeful the additional federal funds for incarcerated youth
will allow for the development of more services within the criminal
justice system.
RECOMMENDATION #3
The Board of Supervisors assign the highest possible priority to
budgetary support of substance abuse treatment programs at County
detention facilities for both adults and juveniles.
RESPONSE
Last year, funding was allocated to hire a Mental Health Treatment
Specialist for full time assignment at the juvenile facilities . In
addition, the Board approved the allocation of War on Drugs monies to
purchase eight residential beds to help provide a specialized group
placement for adolescents incarcerated at County juvenile facilities
who are polysubstance abusers.
We agree that additional funding is needed to provide for the
development of increased services within the Criminal Justice System.
RECOMMENDATION #4
The Alcohol/Drug Abuse/Mental Health Division conduct a thorough
review of their contract programs in an effort to get the greatest
benefit from the limited funds available.
RESPONSE
A/DA/MH Division personnel have been working with our Internal
Operations Committee to refine our contract monitoring policy to
assure the greatest benefit from our contract funds. This contract
-12-
monitoring policy has been shared with other counties by the Sate
Department of Mental Health as a model to assure contract compliance.
The Drug Program Office is continuing to develop standards :,rherebv
reimbursement rates will be more equitable among -he various
providers. Part of this standardization process will_ all,--;,.i for
automating information with regular printouts.
RECOMMENDATION #5
The alcohol and drug abuse programs continue their close and
cooperative relationship.
RESPONSE
The Alcohol and Drug Programs will continue their close, cool%-�:—`.ive
relationship and will include Mental Health. That that e,a,, ., a
consultant was hired to develop a memorandum of understand:: _? to
assure clear roles and responsibilities and to help write grants that
will be of mutual benefit to these programs.
:RECOMMENDATION #6
The County immediately complete negotiations to acquire two additional
private beds for juvenile acute care psychiatric patients.
RESPONSE
Contra Costa County has entered into an agreement with Walnut Creek
Hospital to acquire additional psychiatric beds for latency age and
adolescent severely emotionally disturbed children. The Health
Services Department is also negotiating with Herrick Hospital, East
Bay Hospital and First Hospital Vallejo to create additional capacity _.
in addition to Walnut Creek Hospital.
RECOMMENDATION #7
The Alcohol/Drug Abuse/Mental Health Division explore the possibility
of acquiring a computerized information management system for the
mental health program.
RESPONSE
The Health Services Department, following a competitive RFP process,
will soon be contracting with the PSP Information Group to implement a
state-of-the-art management information system that will include Mental
Health, Alcohol and Drug Programs.
"LOS MEDANOS HOSPITAL DISTRICT" (Page 103)
RECOMMENDATION #1
No recommendations were included.
-13-
"MT. DIABLO HOSPITAL DISTRICT TRAVEL EXPENSE ACCOUNTING" (Page 105)
RECOMMENDATION 41
Members of the Mt. Diablo Hospital District. Board of Directors follow
existing policies and procedures for the :c=ounting and payment of
their travel expenses.
RESPONSE
The District Eoard of Directors should respond to this recommendation.
RECOMMENDATION #2
The advice of the Mt. Diablo Hospital district auditors be sought in
establishing and implementing procedures which will ensure that travel
expenses of the Board of Directors not be paid without proper
authorization and supporting documentation.
RESPONSE.
The District Board of Directors should respond to this recommendation.
"TRAVEL EXPENSES OF HOSPITAL DISTRICTS" (Page 111)
RECOMMENDATION #1
Payment of travel expenses for spouses or companions of hospital
district board members be recognized as an unlawful gift of public
funds .
RESPONSE
The Districts ' Governing Board should respond to this recommendation.
RECOMMENDATION #2
All hospital districts within Contra Costa County examine their bylaws
and policies to ensure they do not pay for travel expenses for spouses
or companions.
RESPONSE
The Districts ' governing boards should respond to this recommendation.
"THE ESCAPE FROM THE MARTINEZ DETENTION FACILITY ON JULY 23, 1987"
(Page 115)
RECOMMENDATION #1
Deputy Operations Officers and Sergeants visit each module at least
once a week. "D" Module should be given highest priority for these
visits . Ample .supervision must be provided to l=ine personnel.
-14-
RESPONSE
The custody sergeants have been instructed to visit D Module at least
once each shift, three times each 24-hour period. Module logs
indicate that this has been occurring.
The Operations Directors (Lieutenants) have been instructed to visit
each module, with special emphasis on D Module, several times each
week.
RECOMMENDATION #2
The Deputy Operations Officer receive permission from the Jail
Commander prior to leaving MDF, except at normal shift change.
RESPONSE
The Operations Directors must receive permission from the Facility
Administrator to leave early or miss a shift.
RECOMMENDATION #3
At shift change, the Deputy Operations Officer remain in MDF until
relieved in person by the oncoming Duty Operations Officer.
RESPONSE
Operations Directors have been instructed not to leave their posts
until property relieved.
Should the Operations Director leave early, he/she provides the
processing sergeant with all pertinent information. It then becomes
the sergeant' s responsibility to pass the information on to the
oncoming Operations Director.
If the Operations Director misses a shift, he/she designates a
sergeant to assume the responsibilities of the Operations Director.
RECOMMENDATION #4
A log be established for all jail employees to sign in or out of MDF,
except at normal shift change.
RESPONSE
All sworn staff re accounted for at the briefing at the beginning of
each shift.
If an officer must leave the facility for any reason (emergency,
court, doctor appointment) during a shift, he/she must have the
Operations Director ' s approval.
-15-
. F
RECOMMENDATION #5
Probationary deputies not be assignedfloor or control roam status
unless paired with a deputy who has a minimum 24 months jail duty.
RESPONSE
This recommendation is not always practical. Many shifts do not have
deputies with 24 months of experience in the facility.
The Operations Directors are encouraged to assign deputies to D Module
who can best handle the unique responsibilities of D Module.
RECOMMENDATION #6
All inmates stand by bunks for shift head counts, except during
midnight shift.
RESPONSE
There are five formal counts each 24-hour period: 0330 , 0530 , 130,
1730 , and 2230 .
During formal counts, the facility is locked down. Inmates on the
modules return to their rooms. While making the count, the deputy
must observe the inmate.
During the 0330 count, or at any time the deputies check on sleeping
inmates, the deputy will confirm respiration.
During the escape on July 23 , 1987 , deputies failed to observe the
inmate or confirm respiration. As a result, they were unaware there
was an escape.
RECOMMENDATION #7
Inmates on "D" Module not be scheduled to have recreation time
together on a regular basis.
RESPONSE
Administratively segregated inmates are allowed out two at a time.
There is not enough time to let them out alone and still get them all
out for the amount of time required by law.
Many segregated inmates cannot be permitted out with any other
prisoner or can only be permitted out with a few select prisoners.
Our options are very limited and occasionally the same segregated
inmates exercise together on a regular basis. Every effort is made
not to have a set routine.
-16-
RECOMMENDATION #8
The floor deputy regularly inspect inmate rooms for contraband when
rooms are empty.
RESPONSE
Policy requires that deputies made random room searches during their
shifts.
The facility search team has received additional training. The
facility search team now does a minimum of five module searches a
month.
RECOMMENDATION #9
Civilian nonsworn personnel be hired to assist deputies in performing
duties within modules, without reduction or sworn staffing.
RESPONSE
This recommendation is not practical in the light of the County' s
financial problems.
RECOMMENDATION #10
All laundry be exchanged on a one-for-one basis. The laundry should
be counted upon delivery to and retrieval from modules.
RESPONSE
Policy requires that no clean article will be issued unless a soiled
one is turned in.
Since the escape from D Module, an additional officer is sent to D
Module to assist in conducting a one-for-one exchange.
RECOMMENDATION #11
A licensed architect be retained by the County to inspect the MDF roof
security screen and make recommendations for modification or
replacement of the existing system.
RESPONSE
County maintenance personnel and Sheriff ' s personnel inspected the D
Module security screens and identified several weaknesses.
Modifications to the screen have been completed.
RECOMMENDATION #12
On-way glass be installed in "D" Module control room, allowing
deputies to observe inmates but preventing inmates from observing the
activity of the deputy in the control room.
-17-
RESPONSE
One-way glass may well lead to less, not more, supervision of inmates.
If inmates are not able to see staff members, staff may tend to be
less vigilant.
The philosophy of a direct supervision facility requires that staff and
inmates have the ability to observe and interact: with each other.
RECOMMENDATION #13
Replacement sheets of high-security glass used in modules be stored at
MDF to provide immediate repair if glass is broken.
RESPONSE
The expense and storage space required make this recommendation
impractical.
The security glass is extremely expensive.
It is not possible to order a large piece of security glass and cut it
to size when needed. The glass must be special ordered by size. When
ordered, only then is it manufactured.
The Main Detention Facility has such a large number of window sizes
that it is impractical to have one of each in stock.
RECOMMENDATION #14
The Sheriff ' s Department consult with the Martinez Policy Department
to establish a policy of contacting MDF when the policy receive such
reports as two men running through the night in their underwear a few
blocks from the County jail.
RESPONSE
This issue has been discussed with Martinez Police. In the future,
Martinez Policy will notify the Main Detention Facility on similar
suspicious circumstances.
"OVERCROWDING OF THE COUNTY'S MARTINEZ DETENTION FACILITY" (Page 125)
RECOMMENDATION #1
The State of California appoint additional judges in Contra Costa
County.
RESPONSE
Please see response to Recommendation No. 2.
-18-
RECOMMENDATION #2
The Board of Supervisors provide funding to hire additional assistant
district attorneys, public defenders, court officers and associated
staff, and jail staff.
RESPONSE
We concur with the Grand Jury' s recommendations for additional judges
and other personnel necessary to operate the courts.
Whenever there is an increase in the number of courts, there is an
associated need for additional staff for all departments that work
with the courts. The Sheriff ' s Department would require additional
transportation and court security officers.
RECOMMENDATION #3
The Sheriff set up a "tickler system" to inform appropriate
departments of inmates ' time in custody while awaiting court
appearances.
RESPONSE
It is not practical presently to provide this information because it
would require a great deal of clerical time to develop. This
information will be provided, however, by the new inmate management
computer system currently under development. This system will be in
operation in approximately twelve months.
•RECOMMENDATION #4
In-home surveillance be used in lieu of jail custody in selected
cases.
RESPONSE
The Sheriff ' s Department has implemented the in-home surveillance
program on a limited basis. The results of our test period were quite
positive. A budget has been submitted to expand the program to
include electronic surveillance of selected offenders. The program
will continue on a limited basis and be expanded when funding becomes
available.
RECOMMENDATION #5
Additional hours be added to the court calendar to include night
courts and weekend sessions.
RESPONSE
Please see response to Recommendation No. 2
RECOMMENDATION #6
Video arraignments be established.
-19-
RESPONSE
A video arraignment/teleconferencing task force is currently
developing plans to establish a pilot video arraignment system between
the main Detention Facility in Martinez and the Delta Municipal Court.
In addition, the task force is developing plans to estab=.ish a pilot
teleconferencing system between the Marsh Creek Detention: Facility in
Clayton and the Probation and Public Defender Offices in Martinez .
RECOMMENDATION #7
Attorneys be used more often as temporary judges.
RESPONSE
If attorneys were used as temporary judges to provide relief for
judges on vacation, this would permit each court to function 52 weeks
a year.
Any increase in the time courts are available would move prisoners
through the system more rapidly. Theoretically, this would reduce the
time prisoners are in the County system.
RECOMMENDATION #8
The District Attorney and Public Defender join in early disposition of
criminal cases to relieve jail overcrowding.
RESPONSE
we concur with this recommendation. The Probation Department is also
vital in the early disposition of criminal cases .
"INSPECTION OF DETENTION FACILITIES" (Page 131)
RECOMMENDATION #1 (Main Detention Facility)
More facilities be provided to expedite processing for both food
services and laundry.
RESPONSE
The recommendation has been implemented. Additional freezer space and
larger cooking pots, additional clothes washers; and dryers have been
purchased. This equipment will provide the capacity to assist in
managing the overcrowded situation.
RECOMMENDATION #2 (Marsh Creek Facility)
A General Services supervisor, skilled in various trades, be assigned
to the facility as required to supervise its maintenance and repair.
He or she would be responsible to ensure that materials are ordered
and on hand when needed, to be accountable for the security of
-20-
materials ordered, to supervise prisoner work parties, and to ensure
the safety of prison labor.
RESPONSE
The recommended General Services supervisor is in the department
1988-89 budget proposal but remains unfunded.
RECOMMENDATION #3 (Marsh Creek Facility)
Prison labor be utilized to maintain and repair all walkways, stair
walls, buildirigs, fences, septic tank and leach lines, recreation
areas, classrooms, weed abatement, and other related tasks.
RESPONSE
This recommendation has been implemented with the sole exceptions of
electrical, sewage, or other related tasks which require skilled and
licensed craftspersons.
RECOMMENDATION #4 (Work Furlough Center)
The Board of Supervisors establish similar work furlough operations
for central and east county areas.
RESPONSE
We concur with the recommendation. Presently, we would operate a
central facility with our current inmate population and
classification base. As the county continues to expand, we could
also operate an east county facility in future years.
RECOMMENDATION #5 (Byron Boys Ranch)
A permanent long-term solution to the water problem be sought by the
Board of Supervisors.
RESPONSE
A new well has been drilled and is being tested prior to connection to
the water system. This will serve until such times as the appropriate
water district provides service to that area.
RECOMMENDATION #6 (City Jails)
All city council members and representatives of city administration
visit their respective police department holding facilities
periodically to ensure they are being operated in a proper manner.
RESPONSE
The appropriate city councils should respond to this recommendation.
-21-
"COUNTY SERVICE CONTRACTS WITH NON PROFIT CORPORATIONS" (Page 141)
RECOMMENDATION #1
The Board of Supervisors allocate a portion of contract funds to those
departments that receive no administrative funds to cover the costs of
monitoring nonprofit contracts.
RECOMMENDATION #2
The Standard Service Contracts (Purchase of Services ) with nonprofit
corporations be modified to explicitly require that the County and the
Grand Jury have access, on demand, to all of a corporation' s financial
records, regardless of funding source.
RECOMMENDATION #3
All nonprofit corporations soliciting funds from the County be
required to provide a statement or budget showing all current sources
of outside funding.
RECOMMENDATION #4
The Board of Supervisors study the feasibility of consolidating the
financial monitoring of nonprofit contracts into one department. The
monitoring of services should continue to be done by the appropriate
department.
RECOMMENDATION #5
The Board of Supervisors remind all department heads that the County
has the ultimate fiduciary responsibility for all state and federal
funds that are assigned to their departments.
RESPONSE
We have requested the County Administrator on August 16 , 1988 , in
response to the Internal Operations Committee, to convene an ad hoc
group including county staff whose departments have a structured
contract monitoring program, county staff whose departments have few
contacts to monitor and, therefore, do not have a highly structured
contract monitoring program, staff from the: Auditor-Controller ' s
Office and staff from several contract agencies to review the
following:
1 . The 1987-88 Grand Jury Report on contract monitoring.
2 . The current level of contract monitoring in county departments.
3 . The potential need to either establish contract monitoring
programs in all departments which have contracts with private
non-profit agencies or transfer those contracts to other
departments which do have the resources to adequately, monitor
such programs.
-22-
4 . The need to review all departments ' contract mo ' toring programs
and make them standard county-wide.
5 . The feasibility of requiring that a private, non-profit
contract agencies ' Board of Directors e representative of the
County or portion of the county the serve, both g;-nographically
and in terms of racial, ethnic and exual mix and that they have
adequate fiscal expertise on th Board to be able to properly
manage the agency.
6 . The feasibility of requir' g the Boards of Directors of all
private, non-profit con act agencies to undertake long-term
goal-setting as a part their corporate strategy.
7 . The feasibility of roviding technical assistance to contract
agencies, possibly hrough a partnership involving the United Way
of the Bay Area, private foundations, private businesses and the
County.
8 . The feasib' ity of coordinating the monitoring of contract
agencies ere an agency has contracts with multiple County
departme is in order to avoid unnecessary duplication of effort.
We have a o requested the County Administrator to report back to our
Committ his findings and recommendations on November 14 .
av
-23-
4 . The need to review all departments ' contract monitoring programs
and make them standard county-wide.
5 . The feasibility of requiring that all private, non-profit
contract agencies ' Board of Directors are representative of the
County or portion of the County they serve, both geographically
and in terms of racial, ethnic and sexual mix and that they have
adequate fiscal expertise on the Board to be able to properly
manage the agency.
6 . The feasibility of requiring the Boards of Directors of all
private, non-profit contract agencies to undertake long-term
goal-setting as a part of their corporate strategy.
T. The feasibility of providing technical assistance to contract
agencies, possibly through a partnership involving the United Way
of the Bay Area, private foundations, private businesses and the
County.
8 .' The feasibility of coordinating the monitoring of contract
agencies where an agency has contracts with multiple County
departments in order to avoid unnecessary duplication of effort.
We have also requested the County Administrator to report back to our
Committee of his findings and recommendations on November 14.
"REVIEW OF THE 1986-87 GRAND JURY RECOMMENDATIONS" (Page 159)
RECOMMENDATION #1
Each grand jury ensure response to the previous grand jury' s report
and determine whether the previous year ' s recommendations were
implemented.
RESPONSE
The Grand Jury should respond to this recommendation.
RECOMMENDATION #2
The Recommendations Review Committee communicate with those agencies ,
departments, or districts which have not responded within the required
time.
RESPONSE
The Grand Jury should respond to this recommendation.
RECOMMENDATION #3
Copies of the responses to a grand jury report be filed with a copy of
that report in the grand jury file.
3-23- .
RESPONSE
The Grand Jury should respond to this recommendation.
RECOMMENDATION #4
Section 933 (c) of the California Penal Code be quoted Qn a separate
page at the beginning of each Grand Jury report.
RESPONSE
The Grand Jury should respond to this recommendation.
RECOMMENDATION #5
A copy of each report be sent to the responsible official of the
subject jurisdiction or agency.
RESPONSE
The Grand Jury should respond to this recommendation.
RECOMMENDATION #6
Future grand juries follow up to ensure all appropriate actions have
been taken or that promised studies have been completed.
RESPONSE
The Grand Jury should respond to this recommendation.
RECOMMENDATION #7
The individual report titles be entered on the County' s response
document to identify the responses applying to each separate report.
RESPONSE
This recommendation has been implemented.
"SECURITY IN CONTRA COSTA COUN'T'Y SUPERIOR, MUNICIPAL AND JUVENILE
COURTS" (Page 165)
RECOMMENDATION #1
The County Supervisors appoint a security manager to have overall
authority and responsibility for security in all court facilities
under County jurisdiction. Security includes, but is not limited to,
the establishment of a safe environment, prevention of criminal
activity, and preparation for fire, bomb, hostage, earthquake, and
medical emergencies.
-24-
RESPONSE
The County Board of Supervisors , in cooperation with the Superior
Court Judges, Municipal Court Judges, and the Sheriff, has created by
law a Court Services Division within the Sheriff ' s Department with
specific responsibilities for security in all court fac.s.-.ities under
County jurisdiction.
RECOMMENDATION #2
The security Tanager make an immediate survey of existing security
arrangements and develop a plan of action for improvement, keeping in
mind that security problems are likely to increase 'rather than
decrease.
RESPONSE
A security survey and plan of action containing short- and long-term
improvements is being developed.
RECOMMENDATION #3
Because of his interest and expertise 'in security matters, the person
A
ppointed be County Marshal Rodger L. Davis .
RESPONSE
Marshal Davis was appointed.
RECOMMENDATION #4
A• person regularly employed in each courthouse be appointed , to be
responsible for emergency procedures in the building,a and for seeing
that those using the building are aware of procedures. Where
practical, drills for various emergencies should be initiated.
RESPONSE
A Court Security Sergeant has been assigned to each court facility
with responsibility for bailiff and security staffing, emergency
procedures, and training of judges, referees, clerks, court reporter,
and all other tenants of the.-court facility.
Each of the Clerk' s Offices in the four Municipal Court Judicial
Districts has a designated safety coordinator who is an active member
of a Countywide Municipal Courts ' Safety Committee.
RECOMMENDATION #5
Judges , referees , clerks, court reporters, and other employees receive
special training for courtroom emergencies. Judges, referees, and
prosecutors, who may be specifically targeted for threat, should be
trained for emergencies that may occur out of court.
-25-
RESPONSE
Please see response to Recommendation #4.
RECOMMENDATION #6
The security manager be consulted before any court construction or
remodeling is planned.
RESPONSE
We concur with this recommendation. Such consultation is routinely
sought from all user departments and servicing agencies with respect
to any construction or remodeling.
RECOMMENDATION #7
Courtroom assignments be made on the basis of security rather than
judges ' seniority.
RESPONSE
Security is a major consideration when assigning high risk cases. In
such instances, additional security is provided and a more secure
courtroom assigned, if necessary.
The Municipal Courts in Contra Costa County are very aware of the need
for an effective approach in addressing security issues as they
pertain to the courts. The courts have been taking a very active
role. In addition, the Clerk' s Office is supporting that commitment
through the establishment of a Countywide Safety Committee which
provides an ongoing network of communication.
RECOMMENDATION #8
Immediate action be taken to improve security arrangements for the
high-risk family and juvenile courts.
RESPONSE
A security survey of all family law and juvenile courts has been
completed. Several changes are in the process of implementation.
RECOMMENDATION #9
The construction of a high-security courtroom in the A.F. Bray Courts
Building not be delayed or eliminated.
RESPONSE
That decision will be made by the Superior Court.
-26-
RECOMMENDATION #10
AL,, permanent metal detector be installed at the entrance of the A.F.
Bray Courts Building to be manned in high-risk situations and for
random checks .
RESPONSE
A permanent metal detector may not be the long-term solution but is
being considered as an alternative.
RECOMMENDATION #11
Bailiffs and transportation officers in all court facilities patrol
public areas when not otherwise busy.
RESPONSE
This recommendation has been instituted.
RECOMMENDATION #12
Signs notifying visitors that they may be subject to search, such as
are posted in municipal courts, be posted at superior and juvenile
courts.
RESPONSE
Signing of the respective courts is under discussion.
RECOMMENDATION #13
Occasional random searches be conducted.
RESPONSE
Random searches are currently being done.
RECOMMENDATION #14
All bailiffs within a courthouse be equipped with two-way radios
finking them with each other and a central station.
RESPONSE
The use of portable radios is being expanded.
RECOMMENDATION #15
All vehicles used for the transportation of persons in custody be
equipped with emergency radios .
RESPONSE
all vehicles are fully equipped with emergency equipment, cages, and
radios.
-27-
RECOMMENDATION #16
Bailiffs be consulted on additional equipment and methods they feel
would enhance their ability to control emergencies.
RESPONSE
Facility sergeants hold monthly meetings with bailiffs to discuss
training and security strategy.
RECOMMENDATION #17
All court bailiffs and security officers attend the special court
security schools now attended by Marshal' s deputies, or an in-county
school be established to provide such training.
RESPONSE
The 1988-89 training schedule includes a requirement for all court
security personnel to attend such a school.
RECOMMENDATION #18
Fire alarms be installed in the Contra Costa County Courthouse and any
County court facility that lacks them. The wooden module adjacent to
the court at Juvenile Hall should be inspected for fire safety.
RESPONSE
Fire safety requirements are being addressed in individual facility
remodels. All court buildings are routinely inspected by the fire
district having jurisdiction.
RECOMMENDATION #19
Court bailiffs conduct regular emergency drills for bomb, hostage,
building evacuation, and similar events. Bailiffs be reassigned other
activities after five years in the courts to avoid complacency.
RESPONSE
The facility supervisor is required to hold such exercises regularly.
Complacency can be dealt with in other ways than transferring.
RECOMMENDATION #20
The Sheriff ' s Department appoint a supervising bailiff to work in the
courthouse. Bailiffs should hold regular meetings.
RESPONSE
The Superior Court has a facility sergeant who is required to hold
monthly bailiff meetings.
-28-
RECOMMENDATION #21
When the new A.F. Bray Courts Building is operational, the family
courts be permanently moved out of the crowded ground floor area of
the old courthouse to the new facility.
RESPONSE
Both family law departments have been moved to the second floor of the
old courthouse, greatly improving general security.
RECOMMENDATION #22
Space be provided in the old and new courthouses as a haven for
litigants and witnesses who fear for their safety while awaiting court
appearances.
RESPONSE
Allocation of space is determined after consultation with users.
General Services will alter space as needed.
RECOMMENDATION #23
The court in the Martinez Veterans Building be permanently abandoned.
RESPONSE
The Veterans Building is no longer being used by the Superior Court.
RECOMMENDATION #24
Public and employees ' entry to the County courthouse be restricted to
the main doors on Court Street or the handicapped entrance on Main
Street.
RESPONSE
Closing the entrance on Ward Street would provide to be a great
inconvenience to both the public and employees since this is the main
entrance/exit between the two courthouses. Such action would pose
serious problems during inclement weather.
RECOMMENDATION #25
To avoid the general public mixing with persons in custody, the Ward
Street door of the County Courthouse be reserved for use by Sheriff ' s
deputies escorting prisoners and form court.
RESPONSE
It is unclear how this would eliminate "mixing" once inside the door
since there are no security corridors in the building and prisoners
must be moved through public hallways.
-29-
RECOMMENDATION #26
The two ground-floor doors on Court Street and the door in the County
Clerk' s Office be secured for emergency exit only. Exit alarms be
installed on these doors .
RESPONSE
Recommendations 24, 25 , and 26 are all being considered as important
recommendations in an overall security plan currently being developed
for the old courthouse and the A.F. Bray Courts Building.
RECOMMENDATION #27
A bailiff be assigned to each juvenile court.
RESPONSE
Recommendations 27 through 36 will be reconsidered together.
RECOMMENDATION #28
The bailiffs concentrate on the security and safety of the court and
not be asked to perform duties which routinely take them away from
their courtrooms.
RECOMMENDATION #29
Probation officers at Juvenile Hall who respond to courtroom
emergencies receive specific training in handling such emergencies.
They should not, however, be expected to do the work of a bailiff or
to replace a bailiff .
RECOMMENDATION #30
An emergency buzzer be installed directly from the West County
juvenile courtroom to the E1 Cerrito Police Department in the same
building. E1 Cerrito Police be requested to provide immediate
response.
RECOMMENDATION #31
In consultation with the referee, the West County juvenile court be
remodeled, in particular to separate males and females in the court
holding facility. The ceiling needs attention, as tiles falling into
the heads of those using the courtroom does not promote general
health, safety, respect to the court, or the overall dignity of the
proceedings.
RECOMMENDATION #32
The receptionist at Juvenile Hall court be provided with an emergency
buzzer or intercom and a floor-to-ceiling partition that includes
bullet-resistant glass .
-30-
RECOMMENDATION #33
No armed officer, other than the bailiff on duty, be permitted to
enter the juvenile court, the offices or adjacent hallways at Juvenile
Hall except in response to emergency. Weapons lockers are provided
and should be used.
RECOMMENDATION #34
The traffic patterns at each juvenile court be analyzed and arranged
so that the re-feree and bailiff have absolute control over who enters
the court and who has direct contact with persons in custody.
RECOMMENDATION ##35
The roving juvenile court referee be provided with adequate, permanent,
and secure court space in each of the three locations he visits each
week. Further, he should be provided with a clerk and bailiff .
RECOMMENDATION ##36
Ifmicrophones accessible to defendants in any court remain in use,
they be equipped with lightweight plastic stands.
RESPONSE
We concur with the concerns of the Grand Jury for the safety of the
court, staff and citizens. Recommendations 27 through 36 should be
considered in their entirety to provide a safe environment. We will
continue to work with the courts and relevant departments and agencies
to make appropriate corrections.
RECOMMENDATION ##37
With the merger of the Marshal' s Office and Sheriff ' s Department, the
standards of security consciousness, training, and equipment now used
in municipal courts be adopted as the minimum standards acceptable for
all Contra Costa County court facilities.
RESPONSE
We concur with this recommendation.
RECOMMENDATION #38
Every effort be expended by county administrators, judges, and those
concerned with court security to ensure that overall court security is
enhanced, not diluted, when two departments merge.
RESPONSE
With the continued cooperation of the Superior Court bench and the
municipal court bench, a Countywide security plan will become a
reality.
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In accordance with Penal Code Section 933 , the Sheriff ' s comments are
attached as Attachment B.
"THE DELTA MUNICIPAL COURT" (Page 181)
RECOMMENDATION #1
Activities not directly related to the Delta Court not take place in
the overcrowded building. The methadone clinic should be moved to
other quarters to free space for court uses.
RESPONSE
The Health Services Department, in conjunction with lease management,
is exploring several options for the relocation of the Methadone
Clinic. The relocation of this clinic is a priority.
RECOMMENDATION #2
Until new quarters can be found for the clinic, security be provided
for the building beginning at the hour the clinic opens. During the
day, deputies should patrol the public area of the building when not
otherwise busy.
RESPONSE
Relocation of the clinic is imminent. The deputies on duty patrol all
public areas.
RECOMMENDATION #3
Safe, private space be provided for defense attorneys and prosecutors
to confer with clients, victims, and witnesses. Ample private space
should be provided for judges ' chambers.
if necessary, temporary modules should be leased and placed at the
rear of the courthouse in a fenced area to provide storage, meeting
space, or employee break area until Phase One is complete.
RESPONSE
The General Services Department is working with the Court on an
interim remodel of the facility.
RECOMMENDATION #4
Courthouse employees make a concerted effort to remove all unnecessary
files and redundant storage from the building.
RESPONSE
Records destruction is done continuously to remove inactive files as
permitted by Government Code Sections 71007 , 71008 and 71009 .
-32-
Temporary arrangements have been made to utilize the gardener' s shed
for additional storage space pending completion of the proposed Phase
I remodeling.
Additional storage space is being coordinated by the Muni(Apal Courts
Administration for use by all four judicial districts.
RECOMMENDATION #5
As part of Phase One construction, a sally port of 12 foot high
cyclone fence sides, with roof and locked gates, be erected between
the courthouse and the Pittsburg Police Department so that prisoners
can be delivered to either building in a secure manner.
RESPONSE
Preliminary designs and estimates to accomplish this work have been
provided.
RECOMMENDATION ##6
Phase One remodeling include see-through panels on courtroom railings
to discourage friends and relatives from making physical contact with
those in custody.
RESPONSE
Phase One construction can be modified at additional cost.
RECOMMENDATION #7
High priority be placed on all aspects of Phase One remodeling in an
effort to decrease the one-year estimated construction time.
RESPONSE
Construction has begun on this project and it is to be completed,
under the terms of the contract by February, 1989 .
RECOMMENDATION #8
Plans for improvement to the existing building beyond Phase One be
abandoned.
RESPONSE
There are no current plans for remodeling this building beyond Phase
One. A replacement facility is under consideration.
RECOMMENDATION #9
An immediate decision be reached to construct new court facilities so
that planning, land acquisition, and construction can begin as soon as
possible to meet short- and long-term needs in East County. Every
-33-
effort should be expended to reduce the three-to-five-year span
estimated for completion of the new courthouse.
RESPONSE
Proposals are under consideration for a new facility at a new
location.
"LIVING CONDITIONS AT JUVENILE HALL" (Page 191)
RECOMMENDATION' #1
The interior maintenance work recommended in the Building Inspection
reports be performed.
RESPONSE
Minor items will be corrected within the next 90 days, using
maintenance funds allocated to the building. Major renovation of the
shower rooms will be done as part of a series of projects funded with
Proposition 52 funds.
RECOMMENDATION #2
A sequential plan of repairs to the roof be developed immediately, to
be followed by a schedule of ongoing, frequent inspections to locate
future deterioration.
RESPONSE
The roofs are inspected annually and repaired as necessary. In fiscal
year 1989-900, General Services anticipates requesting plant
acquisition funds to replace the roofs.
RECOMMENDATION #.3
An earthquake preparedness review be performed.
RESPONSE
An earthquake (disaster) evacuation plan is posted in each living unit
and on bulletin boards in strategic areas of the building. On July
21, 1988 Federal and State representatives conducted an on-site
inspection of the Juvenile Hall. Storage of emergency supplies at the
hall and the use of the kitchen and sleeping facilities by members of
the County Office of Emergency Services in the event of a major
disaster was approved.
RECOMMENDATION #4
Juvenile Hall staff:
a. Record air temperatures in the communal and sleeping areas during
daily periods of temperature extremes.
-34-
b. When temperatures reach excessive levels, develop alternative
routines , such as transferring minors to the air-conditioned
Monticello unit.
C. Purchase ice machines with ample capacity for all minors and
staff.
RESPONSE
a. A procedure for recording air temperatures will be in place prior
to the slimmer of 1989 .
b. The air conditioned unit is currently utilized during summer heat
spells ; however, only 20 residents may participate due to the
unit rated capacity. The three living units are able to
participate on a shared rotation schedule.
C. Purchasing additional ice machines is not necessary as . Pride
House and Lion' s Gate now provide their own ice. The living
units are furnished ice upon request. Authorization to purchase
ice during mechanical failure of ice machines is approved.
RECOMMENDATION #5
The process of purchasing new, durable furniture for communal living
areas be continued.
RESPONSE
Authorization to purchase new (Modu-Form) durable furniture has been
approved and purchase orders have been requested.
RECOMMENDATION #6
The multicolored materials , which partially or totally cover the
interior safety glass partitions and windows, be removed to enable
staff to observe minors clearly at all times.
RESPONSE
The multicolored material covering glass partitions and windows was
established as the outcome `of the County' s affirmative action survey
when living units began coed staffing. The multi-colored material
enhances the privacy of the residents, but has not compromised the
need for security. Approval was also obtained from the California
Youth Authority, an agency responsible for annual inspection of the
Juvenile Hall.
RECOMMENDATION #7
A project be developed for minors to learn about. nutrition and then to
help plan their daily menus .
-35-
RESPONSE
Juvenile Hall residents learn about nutrition when attending the
Health Science curriculum, which provides a nutritional unit several
times during the school year.
The meals served meet or exceed dietary requirements as set by the
California Youth Authority Standards, the State of California
nutritional requirements and the national guidelines. All meals are
approved by the County' s registered dietician - M.P.H. Nutritionist.
RECOMMENDATION #8
The "Juvenile Hall Five-Year Maintenance and Equipment Schedule" be
revised to be made comprehensive and prioritized, and to include
recommendations made by all inspecting agencies.
RESPONSE
We concur with this recommendation.
"THE EAST COUNTY RAPE CRISIS UNIT" (Page 199)
RECOMMENDATION #1
The County immediately terminate the existing contract with the ECRCU
and select a qualified organization to provide these services.
RESPONSE
The contract was terminated. Negotiations are underway to provide
services to East County.
RECOMMENDATION #2
The District Attorney' s Office establish adequate procedures to
monitor the finances of the other rape crisis centers the County has
placed in that office' s budget.
RESPONSE
The District Attorney' s Office has established procedures to improve
financial monitoring of the County contract for the Rape Crisis Center
of West Contra Costa, which provides services in West and Central
County. These improvements are built into the agency' s contract with
the County for fiscal year 1988-89 .
In accordance with Penal Code Section 922 , the District Attorney' s
response is attached as Attachment C.
-36-
RECOMMENDATION #3
The Board of Supervisors allocate a portion of rape crisis contract
funding to the District Attorney' s Office to cover the costs of
monitoring the contracts.
RESPONSE
Please see our response to Recommendation #6 .
RECOMMENDATION #4
Standard service contracts with rape crisis centers be modified to
explicitly require that the County have access, on demand, to all of
the centers ' financial records regardless of funding source.
RESPONSE
The contracts have been modified as recommended.
RECOMMENDATION #5
The County require that the rape crisis centers receiving County
funding meet the same standards as those described in the State ' s
Office of Criminal Justice Planning document for rape crisis centers .
RESPONSE
The County requires the contractors to meet OCJP standards .
RECOMMENDATION #6
The County develop a program for monitoring the performance and
quality of service provided by rape crisis centers throughout the
County.
RESPONSE
It is the District Attorney' s intent to jointly monitor this program in
cooperation with the city funding agencies involved, as well as with
the staff of the State Office of Criminal Justice Planning. This
coordinated approach to monitoring should be extremely beneficial to
the funding agencies and to the Rape Crisis Center itself. In
addition, the agency will continue to submit its detailed progress
reports as required by the State, but modified so as to clearly
identify services provided in both west and central County. A
requirement for an independent audit by a Certified Public Accountant
will be included in the contract. This audit will cover not only
County funds, but the total funding of the agency. This will give us
a total fiscal picture that we have lacked in the past.
RECOMMENDATION #7
The County explore the option of contracting all rape crisis services
through one agency for the purpose of improved accountability,
administration, and service delivery.
-37-
RESPONSE
We concur with this recommendation and presently contract with one
agency.
"HERCULES MEASURE All (Page 225)
There were no recommendations in this report.
-38-
ATTACHMENT A
0 onurca Caata %'.-'s'oun
EIE�cIVED
***********************************
Av U 181988
* *
* COUNTY CLERK INTRODUCTION * ` ffi► Of
t
THE ATTACHED ANSWER TO THE 1987-88 GRAND JURY REPORT ON THE
OPERATION OF THE COUNTY CLERK' S COURT OPERATION WAS WRITTEN BY
JAMES R. OLSSON, COUNTY CLERK AND REPRODUCED ON THE DATA GENERAL
COMPUTER USING WORD PROCESSING AND A LASER PRINTER.
ALL OF THIS COMPUTER EQUIPMENT WAS PURCHASED USING CLERK AUTO-
MATION FEES, PAID FOR BY USERS WHEN COURT DOCUMENTS ARE FILED.
A COPY OF THE FEE SCHEDUES IS ATTACHED AT THE END OF THIS REPORT.
l
THE COUNTY CLERK ' S DEPARTMENT
GRAND JURY SUMMARY
The County Clerk-Recorder is an elected official who has
held the position for 15 years. He is dependent on the -Board of
Supervisors for his budget and the space allocated to his
department, but as an elected official, he controls the internal
management of his office.
What started as an investigation regarding lost or misfiled
court documents led to the discovery of a series of other long-
standing problems in the office of the County Clerk. Among these
are the ever-increasing volume of documents being filed, the
tendency to keep them far beyond statutory requirements, and the
need to shuttle them back and forth to a growing number of
courts. Added to this are a severe space problem, poor
organization, insufficient staff, a sluggish and overloaded
computer , and excessive backlog. This results in inefficient
service to the courts and the public and in low staff morale.
The Grand Jury' s recommendations include the need for a
study on how to improve management policies and procedures to
-services better provided by other county departments, and
delegation of responsibility and authority within the department .
Improvements in these areas must be implemented by the Clerk-
Recorder with the full support of the Board of Supervisors, the
County Administrator, and the judicial system.
This investigation was begun on July 21, 1987, and completed
on April 26, 1988 .
COUNTY CLERK'S SUMMARY
I AM DEPENDENT ON THE BOARD. OF SUPERVISORS (COUNTY ADMINISTRATOR)
FOR BUDGET WHICH INCLUDES NUMBER OF EMPLOYEES WITHIN THE OFFICE;
OFFICE SPACE (OVERCROWDING, FILES ON THE FLOOR) . THE FILE SPACE
HAS BEEN PARTIALLY SOLVED WITH THE USE OF THE FORMER JURY
`ASSEMBLY ROOM.
1
FINDINGS
Function of the County Clerk-Recorder
1. The function of the County Clerk-Recorder is to:
a. Provide clerical service to the courts and maintain
court records.
b. Maintain records such as vital statistics, real estate
legal descriptions and transactions, and fictitious
business names.
c. Operate the County election system.
This report deals only with the court-related function of
the Clerk-Recorder .
CLERK'S RESPONSE
1 . THE FUNCTION OF THE COUNTY CLERK-RECORDER IS AS STATED.
Court-related Workload/Services
2. Since 1983 the court-related workload has increased by 60
to 80 percent in the County Clerk ' s office with no increase
in staff. A 1987 study by the State Judicial Council
recommended Contra Costa County increase its superior court
judges from 19 to 27 . If implemented, this would greatly
increase the workload.
3 . There are approximately 15,000 active court files, each of
which averages 1 . 5 inches in thickness. This equates to
approximately 1, 875 linear feet of shelf space. New cases
are added .at the rate of 1,700-1,800 per month.
Along with adding new files and removing old ones,
approximately 500-60'0 files are located, pulled, and
refiled daily for court activity.
In addition, because of limited storage space, whole
sections of files must be moved several times in order to
keep the most active files readily accessible.
4. There is a Register of Actions which is a listing of
documents in each file. Registers of Actions have been
only partially transferred to the computer .
A two-day turnaround time between receipt and entering of
documents is considered desirable by department supervisors
in order to perform services in a timely manner . Computer
2
data entry backlog actually ranges anywhere from two weeks
to three months.
5. Court filing system clerks spend about four hours daily
picking up, sorting, and distributing mail.
The General Services Department provides mail pickup and
delivery service to county departments, but this service in
not utilized by the Clerk ' s office.
CLERK'S RESPONSE
2. SINCE 1983 WE HAVE HAD A 60-80 PERCENT INCREASE IN WORKLOAD
WITH NO INCREASE IN STAFF, BUT HAVE MANAGED TO KEEP UP, AS
WELL AS POSSIBLE, USING OVERTIME AND TEMPORARIES WHICH WE
TRAIN AND THEN LOSE TO OTHER DEPARTMENTS BECAUSE WE AREN'T
ALLOWED TO HIRE PERMANENT EMPLOYEES. IF WE HAD THE
WORK FORCE WE NEED, WE WOULD HAVE LESS OVERTIME AND OTHER
INTERNAL PROBLEMS WOULD BE SOLVED. WE ARE DEPENDENT ON THE
BOARD FOR ALLOWING NEW POSITIONS.
3. IF WE WERE ALLOTTED MORE SPACE BY THE BOARD, WE WOULD NOT
HAVE TO CONTINUE MOVING FILES. "
4 . REGISTER OF ACTIONS ARE COMPUTERIZED FOR ALL NEW CASES AND
OLD CASES THAT ARE STILL ACTIVE. THIS BECAME POSSIBLE
WHEN THE DATA GENERAL MV15000 WAS ACQUIRED WITH USER FEES
FOR THE RECORDER RECORDS. THE DATA GENERAL MV10000 WAS
THEN MOVED TO THE COURTHOUSE FOR DAILY CALENDARS, CASE
INQUIRIES AND INPUT. DOCUMENTS ARE PROCESSED DAILY WITH
LITTLE, IF ANY, BACKLOG.
5 . WE UTILIZE GENERAL SERVICES TWICE DAILY. THEY DELIVER
COURT DOCUMENTS FROM PROBATION, THE DISTRICT ATTORNEY,
COUNTY COUNSEL, PUBLIC DEFENDER, COUNTY AUDITOR, COUNTY
ADMINISTRATOR AND OTHERS AS WELL AS PICK UP FOR DELIVERY
OUR DOCUMENTS TO THESE DEPARTMENTS. DOCUMENTS FILED IN THE
RICHMOND OFFICE ARE CARRIED TO THE MARTINEZ OFFICE DAILY BY
THE JUVENILE CLERK (STATIONED IN MARTINEZ) WHO COVERS THE
HEARINGS. DOCUMENTS .DELIVERED TO MEET LEGAL DEADLINES ARE
MAILED BY DEPUTY CLERKS AND CERTIFIED BY SAME. WE ARE ABLE
TO PROCESS MAIL UP TO 5 PM DAILY.
WE ARE RESPONSIBLE FOR OVER 200 LEGAL FORMS. THEY ARE
PRINTED BY CENTRAL SERVICE, A DIVISION OF GENERAL SERVICES,
AND ARE SOLD TO ATTORNEYS AND THE PUBLIC. CENTRAL SERVICE
IS OFTEN OVER-LOADED AND UNABLE TO MAKE TIMELY DELIVERY.
Organization
6. Clerks become specialized in handling particular kinds of
cases, and there is little cross-training between jobs.
Cross-training is done primarily as a result of personnel
3
transfers.
7. Portions of the daily court calendar are prepared by the
County Clerk ' s office and portions by the Court
Administrator ' s office, utilizing the same computer data
base.
8. The planned addition of new courts will increase the
workload in the County Clerk ' s office. County Clerk
management has started planning for the new courts and is
requesting additional help in all categories.
9 . An outside operational audit of the County Clerk ' s office
was made in 1980 at the request of the County
Administrator . Of the 53 recommendations made in this
audit, a significant number have not been implemented.
CLERK'S RESPONSE
6 . WHEN WE FIRST WENT ON-LINE OUR CLERKS WERE SPECIALIZED. AS
WE BECAME ADEPT IN THE USE OF THE DATA ENTRY UNITS, STAFF
HAS BEEN ROTATED TO OTHER FUNCTIONS TO CROSS-TRAIN.
7 . THE COURT ADMINISTRATOR CALENDARS TRIALS AND CIVIL MATTERS.
THE COUNTY CLERK CALENDARS PROBATE, FAMILY LAW, JUVENILE
AND CRIMINAL. ALL CASE FILES ARE COUNTY CLERK RECORDS
WHICH ARE UPDATED DAILY.
8 . REQUESTS FOR POSITIONS TO COVER THE ADDITIONAL COURTS ARE
ON FILE.
9. AN OPERATIONAL AUDIT WAS DONE BY TWO MEMBERS OF THE
ADMINISTRATORS OFFICE IN 1980 AND 53 RECOMMENDATIONS WERE
LISTED. SEVERAL OF THESE WERE IMPLEMENTED, SOME WERE NOT
ALLOWED BY LAW AND SOME WERE TOO EXPENSIVE AND OF NO REAL
VALUE.
Personnel
10 . Excessive workloads have resulted in:
a. Use of temporary .-clerks, who sometimes work two or
three years as temporaries because there is no
authorization to hire permanent employees. There
currently are 11 temporary clerks.
b. Complaints from the clerks about the amount of overtime
and a feeling of burnout because they see no end to the
trend of aft ever-increasing workload.
11. There are no written performance standards for personnel,
no initial or continuation training programs, few written
4
job procedures, and very little cross-training.
12. A personnel evaluation system, such as is in place in
several county departments, has not been implemented.
13 . Supervisors frequently do clerical work and have little
involvement in such normal supervisory functions as hiring,
training, motivating, and evaluating .
CLERK'S RESPONSE
10 . EXCESSIVE WORKLOADS:
A. WE HAVE BEEN FORCED TO USE TEMPORARIES BECAUSE OF RAPID
WORKLOAD INCREASES. A COURT CLERK HAS BEEN DESIGNATED
FOR EACH NEWLY ESTABLISHED COURT BUT NO PROCESSING
STAFF FOR THE INCREASED WORKLOAD. TWO PERMANENT
POSITIONS- WERE RECENTLY ADDED IN LIEU OF TWO
TEMPORARIES.
B. OVERTIME HAS BEEN GREATLY REDUCED SINCE WE HAVE BECOME
MORE ADEPT WITH OUR AUTOMATION. A TWO YEAR DELAY IN
APPROVAL FOR AUTOMATION, EVEN THOUGH USER FEES WERE -
AVAILABLE, KEPT US CONSISTENTLY BACKLOGGED REQUIRING
OVERTIME.
11. JOB PROCEDURE MANUALS ARE AVAILABLE AND AS CHANGES ARE MADE
BY THE JUDICIAL COUNCIL MEMORANDUMS ARE DISTRIBUTED TO ALL
PERSONNEL. WE HAVE A CONTINUING TRAINING PROGRAM.
12 . EVALUATIONS ARE DONE ON A CONTINUING BASIS UNDER THE MERIT
SYSTEM. WE HAVE TOO HEAVY A VOLUME TO COMPLETELY EVALUATE
EACH STAFF PERSON MORE OFTEN THAN WHEN THEY ARE DUE MERIT
INCREASES. MOST OF OUR STAFF ARE LONG TERM EMPLOYEES AT
THE TOP PAY STEP WHO HAVE WORKED IN SEVERAL DIVISIONS.
13. OUR SUPERVISORS ARE WORKING SUPERVISORS AND OFTEN COVER
ILLNESSES AND WORK ALONG WITH STAFF TO KEEP CURRENT.
THEIR OPINIONS ARE SOUGHT (ESPECIALLY IN TRAINING AND
EVALUATING) . WE ARE LIMITED BY THE BOARD AND THE COUNTY ' S
PERSONNEL LISTS WHEN HIRING.
:Physical Layout/Working Conditions/Security
14 The County Clerk has a number of separate locations under
his control, some of. which are not in Martinez. The court
filing system is spread out among eight locations.
Martinez locations are the basement of the Contra Costa
County Courthouse, the coffee room and an office in the
Martinez Detention Facility, the basement of the U.S. Post
Office on Court Street, a downtown location for
micrographics, a warehouse on Shell Avenue, and Juvenile
5
Hall; locations outside Martinez are on Stanwell Drive in
Concord and in a Richmond office.
15. The main office is in the Courthouse basement and is
overcrowded. File space is so inadequate that case folders
are stacked on the floor and in heavy portable files.
When a shooting occurred recently in a nearby hallway, a
clerk seeking safety could not duck under her desk because
the kneehole was stacked with files.
16 . Before documents are microfilmed, shortage of storage space
forces the moving of whole sections of active files several
times, both within the main office and from one office
location to another .
17 . At least 50 different statutes specify varying document
retention times. In addition, judges occasionally call for
documents which have passed their scheduled obsolescence
date. As a result, there is a tendency to retain original
files longer than legally required, thus adding further to
space problems.
18 . For a variety of reasons, files can be removed from the
main office without permission and not be returned. For
example:
a. A charge of 50 cents per copy (a State-established fee)
tempts customers to take documents elsewhere for less
expensive duplication.
b. A sign-out system has been used but was not fool-proof.
C. Stamping files "Do Not Remove" has not been effective.
There is no assurance that particular documents will
not be removed from a file before it is returned to the
office.
19 . Another area of concern involves one of the entry doors
into the office which.-is marked which is marked "Employees
Only" but is not locked and is often left ajar. Just
inside this door is a completely unsupervised area filled
with open and bulging filing shelves--an invitation for
malicious .mischief or deliberate theft.
20 . Those files which are lost and have not been microfilmed
can only be reconstructed by contacting all attorneys
involved and requesting duplicates of their documents.
There is no assurance that all such documents will be
provided.
21 . Since there is no system for checking the completeness of
each file, missing documents do not come to anyone 's
6
attention until they are called for by a judge. the un-
availability of such documents interferes with the
efficient operation of the courts.
CLERK'S RESPONSE
14 . WE USE SEVERAL LOCATIONS FOR STORING FILES. THERE ARE NO
FILES AT JUVENILE HALL, STANWELL DRIVE OR THE SHELL, AVENUE
WAREHOUSE. THE BREAK ROOM HAS BEEN MOVED FROM THE
MICROFILM SECTION. THERE ARE NO FILES STORED IN RICHMOND.
15. THE FORMER JURY ASSEMBLY ROOM HAS NOW BEEN ASSIGNED TO USE
AS A FILE ROOM. WHEN TWO TO TEN FOLDERS ARE REQUIRED FOR
ONE CASE WE KEEP THE LATEST FOLDER ON THE SHELF AND STORE
THE EARLIER ONES. FILES ARE SEVERELY OVERCROWDED AND WE
TRY TO DO THE BEST WE CAN WITH WHAT WE HAVE.
16 . DOCUMENTS OLD ENOUGH FOR MICROFILMING ARE MOVED FROM ACTIVE
SHELVES TO THE MICROFILM SECTION OR 814 MAIN STREET TO
PREPARE FOR FILMING.
17 . THE "HOLD" FILES ARE EITHER STILL OPEN CASES OR CASES KEPT
BY ORDER OF THE COURT. STATUTES GENERALLY REQUIRE SAVING
FILES FOR FIVE YEARS AFTER A CASE IS CLOSED. AT ONE TIME
IT WAS TEN YEARS, THEN EIGHT AND NOW FIVE (BECAUSE OF THE
VOLUME) . FILES MUST BE AVAILABLE ON PAPER OR FILM AND MUST
BE IN OUR CONTROL.
18 . CASE FILES OTHER THAN JUVENILE AND ADOPTIONS ARE OPEN FOR
PUBLIC INSPECTION. EACH FOLDER HAS PRINTED ADMONITIONS
"PAPERS MUST NOT BE REMOVED FROM FOLDER. REMOVAL OF THIS
RECORD FROM THE CUSTODY OF THE COUNTY CLERK CONSTITUTES A
FELONY UNDER SECTION 6201 OF THE GOVERNMENT CODE." THE
THEFT, DESTRUCTION, FALSIFICATION OR REMOVAL OF ANY COURT
RECORD IS A FELONY PUNISHABLE BY STATE PRISON TERMS OF ONE,
TWO, THREE OR FOUR YEARS. THERE ARE FEW FOOLISH ENOUGH TO
PERPETRATE THIS KIND OF FELONY.
19. THE HALL SPACE PROBLEM HAS BEEN PARTIALLY SOLVED WITH THE
NEW SHELVING AND MOVE TO THE FORMER JURY ASSEMBLY ROOM.
MOST DO NOT WISH TO RISK PRISON TERMS AND THE ACT WOULD NOT
DESTROY THE RECORD.
20. REGISTER OF ACTIONS FOR OLDER CASES LIST ALL FILED
DOCUMENTS. COMPUTERIZED FILES, SINCE JANUARY 1988, COVER
ALL NEW FILINGS PLUS ALL OLDER CASES STILL ACTIVE. FILES
CAN BE RECONSTRUCTED FROM THESE RECORDS.
21. SEE #20.
Office Hours
7
22 . On July 1 , 1984 , the office hours in the County Clerk ' s
main office were changed so the office would close to the
public after 4 p.m. instead of 5 p.m.
23 . The Richmond office is closed from 12 noon to 1 p.m. ,
because there is only one legal clerk on staff. It is also
closed to the public after 4 p.m. , despite the fact that
staff is there from 8 a.m. to 5 p.m.
CLERK'S RESPONSE
22 . OFFICE HOURS WERE NEGOTIATED WITH THE UNIONS AND THE
PERSONNEL DEPARTMENT. (MANY DEPARTMENTS HAVE REDUCED
HOURS) . THE STAFF WORKS FROM 4 TO 5 P.M. TO PROCESS THAT
DAYS FILINGS. MOST COUNTIES USE THE SAME PROCEDURE.
23 . RICHMOND PROCESSES BETWEEN 4 AND 5 P.M. AND PREPARES
DOCUMENTS AND FEES FOR TRANSMITTAL TO MARTINEZ .
Computer System
24 . General Law statutes permit the County Clerk to do his own
computer purchasing without the approval of the County Data
Processing Department and without regard for compatibility
with the County computer system. County policy is for all
other departments to have compatible systems.
25 . The County Clerk ' s computer system is not compatible with
systems being used in other county departments.
26 . The Clerk ' s computer is also used by the Recorder and
Elections Departments, all under the supervision of the
Clerk-Recorder . It also serves the Court Administrator ' s
department . The present system cannot accommodate
additional terminals . The operation is very slow because
of a substantial computer overload. This is especially
acute at election time.
A new computer , delivered to the Elections Department , has
released additional capacity to the court system.
Clerks complain that adequate training on the computer is
not being provided. This causes errors and lost time.
CLERK'S RESPONSE
24. COMPUTER ACQUISITIONS HAVE BEEN MADE WITH PERMISSION OF THE
ADMINISTRATOR AND CENTRAL DATA PROCESSING. THE DATA
GENERAL COMPUTER EQUIPMENT IS COMPATIBLE AND LESS EXPENSIVE
TO OPERATE. THE SOFTWARE PROGRAMS ARE AVAILABLE AS THERE
ARE EIGHT OTHER COUNTIES USING THE SAME EQUIPMENT.
8
25 . THE COUNTY CLERK' S COMPUTER SYSTEM IS COMPATIBLE WITH OTHER
DEPARTMENTS BY USING AN INEXPENSIVE CONVERTER.
26 . THE DATA GENERAL MV10000 WAS FIRST ACQUIRED TO CONDUCT
ELECTIONS. THE RECORDER RECORDS WERE ADDED TO PROCESS
DAILY WORK AND WHEN THE CLERK WAS ADDED IT BECAME
OVERLOADED. WE HAVE SINCE PURCHASED (WITH USER FE-S) THE
DATA GENERAL MV15000 WHICH IS USED FOR ELECTIONS AND THE
RECORDER ONLY. THE MV10000 HAS BEEN MOVED TO THE
COURTHOUSE AND IS DEDICATED FOR USE BY THE CLERK AND COURT
ADMINISTRATOR. WE CURRENTLY HAVE 56 TERMINALS AND 4
PRINTERS ON LINE TO THE MV10000 WITH THE CAPABILITY OF
ADDING 116 MORE. ALL CLERKS WERE TRAINED BY THE SOFTWARE
COMPANY AND ARE FURTHER INSTRUCTED AS NEEDED OR AS CHANGES
OCCUR. THERE HAVE BEEN NO NEW REQUESTS FOR TRAINING AS
^� STAFF HAS BECOME ADEPT ON THE DATA ENTRY EQUIPMENT NOW IN
USE.
Microfilm Section - Equipment
27 . The Clerk is legally required to keep a copy of most
documents filed. Microfilm is used to make these permanent
records.
28 . The Clerk ' s microfilming work is done in two places, the
main office and at a location on Main Street . New,
speedier equipment has recently been purchased but is
under-utilized because of lack of personnel to operate the
machines.
29 . The Clerk ' s microfilming equipment is far superior to any
other in the County, but it is used exclusively by the
Clerk . Because there is such a need for microfilming in
other county departments, General Services would like to
assume responsibility for this equipment with the
understanding that the Clerk ' s requirements would have
first priority, but this suggestion has not been accepted.
CLERK'S RESPONSE
27 . ALL FILINGS ARE MICROFILMED AFTER CASE HAS BEEN CLOSED FOR
FIVE YEARS.
28 . WE APPRECIATE THE COMPLIMENT THAT WE HAVE GOOD MICROFILM
EQUIPMENT. THE UNITS WERE PURCHASED WITH MICROGRAPHIC USER
FEES WHICH ARE LIMITED TO THAT PURPOSE. THE EQUIPMENT IS
UTILIZED AS MUCH AS POSSIBLE.
29 . FOR SEVERAL YEARS FILMING WAS DONE FOR THE SHERIFF, CLERK
OF THE BOARD AND THE LIBRARY. COUNTY CLERK 'S FILM MUST BE
CERTIFIED AS A COMPLETE RECORD DUE TO LEGAL REQUIREMENTS.
MOVING FILES TO ANOTHER LOCATION FOR FILING WOULD CREATE
9
MORE RISK OF LOSS. DEPUTY CLERK CERTIFICATES ARE REQUIRED
ON ALL ROLLS OF FILM REQUIRING DEPUTY CLERKS TO DO THE
FILMING.
County Clerk-Recorder
30 . The Clerk-Recorder is an elected official. Elected
department heads are answerable to the Board of Supervisors
and the County Administrator only for their budget and
space allocation. In terms of internal operations of their
departments and implementation of their programs, elected
department heads are responsible only to the voters.
31. The present Clerk-Recorder has been the department head
since 1973. Examples of his management methods are:
a. Budgetary requests for his department are not
adequately substantiated by facts and figures.
b. There are no long-range plans, no mission statement , no
job or departmental goal-setting, and no measure of
performance.
c. There is no clear chain of command, and most decisions
must clear through him.
32 . Many of the people interviewed stated that this is one of
the most difficult departments to deal with, both by the
public and by other county departments.
CLERK'S RESPONSE
30. THE COUNTY ADMINISTRATOR, ALONG WITH THE BOARD OF
SUPERVISORS CONTROLS SPACE, BUDGET, STAFFING AND EQUIPMENT
FOR ELECTED OFFICIALS. THIS EFFECTIVELY REMOVES REAL
INDEPENDENCE.
31. A. BUDGET REQUESTS ARE FILED UNDER ALL CRITERIA
ESTABLISHED BY THE COUNTY ADMINISTRATOR STAFF AND AS
ADDITIONAL REQUESTS ARE MADE, THE MATERIAL IS PREPARED
BY MY ADMINISTRATIVE SERVICES OFFICER.
B. LONG RANGE PLANS, MISSION STATEMENT, GOAL SETTING AND
PERFORMANCE MEASURES ARE A PART OF THE BUDGET MESSAGE
AND OUR MEANS OF CATCHING UP AND REMAINING THERE. SEE
COPIES AT END OF THIS ANSWER.
C. OUR OFFICE CHARTS SHOW OUR CHAIN OF COMMAND WHICH IS
THE SAME IN MOST COUNTIES. SINCE I AM LIABLE FOR OUR
ACTIONS, DECISIONS ARE MY PREROGATIVE.
32. THE STATEMENT THAT WE ARE DIFFICULT TO DEAL WITH BY PUBLIC
10
AND DEPARTMENTS IS VAGUE. WE HAVE A FILE OF COMPLIMENTS
FROM THE PUBLIC, ATTORNEYS AND OTHER COUNTIES. OUR
GREATEST PROBLEM HAS BEEN THE DELAY IN ALLOWING US TO SPEND
OUR USER FEE AUTOMATION FUNDS TO ABSORB THE EVER GROWING
VOLUME OF WORK.
BECAUSE OF PAST TREATMENT AND EXCESSIVE CHARGES, WE HAVE
STRONGLY OBJECTED TO USE OF THE MAIN FRAME COMPUTER.
SOFTWARE HAS BEEN WRITTEN FOR OTHER COUNTIES AND IT
PERFORMS WELL. IT SHOULD NOT BE NECESSARY TO REDISCOVER
THE WHEPEL EACH TIME WE WISH TO ADD FUNCTIONS TO
COMPUTERIZATION.
�s
11
CONCLUSIONS
The 1987-88 Contra Costa County Grand Jury concludes that:
1. The physical resources for the court filing system are not
adequate.
a. The space devoted to court case files is not adequate
for the increasing case load, and this results in
excessively crowded working conditions in the Clerk ' s
off-ice.
b. Moving sections of files between different locations
results in a significant waste of time.
C. Even though lost or misplaced files can be
reconstructed, it is difficult, time-consuming, and not
always completely successful. It is inevitable that
files will be lost or misplaced when the volume and
frequent movement of paper is so massive and when
documents can so easily be removed from the office with
no record of who has them.
d. The present computer , used to maintain the Registers of
Actions, lacks the capacity necessary for effective use
of the system.
e. Equipment used to microfilm files is new and adequate
but is not fully utilized for other county tasks.
CLERK'S RESPONSE
1 . PHYSICAL RESOURCES ARE NOT ADEQUATE. OUR MICROGRAPHIC AND
AUTOMATION USER FEES ARE HELD UP SO THAT OUR PLANS CANNOT
PROGRESS.
a. WITH THE ASSIGNMENT OF THE FORMER JURY ASSEMBLY ROOM
FILE SPACE HAS FINALLY BEEN IMPROVED.
b. MOVING SECTIONS OF FILES MAY BE A WASTE OF TIME BUT
ALLOWS US TO PERFORM OUR FUNCTION.
C. THERE HAVE ACTUALLY BEEN FEW FILES LOST. A
VERIFICATION OF THE CASES LAST HEARING USUALLY PINS
DOWN THE COURT HOLDING THE FILE.
d. WITH THE DATA GENERAL MV10000 COMPUTER IN THE
COURTHOUSE ALL ACTIVE CASES ARE IN ON-LINE STATUS.
e. MICROFILM EQUIPMENT WAS PURCHASED USING MICROGRAPHIC
FUNDS FROM USER FEES. THE LAW LIMITS THE USE OF THESE
FUNDS.
12
2 . Use of human resources should be improved.
a. There are no documented work procedures detailing steps
necessary for maintaining case files.
b. Increased case loads due to expansion of the courts
have not been met with additional personnel or improved
work procedures. This has resulted in excessive use of
overtime and temporary employees, as well as increasing
work backlogs.
C. Inadequate initial, continuation, and cross-training
between and among tasks prevents effective use of
personnel in meeting work loads.
d. Employee morale is adversely affected by lack of
performance evaluations, lack of authority at the
supervisory level, too many cases of supervisors '
performing clerical work during peak needs, and a
general lack of communication. The absence of an
evaluation system also makes it difficult to fire
incompetent employees.
CLERK'S RESPONSE
2. INCREASED VOLUME - INADEQUATE STAFFING
a. THE STATUTES PRESCRIBE THE PROCEDURES REQUIRED TO
MAINTAIN CASE FILES.
b. REQUESTS FOR STAFFING TO COVER INCREASED VOLUME FALL ON
DEAF EARS.
c. STAFF PERFORM THEIR VARIOUS TASKS IN A PROFESSIONAL
MANNER. INCREASING VOLUME MUST BE PROCESSED IN A
TIMELY MANNER. OUR AUTOMATION IS SOLVING THIS PROBLEM.
d. THESE POINTS WERE ANSWERED UNDER 10 A AND B, 11, 12,
13 .
3 . Several areas of work procedures do not meet the demanding
requirements of expanding work loads.
a. The lack of statements of missions or goals hinders
effective use of personnel.
b. The multiplicity of statutes governing the retention of
records and the lack of clearly defined document-
destruction schedules result in retaining many files
too long. This adds to space problems.
13
c. Two different organizations preparing similar court
calendars causes scheduling problems.
d. Lack of modern information-tracking systems inhabits
budgeting, backlog tracking, and obtaining and
utilizing other information essential to opera,-ung a
cost-effective effort.
e. Services within this department often inefficiently
duplicate services available through other departments.
CLERK'S RESPONSE
3 . BUDGET AND STATEMENTS
a. MISSION STATEMENTS AND GOALS ARE SUCH AS TO PROCESS
COURT DOCUMENTS IN A TIMELY BASIS SO THAT THEY CAN BE
READILY LOCATED, FILED, PULLED FOR HEARINGS AND
REFILED.
b. RETENTION OF RECORDS IS COVERED UNDER 17 WITH FILMING
ALLOWED AFTER CASES ARE CLOSED FOR FIVE YEARS.
C. COURT CALENDARS ARE COVERED IN 7 FOR COURT
ADMINISTRATOR AND COUNTY CLERK USING CIVIL, FAMILY LAW,
PROBATE, CRIMINAL AND JUVENILE CASE INFORMATION FROM
THE COUNTY CLERK. THE SYSTEM WAS CHANGED SOME TIME
BACK FROM FORMER PROCEDURES.
d. OUR BUDGETING EFFORTS FOLLOW RULES ESTABLISHED BY THE
COUNTY ADMINISTRATOR BUDGETING SECTION AND OUR COUNTY
ADMINISTRATORS OFFICE PREPARING REQUESTS UNDER THAT
CRITERIA.
e. THE STATEMENT THAT SERVICES DUPLICATE OTHER DEPARTMENT
SERVICES IS NOT SPECIFIC AND HAS PREVIOUSLY BEEN
ANSWERED.
4 . The department needs"better leadership.
a. Sensitivity to motivation and to the needs of people
within the department is not adequate.
b. Too little use is made of expertise available outside
the department. One example is the computer selection
and implementation assistance available from the Data
Processing department.
c. Delegation of minor decision-making to lower management
has not been practiced. This inhibits the development
of skilled supervisorial and managerial talents at all
levels.
14
d. These conditions have existed for many years with
little significant progress toward correction.
CLERK'S RESPONSE
4 . STAFFING - EMPLOYEES
a. SENSITIVITY TO MOTIVATION AND NEEDS IS ACTUALLY
STRONGER THAN IN MOST DEPARTMENTS.
b. EXPERTISE AVAILABILITY, SEE 24, 26 . COURT NEEDS HAVE
BEEN INVESTIGATED BY MANY COMPANIES AND MANY COUNTIES.
SINCE THE SOFTWARE HAS ALREADY BEEN WRITTEN AND TESTED
THERE IS NO REASON TO START OVER. IN-HOUSE COSTS FOR
COMPUTER SERVICES ARE PROHIBITIVE.
c. WITH TURNOVER BY RETIREMENTS, NEW MANAGEMENT HAS BEEN
HIRED AND NEW STAFF MUST LEARN.
d. AN ANALYSIS IS OF SHORT TERM AND NOT NECESSARILY
ANYTHING BUT A BIASED STATEMENT.
15
RECOMMENDATIONS
The 1987-88 Contra Costa County Grand Jury recommends that:
1. A joint study of court filing tasks, work loads, and work
methods be undertaken immediately by the Clerk ' s d_,partment
and the County Administrator . Written mission and goal
statements should be made, modern job procedures formulated
and implemented, space needs identified and provided,
information systems created, and other needs identified.
Outside consultants should be considered to assist in this
task. The recommendations of this study should be speedily
implemented by the Clerk-Recorder .
CLERK'S RESPONSE
1. OVER RECENT� YEARS THE CLERK HAS REQUESTED STUDIES AND
ACTION. UNTIL OTHER DEPARTMENTS HAVE COMPLAINED OVER
LACK OF PROGRESS NO ACTION WAS SEEN. WE WERE FINALLY
GRANTED PERMISSION TO ACQUIRE A COMPUTER AND THE NECESSARY
ENTRY UNITS USING OUR AUTOMATION AND MICROGRAPHICS USER
FEES.
IT HAS TAKEN OVER TWO YEARS TO GET APPROVAL FOR AUTOMATION.
MANY COMPUTER COMPANIES HAVE WRITTEN SOFTWARE PROGRAMS TO
PERFORM THE CLERK AUTOMATION NEEDS.
2 . The Clerk-Recorder actively seek opportunities to use
services available through other departments and to provide
services to others where possible. Examples would be use
of mail pickup and delivery by General Services and shared
use of microfilm equipment by other departments.
CLERK'S RESPONSE
2. USING SERVICES BY OTHER DEPARTMENTS HAS BEEN COVERED UNDER
5, 7, 29.
WE USE GENERAL SERVICES MAIL PICKUP AND DELIVERY TO AND
FROM DEPARTMENTS.
WE HAVE ALLOWED CLERK OF THE BOARD USE OF OUR MICROFILM
EQUIPMENT AND HAVE DEVELOPED THEIR FILM.
3 . The Clerk-Recorder establish responsibilities and
authority for each supervisory group, to be implemented by
delegating both responsibility and authority to lower
levels.
CLERK'S RESPONSE
3 . RESPONSIBILITIES AND AUTHORITY BY GROUP HAS BEEN IN EFFECT
FOR SOME TIME. I DO NOT KNOW HOW MUCH MORE BREAKDOWN IS
NECESSARY SINCE WE ALREADY COVER COURTS, DOCUMENT
16
PROCESSING, FILING, CRIMINAL JUVENILE, CIVIL, FAMILY LAW
AND PROBATE.
COMMENTS
In spite of low morale, employees appear to be
conscientious and hardworking.
We applaud the fact that four of the supervisors in the
Clerk ' s, department have recently started meeting together
on a monthly basis to identify problems and find solutions .
' CLERK'S RESPONSE
REFERENCE IS MADE TO LOW MORALE. IF THIS WERE THE CASE, I
WOULD ASSUME SOME WOULD TRANSFER.
Government Committee:
Clyde Parkhurst, Chairman
Carol C. Carsten
Sara L. Ferreira
Mel Walsh
17
CONTRA COSTA COUNTY
COUNTY CLERK'S OFFICE
TO: PHTL BATCHELOR, COUNTY ADMTNISTRATOR
FROM: JAMES R. OLSSON, ,COUNTY RK - RECORDER - REGIRSTRAR OF VOTERS
SUBJECT: GOALS AND OBJFCTIVF.S FOR 1987-88 DATE: AUGUST 10, 1987
FISCAL YEAR
I have attempted to answer your requests by covering each of my three
departments listing progress for 1986-87 and current goals for 1987-88.
GOALS ACCOMPLISHED 1986-87
CLERK
1 . Have: plans approved for Court House remodel with additional space
assigned.
2. Automation for Criminal, Family Law, Civil, Probate, Law and Motion
processed into our computer. We are building case transactions,
minutes, etc. into memory as cases are filed and scheduled for. Court.
3. Staff has been trained to operate the data entry equipment.
Calendars are produced on a daily basis. We have been able to absorb
and stay current with a daily filing increase of over eight per cent.
4. We were able to improve rappor with the judges and their needs.
5. Our Automated Government Systems purchase has step by step been
slowly automated as equipment is acquired.
RECORDER
1. Our Recorders Information System, after several software changes,
has absorbed our property transaction increased volume .and improved
public services. Our revenues have increased dramatically with
heavy real estate transactions.
2. Part of our vital statistic automation has been accomplished.
ELECTIONS
1. Our Election Department has a very efficient automated system with
incorporated software updates to conform to new Election Laws.
2. Many counties look to us for procedure he�lp'.and are now using the
same voting system and processing developed by DFM.
3. Robert Delevati has done and excellent job in completely managing
the department.
4. We continue to process mailings for the Tax Collector and Assessor.
5. Our operating costs are low compared to other counties.
6. We have started billing jurisdictions in advance for unscheduled
elections.
Fiscal Management becomes difficult to control as we have been into
automation conversion, increased filings, the extended use of paupers
oaths for filings (which caused us to lose over $110,000 in filing fees)
increased, lengthy criminal case appeals and the use of four juvenile
hearing locations rather than two.
Any overexpenditures not budgeted were covered by unanticipated revenues
in my recording division.
GOALS FOR 1987-88
We wish to _acquire a Data General MV 15000 to process Recorder and
Election work, paid for by Recorder Automation Funds. The Data General
MV 10000, now in use, would be transferred to the Courthouse to the
computer space currently used by the Court Administrator. This equipment
will handle the processing for the Clerk's Office and Court Administrator
as well as the new Court needs called for by AB 3300 which has a start
up date of January 1, 1988.
We expect to increase Clerk Automation fees from $1.00 to $4.00 after a
meeting and Board hearing.
We want to start an automated Marriage License ,Program using Recorder
Automation Funds as requested by the State Health Services to remove
erasures, white outs and corrections as well as a means to prepare the
required letters on expirations and to prepare statistics.
1. Staff development and training has progressed with many management
and staff enrolling and receiving certificates for the many county
courses offered. Several also take night school and extension courses.
We regularly have sessions for classifications to cover new laws and
procedures. Several manuals have been developed.
There will be some drastic reorganization with late 1987 retirement
of my Assistant County Clerk and Assistant County Recorder.
We have been confronted with too many laws requiring additional
statistics and acceptance of more- court documents as well as property
transactions.
2. Affirmative Action - We have updated our plan, keep copies posted and
furnish to new employees and have been able to improve our ratios
in the Clerks, Recorders and Election Divisions.
3. Productivity Indicators ,become apparent with daily processing being
accomplished with low staffing compared to other counties. We
furnish monthly court statistics to the State Judicial Council but
due to funding restrictions they do not prepare the comparisons.
I find that attitude and pride does much to keep our production up.
The addition of space and needed automation should keep our operations
running efficiently.
Our automation has been held back even though most of our needed funding
comes from user trust fees. Our cable requests were not done properly
and some equipment ordered for us was not compatible.
The Courts will be starting with the AB 3300 case speed up program.
The cable to the existing courts has not been completed as well as in the
new Court Annex.
No meeting has been called to settle on the increased automation charges
for the Municipal Courts and the Clerk. The delay causes loss of fees
needed for computer equipment.
Each project automated will save time and money.
3. Disaster plans have been updated and posted. We keep our records in
two locations. Staff from all three divisions have attended training
sessions.
In the event of a problem we could fall back on our duplicatE records
and proceed. Our request for the Data General MV 15000 in -addition
to speeding our processing capability would allow us to keep in
operation.
4. Productivity Investment Fund could be helpful but our Automation user
fees wotild be a more timely answer since the Courts under AB 3300
have October 1987 and January 1988 deadlines.
I find that no one will meet with me but others meet and decide on
the needs of my departments.
Staff is anxious to proceed with our automation projects and the expansion
of our filing space to ease our processing problems.
I look forward to meeting with you as your schedule permits.
14/1 CONTRA COSTA COUNTY
COUNTY CLERK'S OFFICE
TO: PHIL BATCHELOR, COUNTY ADMINISTRATOR
FROM: JAMES F.R. OLSSON, COUNTY CLERK - RECORDER {
SUBJECT: GOALS SUMMARY 1985 and 1986 DATE: AUGUST 7, 1986
COUNTY CLERK, COUNTY RECORDER AND ELECTIONS
The requested report on goals and progress from 1985 and new goals
for 1986 was delayed due to several factors. Retirement of my Election
Supervisor allowed his assistant to take over•and upgraded our Date
Entry Supervisor to fill the other vacancy. She was injured by a rear
end auto accident which will require two surgeries. Her replacement
is on board as a provisional awaiting an examination. We are covering
six positions in the Clerk's Office with provisional appointments while
awaiting Superior Court Clerk and Legal Clerk Examinations.
I became involved in an election campaign that created a good deal of
animosity and extra effort. I was injured at work due to a slip in
rain puddles caused by dripping umbrellas in the back hall. At this
time, I have mail and correspondence delivered to my home and keep in
contact by telephone. I assume that these and other problems will soon
be settled so we can progress with our plans.
I personally feel that we have made great progress in our automation
needs, training, assignment rotation, affirmative action, budgeting
requirements and other functions allowing us to give good and timely
service to the public at reasonable cost. Our court service and efforts
are also producing better r'appor with the judges and their needs. Staff
have made extensive use of the personnel classes.
GOALS ACCOMPLISHED 1985-86
Clerk - implemented automated calendar and receipt register.
Increased revenues and moved Crim nal Section to the •
new Jail Annex to be available to Criminal -Court.
Recorder - remodeling of office space, automated retrieval
system and increased revenue.
Elections - system lauded as one of the best in the State.
Primary election went smoothly after Lon Underwood's
retirement. "
CURRENT GOALS AND OBJECTIVES 1986-87
CLERK - includes Civil, Probate, Criminal and Juvenile
Immediate goals include the following done daily 100% of the time.
1. Process a minute order for all proceedings heard that day.
2. By 2'p-m. have completed civil calendar for the following day.
3. Law and Motion calendar completed three days in advance.
4. Two Family Law calendars completed two days in advance.
5. Pull all appropriate case files and Register of Action cards.
6. Process all new pditions received including filing.
7. Prepare Probate calendar five days in advance.
8. Juvenile Calendar two days in advance.
9. Criminal calendar two days in advance.
10. Process all new complaints and petitions supporting and
opposing Law and Motion documents.
Following done within four days 100% of the time:
1. Two days, process highest priority documents.
2. Two days .of receipt of petition open all cases.
3. Three days of receipt, process all subsequent petitions
requiring hearing dates.
4. Three days of sentencing, process all commitments.
5. Five days of termination of trial, collect balance of fees.
6. Five days of receipt, process lesser important priority
documents.
7. Five days of receipt, file non-priority documents in
appropriate file.
B. Five days, process all miscellaneous filings.
9. Ten days, process all non-priority documents.
According to Review of Productivity Measures:
"no recognized productivity measures for any Clerk-Recorder functions",
just rough numbers to compare some costs. Data accumulated monthly is
sent to State Judicial Council but "to our knowledge" has not been used
to measure productivity and "we know of no individual worker performance
standards for court clerk staff."
Also, in 1986-87 we hope to have a register printer with translator. We
will tie records of courts both to and from the courts and to interested
departments. AGS (Automated Government System) will fully automate Civil
and Probate record keeping and calendaring processes. It will provide
more efficient storage, quicker access to court records, less record
storage space and ultimately reduce time spent processing court records.
This system has been approved and work is going on now to get the system
in.
The Criminal JAAC system on or about September 1, 1986. System should meet
short and long term goals for automation. Criminal record keeping and
calendaring procedures will be fully automated providing, for more efficient
storage and quicker access to court records.
After AGS is installed, Juvenile system will be automated with existing
MV100A Data General computer and a minimal amount of new equipment.
We would also like to see more space made available for the Clerk's
Department as well as the installation of carpeting in the existing
department to help on sound problems.- Additionally we want to fill our
provisional positions with qualified personnel. With the lease of
additional space on Main Street, we have been able to expand our Clerk
and Recorder microfilming to free space in both sections.
Recorder - automation: Plans for a computerized receipt systelp which
will be much faster than the current hand written system, will also
provide reports of percentage of fees to be distributed to other agencies.
The entire vital statistics index is on line this year to enable us to
find information more quickly resulting in faster service to public.
Since January, 1986 recorded document index is on line. We plan to have
1984-85 on line this year. We also have plans for a phone line system
to tie into Title Company computers, for quicker access to information.
Add third memory disk to system to hold increased information.
By Law, Recorder has ten days to examine subdivision maps for filing.
We generally file within three days. With the considerable increase in
recording volume this year, coupled with a fixed staff, it will be our
goal not to exceed three days for examining at all times.
For the past decade the Recorder's Office has fluctuated greatly in
mailing back recorded documents. At some points mail runs only one
week behind recordings (which is minimal period to allow for correcting
filming errors) to up to six weeks behind, due to thin staffing and
poor supervision. With automation and a small increase in staff in
recent months the section of office responsible for mail has reduced
delay in return to two weeks - which is optimal. Assuming no further
increase in workload and no loss of personnel, it is our goal to
continue at this level at all times with the possible exception of bulk
recordings of tax liens which sometimes exceed 4,000 documents.
Finally, we would like to improve maintenance on existing equipment used
by the public and to provide more accurate directions for use of the
equipment.
There are no productivity standards for recorders; The State Recorder's
Association neither keeps nor shares this kind of information. We have
our own standards, but aren't aware of other counties standards. We do
know that we continue to record more documents per employee than any
p other county in the State.
Elections - Newly appointed- elections chief, Bob Delevati is continuing
the excellent reputation of our Election Department with the June primary
coming off without any problems. The system is one of the most efficient
in the State. Our department costs are $4.13 per voter with the highest__
cost in the State at $11. The average per ballot printing cost in
California is $1.89, our is about $.43.
Monthly time studies in the data entry division help us examine workloads.
Regular staff meetings continue to apprise employees of regulations,
rights, new procedures and law changes. Our goals include trying to more
efficiently staff our polling places and to continue to update voter rolls.
All Departments -
Goals:
Develop a system to eliminate wasting weeks of training temporaries only
to lose them to other departments when permanent positions become available
there sooner. We spend far too much time training employees to lose them.
Affirmative Action
December 1985 Department Analysis prepared by Ms. Emma R. Kuevor, Affirmative
Action Officer notes we need to have more Hispanics and promote more
minorities. This still holds true. We will' continue to incorporate
these specific goals of hiring within the Clerk-Recorder workforce as
qualified individuals become available for open positions.
Also intend to get Barbara Chambers, Recorder's Office Manager involved
in the program.
Training - Special Courses
Improve employee attitude and morale. Improve employees public relation
skills - ie: speaking coherently to public, dressing appropriately for
the work place (not grubby jeans) . Improve overall look of office to
more "professional" look.
Refresher training for supervisors as well as a series of special
training courses covering all aspects of supervision - from handling
staff and the public to specific duties expected of supervisors would
be helpful. Courses offered by the Personnel Department could be required
for all supervisorial personnel. Over half the staff participate in
fitness programs as members of Bocce Ball teams and softball teams with ?1'�
PRODUCTIVITY ENHANCEMENT NOMINATION
COUNTY CLERK ' S OFFICE - CIVIL SECTION AUTOMATION
MANDATES
By law, the County Clerk (as ex-officio Clerk of the SuperiorCourt)
is mandated to provide civil support services to the Superior Court
and provide Superior Court civil related services to attorneys ,
litigants and the general public.
OBJECTIVES
Civil objectives are as follows :
1 . Provide support services to the Superior Courts and the
Family Law Commissioner.
2. Maintain a permanent public Register of Actions of the
Superior Court.
3 . Process legal documents.
4 . Enter judgments , provide notices, prepare and issue Writs
and file court orders .
5 . Prepare and distribute daily court calendars .
6 . Prepare records of appeals .
7. Provide procedural and administrative services relative to
Appeals , Probate, Civil and Family Law matters under the Superior
Courts jurisdiction.
6 . Collect fees when applicable.
9 . Submit various reports to the State Judicial Council .
AUTOMATION
We are fully automating all our functions for Probate; Family Law and
Civil via the Automated Government Systems (AGS) Civil case management
system.
Both Probate and Family Law have been fully operational for sometime.
We only recently went on-line with Civil and have a long ways to go
before we are fully operational .
QUALITY
ENTER, STORE AND RETRIEVE DATA
On-line capability has greatly improved our ability to enter, store
and retrieve data .
Productivity Enhancement Nomination
Page 2
We ,-can immediately access our court records to enter data . This is
a tremendous improvement over our old manual system whereby we had to
physically pull the Register of Action card , type our entries and
then return the Register of Action cards to their storage locations .
We can immediately look up data . This is also a tremendous improvement
over our old manual system where we had to physically pull the Register
of Action cards or the case files.
The on-line ability to quickly enter and retrieve data cannot be
overstated.
STANDARDIZED ENTRIES
All entries to our court records are standardized . These standardized
entries are made via a two or three digit code. This is a tremendous
improvement over the old manual system whereby we manually typed one
or two line, non-standardized entries .
We are able to tightly control our entries .
NOTICES OF TRIALS AND HEARINGS FOR SUPERIOR COURT
The processing of the Notices of Trials and the Notices of Hearings
for the Superior Courts has been tremendously improved.
Prior to automating, the Superior Court Administrator sent out the
Notices of Trials and the Notices of Hearings . We subsequently filed
the.;original document and then posted and calendared the trials or
hearings.
The new system enables the Superior Court Administrator to send out
the Notices of Trials and the Notices of Hearings , post the action in
our case records and calendar the trial or hearing.
This saves time for both departments.
COURTROOM ON-LINE CAPABILITIES
CASE HISTORY AND CALENDARING
Eventually all Civil Courts will be on-line. This will enable the
Courts to immediately access our data .
Immediately accessing our Court records will enable Court personnel
to immediately ascertain the status of a particular case. For example,
if an attorney says that he/she filed a particular document on such
and such a date, the Court Clerk or Judge will be able to immediately
access the case history to determine if in fact that this is the case .
Productivity Enhancement Nomination
Page 3
The Courts will be better able to manage their caseloads by immediately
accessing their court calendars . Court personnel will be able to view
their calendars and pick the best available dates without having to
make telephone calls .
COURTROOM ENTRIES
The two Family Law Departments Court Clerks can make on-line entries
in the courtroo!,. This saves a tremendous amount of time as they no
longer have to physically travel to the Clerk' s office , pull the
Register of Action card, manually type the entry and refile the
Register of Action card . (We intend , at this time, for our Family Law
Departments , Probate Department and Law and Motion Department to be the
only departments to be able to make on-line entries) .
QUANTITY
Automation has enabled our clerical staff to more efficiently process
our civil clerical support to the Superior Courts .
This is so because we can better enter as well as retrieve data .
COST
Once the system is fully operational , we will be able to process our
increasing civil workload with fewer people. This will ultimately
impact future requests for additional staffing.
In addition, overtime costs have already been reduced.
TIME
We estimate that we will eventually be able to process our civil
workload approximately fifteen to twenty percent faster. However ,
this estimate is a questimate as Civil `automation is still in the
infancy stage .
TO: M. G. wINGETT, COUNTY ADMINISTRATOR
FROM: JAMES R OLSSON, COUNTY CLERK -� RECORDER
SUBJECT: DEPARTMENT HEAD PERFORMANCE VALUATION DATE: MAY 7, 1912
The county has the 'advantage of over thirty five years of county operations experience
with me now in my ninth year as an elected official.
My four department_ run smoothly in spite of increased mandates, county growth and
decreased resources as a result of experienced, loyal staff who really try, as part
of my team, to keep current.
Our expanding use of microfilm and my elections computer capabilities has allowed
us to process our annual eight to ten percent workload increases without increased
staff.
Direction, Initiative, Leadership
Have been able to streamline operations to meet deadlines and workload increases by
improved filing, indexing and equipment upgrades.
Have changed Clerk of the Board agenda format and indexing to cover increased agendas
with less staff . word Processor and expanded indexing will maintain continuity.
Assertively promoted new election administration computer oriented procedures and
worked agressively on new vote system selection and successful use. Have pushed
design of varied facilities and updated procedures to conserve resources.
Clerks office filing now gives service through counter windows. Use of a telephone
recorded message for marriage license information. Have prepared same for fictitious
business names. Expediting filming of records to provide more file space and am
improving retrival potential.
Have been redesigning office space and selecting microfilm equipment under our Micro-
graphics fund to take advantage of latest micrograph retrival and process technology.
Productivity
Measurable factors between counties becomes difficult between General Law and Charter,
(space charges, data processing charges, utilities, maintenance, etc.) Comparisons
have been filed during recent budget sessions. Please see attached charts.
Organization and staffing
All four of my departments are service groups giving service to the public, the
Board and other departments. Even -.with population growth, automation and experience
have allowed us to absorb the over eight percent increase in work volume with less
staff. I have been able to upgrade many deserving employees and have created career
ladders within my organization. Our cross training allows us to cover sick leave and
vacations in areas with daily requirements.
Affirmative Action
Have updated our plan and have made gradual gains even with lack of staff increases.
Our ratios of minorities have improved. Women are reflected in 87% of my staff while
management positions held by women on my staff has increased. Our minority employee
ratios have also improved even though turnover is minimal.
Finance
Budgeting has become more of a challenge than a science. New fee schedules have
assisted in increased revenues. We cannot be blamed for the economy that strongly
affects property transactions.
Please see productivity (attached charts) for revenue information comparisons.
Coordination
My four departments perform many services for each other as well as other departments.
My elections Data Entry Unit services the Clerk, Recorder and Clerk of the Board.
They deliver agendas and background materials each Friday. Legal postings are also
done. Mailings are done on a regular basis for Assessor, Tax Collector and Jury
Commissioner as we.11 as as needed for service for Retirement and Auditor. We are
organizing a coordinated envelope order to save on costs.
The. Clerk operates its postage meter for all four departments and acts as back up for
the Jury Commissioner and Central Service. In Richmond the meter .services the Clerk,
Veterans Service and Bay Municipal Court.
Microfilming and processing is done for Clerk of the Board and Elections as well as
a cooperative effort for Clerk and Recorder. Film processing is also done for the
Sheriff and the Library.
We now furnish information for the Assessor on all Probates with mailed notices. We
coordinated an election mailing- with the Assessor to save their mailing costs. This
procedure has been adopted by several other counties.
We prepare and distribute over one hundred calendars daily for use by the courts,
attorneys and the public.
Communication
As production departments,information has always been handled as a ,two way street
with staff. Quick resolution of problems and questions has always been the rule.
Since we are on strict deadlines, we all find it frustrating to fail to receive
answers.
Any shortcomings in communication to the Board, Administrator or other departments
is :more than offset by contact with public customers.
Our voter outreach program has been almost too successful in signing up new voters.
Planning
A Plan has set priorities so that changes are happening in an orderly fashion without
disrupting our day to day operation. With some cooperation,our micrographics plans
can make our county one to be copied with film type, retrival ease and means to
assist the customers. Our staff ratio to collections, documents recorded and service
puts us in a good light compared to other counties in the state.
We have laid a good ground-work to convert to a word processor for Board records and
even with decreased staffing can convert in an orderly manner as soon as equipment is
available.
The Court operation has begun the bulk of the audit recommendations which has allowed
us to absorb the eight to ten percent increased annual filing volume. Conversion of
the register of actions has been delayed due to elections equipment software require-
ments. The conversion costs and problems encountered in other counties requires
additional study.
Our new voting processing and voting resulted after visits to Portland, Los Angeles
and Riverside along with many vendor meetings.
Responsiveness
My four departments maintain schedules on directives and referrals to fullest extent
possible. We find it difficult to be continually requested to expand on requests and
answers. We file requests promptly but encounter continuing delays in responses
to us. The continuing requests indicate a lack of knowledge of the subjects.
My Administrative Officer has improved our responsiveness by speaking the same
language as other analysts.
Public Relations
Elections has been the greatest purveyor of news with new election administrative system
and- new voting system. We have moved into an outreach program to get residents
registered as voters and to turn out the vote. Our elections outreach program has
been coordinated with eight Bay Area Counties resulting in a heavy registration and
an awareness by the public. Our registration percentage and vote turn out is one of
the ,highest in the state.
Our court files are made available to the press on a daily basis along with the Clerk
of the Board furnishing agendas and background material to the news media.
Participation
Tam active with County Clerks Association and a member of the elections committee.
A member of Recorders Association and on Legislative committee.
Active with Elected Officials Association and on the board. Installed as 2nd Vice
President in February.
Member of the Micrographics Association and attended the last national meeting in
Los Angeles and am active in Bay Area meetings and equipment shows.
After instigating a meeting to improve Board of Supervisors procedures and orders
was placed on Board Order standardization committee.
Projections
We plan to acquire much of the micrographic equipment needed to assist the Recorders
Office in improving their record retention and search capabilities. The office
remodel will also be paid frommicrographics non-county funds to expedite and save
costs.
I propose moving my marriage licensing, passport, citizenship and fictitious business
name sections to 822 Main Street along with dog licensing that now appears to be an
orphan that will not be transferred from my jurisdiction. This proposed move should
relieve some of the congestion in my legal section of the Clerk's office.
My Clerk of the Board has ordered a Word Processor which should be of great assistance
in processing the additional work flow.
My Election department should implement more of the automated voting process and provide
additional services to my other departments at reduced costs.
I would hope the county will be successful in removing legislatively some of the
mandates that constantly increase our work load.
CLERK OF THE BOARD
Meetings Orders Ordinances Publications
Held Adopted Adopted Ordered
1978 69 6,269 96 366
1979 69 6,401 129 434
1980 58 6,570 96 311
1981 60 6,665 77 250
1982 60 6,704 88 212
ASSESSMENT APPEALS BOARD
Appeals Meetings Orders
Filed Held Adopted
1978 3,531 38 645
1979 674 27 606
1980 715 48 3,891
1981 46 1,005
RECORDER
78-79 79-80 80-81 81-82
No. of Documents
Recorded 204,930 192,963 189,577 144,430 thru 5-6-82
Revenue
Recording Fees $808,235 $759,748 $751,110 $729,869
Transfer Tax 2,568,422 2,519,222 2,854,609 1,518,940
Monument Fee 58,740 58,930 51,320 33,670
Sale Microfilm 33,120 37,926 39,502 27,133
Space Rental 4,200 4,200 4,600 5,460
TOTALS $3,472,717 $3,380,026 $3,701,141 $2,315,072
* 81-82 through May 6, 1982
JANUARY 4, 1982
RATIO OF NON-JUDICIAL EMPLOYEES (COUNTY CLERK) TO JUDICIAL POSITIONS
COUNTY JUDICIAL POSITIONS COUNTY CLERK -RATIO
1. Contra Costa 17 58 3.41
2. Sacramento 27 100 3.7
3. Riverside 20 72 3.6
4. Alameda 34 139.5 4.10
5. San Mateo 16 66.5 4 .15
6. Solano 5+ 22 4 .4
7. Kern 11 49 4 .5
8 . Marin 6 34 4.8
9. San Bernardino 25 137 5.48
10. Monterey 7 41 5.85
COUNTY CLERK.
Activity (Cases Filed)
78-79 79-80 8-81 81-82
Civil 12,099 10,979 12,212 11,529
Probate 1,574 1,642 1,804 1,772
Criminal 1,214 1,059 1,024 1,046
Juvenile 4,461 4,116 4,469 4,060
Appeals (Lower Court) 566 491 485 518
Habeus Corpus 101 134 137 156
Adoptions 334 280 261 282
TOTALS 20,349 18,701 20,391 19,263
Documents
Passports 1,489 1,218 1,119 1,265
Marriage Licenses 3,767 3,982 3,655 3,997
Dog Licenses 54,916 56,263 54,515 49,740 (includes 1,933
Ficticious Business Names 2,829 3,817 4,922 4,453 Senior Citizens)
TOTALS 63,001 65,280 64,411 59,455
Income
Filings 362,674 347,216 569,819 807,292
Copies 74,403 100,881 132,699 146,740
Appeals 14,846 18,180 22,814 21,624
Marriage Licenses 21 ,705 25,297 33,215 39,026
Marriage Ceremonies 2,490 4,735 5,745 6,231
Dog Licenses 443,900 436,848 409,555 343,425
TOTALS $920,018 $933,157 $1,173,847 $1,364,338
* 81-82 Actual and Estimated
f
ELECTION DEPARTMENT
Voter Registration
1976 1978 1980 1982
Primary 265,324 291,312 345,729 375,000
General 311,504 314,421 358,881 390,000 ^
Voting Precincts
1976 1978 1980 1982
Primary S1 968 631 627
General 913 853 671 650
Revenue
78-79 79-80 80-81 81-82
State Aid
(Mandates) $9,290 $24,500 $44,910 $30,000
Filing Fees 19,328 10, 760 3,340 14,000
Election Services
(City,District) 86,260 220,160 39,280 308,200
Sales
(Maps,Lists) 2,270 6,110 9,600 10,000
Petitions
No. Petitions Filed No. Signatures
78-79 3 77,000
79-80 3 83,000
80-81 4 185,000
81-82 8 234,000
* 1982 Actual and Estimated
ANNUAL DEPARTMENT HEAD EVALUATION REPORT
Name : James R. Olsson
Date : _ ,Jima 5y 19R2
PERFORMANCE EVALUATION FACTORS
DIRECTION, INITIATIVE AND LEADERSHIP: Jim, your initiative has lead to
The extent to which the department head a number of recent improvements
provides assertive leadership and in various of your divisions .
airection to the programs and staff These efforts are appreciated.
r,ider,4, his/her jurisdiction; shows
;niti,ative in identifying problems
and issues in his/her program area
gin—' developing innovative and
effective ways of dealing with these
ScSL'.E'S .
C>�.; R.I'_72ATION AND STAFFING: The Appropriate staffing adjustments
� ,tana
to which the department head seem to be accomplished to meet
effectively organizes and uses the workload demands . Budget
staf :. .ittiin his/her department. constraints continue to strain
Main+_airs , good working relationship existing staff in your dc_partmen'_
wi-.h employees and deals effectively as elsewhere .
�,,i_th employee organizations and
cr.ievances .
rI`IANCE : The ability of the manager This year we seem to have reached
tc e5timate the minimum financial an agreement on the budget level
resources to perform assigned functions . and expenditures are within
Adheres to the adopted budget with a appropriations . This has been an
maximum effort to operate within area of my concern in the past.
--ppropr_ations and collect appropriate
CGORD NATION : The department head' s
sh=ill -at coordinating programs and Your department has a reputation
acti-.,-*.,,4.ies within his/her jurisdiction. (and perhaps undeserving) of acting
The concern for and cooperation with independently at times . I am
other departments , advisory committees impressed with coordinative efforts
rc�.i.at_e' progr�a�S in achieving documented. We are appreciative
overa11 county objectives . of these efforts.
CO1%^NUNICAT ION: The skill of the This is an area I feel we should bot!
department head in clearly and effec- work on. Perhaps in our discussion
Lively communicating to his/her we can identify ways to better
_ libordi-na-tes---Ke.eping_the_ Coun-ty__ _____ ___ _ communicate. I f-i-nd -some requests tc
Administrator, Board of Supervisors , us unclear. It is clear you
affected agencies and the public are often frustrated by our, lack
informed regarding department of responsiveness .
problems and activities .
PRODUCTIVITY: Measurable increase in The workload in most of your
all or a portion of the departments units has increased with no
production as compared with resources increase in staff.
used. This to be illustrated by some
budget and output data or comparisons
with other agencies performing
similar tasks.
AFFIRMATIVE ACTION: The extent of Although gains have been made, we
department actions and the results need to improve minority repre-
from initiating or supporting sentation in several areas when
affirmative action strategies . turnover occurs and appropriate
candidates are available.
PLANNING: Success in developing The planning you have outlined shows
clear objectives and goals for the good preparation for implementing
department and planning the use of improvements .
needed resources for successful
achievement.
RESPONSIVENESS : The extent to which Specific referrals to your office
the department headresponds on a have always been answered. I know
cooperative and timely basis to you feel we are not responsive to
directives of the Board of Supervisors many requests. Often we don' t feel
and/or County Administrator on we were given enough justification
referral items and requests including for us to act. We agree that your
budget submissions . ASO has assisted in our communica-
tions.
PUBLIC RELATIONS : The extent to The public image and relations of
which the department head maintains your office seem positive. The
. good public relations as indicated by only complaints I hear have been
exampies of department initiated clients who occasionally think your
positive publicity, staff relationship department has had workload problems.
with clients and by the number and I have not heard these recently.
nature of complaints from Board
members and the public and reports
by outside groups such as the Grand
Jury.
PARTICIPATION: The extent to which You have been an active participant
department head participates in state in statewide associations and
or regional affairs as indicated by have regularly attended department
participation in multi-county head activities at the County level.
organizations. Seeks to influence
legislation and regulations as well
as participating in general county
operations as in department head
task forces.
M. G. WINGS
County Administrator
ANNUAL DEPARTMENT HEAD EVALUATION REPORT
Name : James Olsson
Date : June 15, 1981
PERFORMANCE EVALUATION FACTORS
DIRECTION, INITIATIVE AND LEADERSHIP : I 'm confident that you are viewed
The extent to which the department head as the leader in the various units
provides assertive leadership and of your department. We think
direction to the programs and staff
identification of the need for the
under his/her jurisdiction; shows election system replacement and
initiative in identifying problems the effort of all those involved
and issues in his/her program area to work on a solution as an example
and developing innovative and of good planning and cooperation.
effective ways of dealing with these
issues .
ORGANIZATION AND STAFFING: The Each unit of the County Clerk-
extent to which the department head Recorder has a distinct function.
effectively organizes and uses the Although the activity in one unit
staff within his/her department. does not directly relate to the
Maintains good working relationship others in work flow, we are pleased
with employees and deals effectively to hear of expanded sharing of
with employee organizations and support services .
grievances .
FINANCE : The ability of the manager
to estimate the minimum financial Hopefully our staffs agreement on
resources to perform assigned functions . budget needs for 1981-82 will
Adheres to the adopted budget with a result in a fiscal plan which will
maximum effort to operate within be followed. In the past, we have
appropriations and collect appropriate not felt requested financial
revenue. options were furnished and over
expenditures frequently occurred.
COORDINATION: The department head ' s
skill at coordinating programs and We are not aware of coordination
activities within his/her jurisdiction. opportunities within the department.
The concern for and cooperation with But there is opportunity to improve
other departments , advisory committees relationships with service depart-
or related programs in achieving ments.
overall county objectives .
COMMUNICATION: The skill of the
department head in clearly and effec- A flow of information and thus
tively communicating to his/her mutual understanding might avoid
subordinates. Keeping the County major long standing issues from
Administrator, Board of Supervisors, becoming so aggravating. You
affected agencies and the public have brought several of these to
informed regarding department me this past year.
problems and activities .
P RC,DJCTIVITY : Measurable increase in Based upon the comparison you have
,,ll or a portion of the departments developed, the County Clerk operation
production as compared with resources seems to exceed output for staff
used. This to be illustrated by some - in other counties.
budget and output data or comparisons
with other agencies performing
similar tasks.
AFFIRMATIVE ACTION: The extent of
department actions and the results We hope steps taken to avert
from initiating or supporting affirmative action complaints will
affirmative action strategies . be successful. I am told you were
most cooperatiW in resolving the
problem this spring.
PLANNING: Success in developing
clear objectives and goals for the We would hope some of the specific
department and planning the use of suggestions in the operational
needed resources for successful audit which you indicated support
achievement. I for will assist in future improvements
RESPONSIVENESS: The extent to which
the department head responds on a I think there is opportunity for us
cooperative and timely basis to to work more closely. My observation
directives of the Board of Supervisors is that we are working independently
and/or County Administrator on and have often not been responsive
to each other.
referral items and requests including
budget submissions .
PUBLIC RELATIONS : The extent to The Election Division received most
which the department head maintains of the press attention and appears to
good public relations as indicated by
examples of department initiated have good relations with the media.
In other areas we view lack of bad
positi-ve publicity , staff relationship publicity as a plus.
with clients and by the number and
nature of complaints from Board
members and the public and reports
by outside groups such as the Grand
Jury.
PARTICIPATION: The extent to which Jim, I know you have been active in
department head participates in state various statewide organizations.
or regional affairs as indicated by You have attended most department
participation in multi-county head activities and I hope to have
organizations . Seeks to influence you participate more on department
legislation and regulations as well head committees in the future.
as participating in general county
operations as in department head
task forces.
- 'i
M. G. WINGETT
County Administrator
CONTRA COSTA COUNTY
COUNTY CLERK'S OFFICE
TO: M. G. WINGETT , COUNTY ADMINISTRATOR
FROM: JAMES R. OLSSON , COUNTTY�CLERK - RECORDER
SUBJECT: DE TMENT HEAD EVALUATION DATE: MAY 14 , 1981
As the elected County Clerk-Recorder for Contra Costa County I have direct
responsibilities for the functioning of the County Clerk' s Office, the
County Recorder ' s Office, Elections , Clerk of the Board, Dog Licensing ,
recording officer to the City Selection Committee , Commissioner of Civil
Marriages along with other required duties. With major efforts being
expended on program budgets , election systems , legislation and improve-
ments to my operations I do not intend to file a full performance evalua-
tion: but will furnish an outline of accomplishments and future goals .
My Clerk of the Board , after absorbing the complete calendar function , has
computerized their subject index through my election mini-computer operation.
The—listing for 1979-80 contains 35, 722 references . This will be expanded
and become a more useful tool each year . A procedure manual covering the
varied functions is underway.
My Recorder function has successfully absorbed new recording and fee require-
ments . A proper tax lien procedure has been started and with the new fee
for micrographics improvements this year will begin simplifying the looking
up of records .
Elections after successful elections last year have been involved in
surveys of various voting and election processing systems . If approved ,
large savings in processing costs will result from the leap forward in
computer operations . As a by-product the Clerk's register of actions can
go a step beyond the Audit Report proposal.
Clerk comparisons >with other counties had continually showed us to be
understaffed. With the addition of four to replace temporaries and absorb
new duties our overtime and comp time has been reduced. Our backlog of
processing and filing has been reduced. Our staffing per judge has been
improved from 3 . 3 to 3. 6 with comparable counties averaging 3. 5 to 6. 0.
New filing fees for processing legal documents has more than doubled our
collections which will continue to grow with the annual increase in
filings of 8 to 10 percent .
After an Affirmative Action problem I have reorganized our effort and
have a dedicated liason to assist us in maintaining compliance.
M,. G . WINGETT Page 2 MAY 14 , 1981
We have been able to coordinate as well as be responsive when the last
minute return of the dog licensing program occurred without discussion or
rules . This year more licenses were processed earlier at less cost .
With extensive reclassification work and changes in duty assignments
things are progressing well.
' I am a member of the State County Clerks ' Association , the State County
Recorders ' Association , the State Local Elected Officials Association , a
director and liason to the State Voting Commission and a member of two
legislative comtiittees of these groups.
A cash register was installed last year for the Recorder functions with
good results and favorable comments by the Auditor. The cash register for
the Clerk required special design and is now ready for installation. This
should improve the audit trail on collections .
Extensive work by my Administrative Analyst and your staff has produced
agreement on budget needs . This should make for a smoother financial year.
Many communications with staff have been prepared . Rules , procedures ,
Affirmative Action and work methods have improved cooperation. My Admin-
istrative Officer has worked with each division and has improved coopera-
tion . Each division works with other divisions in data entry needs , mail,
microfilm , messenger service , -signing , form design and other cooperative
services .
I am planning a joint purchase procedure to assist all four divisions in
inventory control by bulk purchases .
Our training has been expanded along with improved relations with the
judiciary and the bar .
Improved telephone operation is being installed along with work station
moves to improve work flow.
We have made great progress in many areas this past year and plan to
continue along the same lines in the future.
ATTACHMENT B
Sheriff.-Coroner Richard K. Rainey
Contra Costa County r QQQ SHERIFF-CORONER
Warren E.Rupf
P.O. Box 391 Assistant Sheriff
Martinez. California 94553-0039
-w Gerald T.Mitosinka
(415) 646-
Assistant Sheriff
Rodger L.Davis
To: Scott Tandy, Chief Date: August 18 , 1988 Assistant Sheriff
Assistant Administrator :
j Response to Recommendations
From: Richard K. RaineySubject:Contained in the 1987-1988
Sheriff-Coroner ` Grand Jury Final Report
Enclosed is the response of the Sheriff ' s Department to the
recommendations of the 1987-1988 Grand Jury Report which
pertain to this Department.
RKR/jmw
Enclosure
FICC !,VED
x, 1988
AN EQUAL OPPORTUNITY EMPLOYER
THE 1987-88 GRAND JURY RECOMMENDATIONS - Page 122
1 . Deputy Operations Officers and Sergeants visit each module at
least once a week. "D" Module should be given highest
priority for these visits. Ample supervision must be
provided to line personnel.
The custody sergeants have been instructed to
visit D Module at least once each shift, three
times each 24-hour period. Module logs indicate
that this has been occurring.
The Operations Directors (Lieutenants) have been
instructed to visit each module, with special
emphasis on D Module, several times each week.
2. The Duty Operations Officer receive permission from the Jail
Commander prior to leaving MDF, except, at normal shift
change.
The Operations Directors must receive permission
from the Facility Administrator to leave early or
miss a .shift.
3 . At shift change, the Duty Operations Officer remain in MDF
until relieved in person by the oncoming Duty Operations
Officer.
Operations Directors have been instructed not to
leave their posts until properly relieved.
Should the Operations Director leave early, he/she
provides the processing sergeant with all pertinent
information. It then becomes the sergeant' s
responsibility to, pass the information on to the
oncoming Operations Director.
If the Operations Director misses a shift, he/she
designates a sergeant to assume the responsibil-
ities of the Operations Director.
Page 123
4. A log be established for all jail employees to sign in or out
of MDF, except at normal shift change.
All sworn staff are accounted for at the briefing
at the beginning of each shift.
If an officer must leave the facility for any
reason (emergency, court, doctor appointment)
during a shift, he/she must have the Operations
Director ' s approval.
1
5. Probationary deputies not be assigned floor or control room
status unless paired with a deputy who has a minimum 24
months jail duty.
This recommendation is not always practical. Many
shifts do not have deputies with 24 months of
experience in the facility.
The Operations Directors are encouraged to assign
deputies to D Module who can best handle the unique
responsibilities of D Module.
6. All inmates stand by bunks for shift head counts, except
during midnight shift.
There are five formal counts each 24-hour period:
0330 , 0530, 1130, 1730 , and 2230.
During formal counts, the facility is locked down.
Inmates on the modules return to their rooms.
While making the count, the deputy must observe the
inmate.
During the 0330 count, or at any time the deputies
check on sleeping inmates, the deputy will confirm
respiration.
During the escape on July 23 , 1987 , deputies failed
to observe the inmate or confirm respiration. As a
result, they were unaware there was an escape.
.7 . Inmates on "D" Module not be scheduled to have recreation
time together on a regular basis.
Administratively segregated inmates are allowed out
two at a time.
There is not enough time to let them out alone and
still get them all out for the amount of time
required by law.
Many segregated -inmates cannot be permitted out
with any other prisoner or can only be permitted
out with a few select prisoners.
Our options are very limited and occasionally the
same segregated inmates exercise together on a
regular basis. Every effort is made not to have a
set routine.
2
8 . The floor deputy regularly inspect inmate rooms for
contraband when rooms are empty.
Policy requires that deputies make random room
searches during their shifts.
The facility search team has received additi-nal
training. The facility search team now does a
minimum of five module searches a month.
9 . Civilian nonsworn personnel be hired to assist deputies in
performing duties within modules, without reduction of sworn
staffing.
This recommendation is not practical in the light
of the county' s financial problems.
10 . All laundry be exchanged on a one-for-one basis. The
laundry should be counted upon delivery to and retrieval
from modules.
Policy requires that no clean article will be
issued unless a soiled one is turned in.
Since the escape from D Module, an additional
officer is sent to D Module to assist in conducting
a one-for-one exchange.
11 . A licensed architect be retained by the County to inspect
the MDF roof security screen and make recommendations for
modification or replacement of the existing .system.
County maintenance personnel and Sheriff ' s
personnel inspected the D Module security screens
and identified several weaknesses.
Materials were ordered to modify the sections. The
material was only recently received.
The modifications to the D Module security screen
will be made during the week of August. 22--26, 1988.
12 . One-way glass be installed in "D" Module control room,
allowing deputies to observe inmates but preventing inmates
from observing the activity of the deputy in the control
room.
One-way glass may well lead to less, not more,
supervision of inmates. If inmates are not able to
see staff members, staff may tend to be less
vigilant.
The philosophy of a direct supervision facility
requires that staff and inmates have the ability to
observe and interact with each other.
3
1
13 . Replacement sheets of high-security glass used in modules be
stored at MDF to provide immediate repair if glass is
broken.
The expense and storage space required make this
recommendation impractical.
The security glass is extremely expensive.
It is not possible to order a large piece of
security glass and cut it to size when needed. The
glass must be special ordered by size. When
ordered, only then is it manufactured.
The Main Detention Facility has such a large number
of window sizes that it is impractical to have one
of each in stock.
14 . The Sheriff ' s Department consult with the Martinez Police
Department to establish a policy of contacting MDF when the
police receive such reports as two men running through the
night in their underwear a few blocks from the county jail.
This issue has been discussed with Martinez Police.
r In the future, Martinez Police will notify the Main
Detention Facility on similar suspicious circum-
stances.
THE 1987-88 GRAND JURY RECOMMENDATIONS - Page 130
1. The State of California appoint additional judges in Contra
Costa County.
Please see response to Recommendation No. 2 .
2. The Board of Supervisors provide funding to hire additional
assistant district attorneys, public defenders, court
officers and associated staff, and jail staff.
The Sheriff ' s Department supports the Grand Jury' s
recommendations for additional judges and other
personnel necessary to operate the courts.
Additional courts would certainly speed up the
entire Criminal Justice process.
Whenever there is an increase in the number of
courts , there is an associated need for additional
staff for all departments that work with the
courts. The Sheriff ' s Department would require
additional transportation and court security
officers.
4
3. The Sheriff set up a "tickler system" to inform appropriate departments
of inmates' time in custody while awaiting court appearances.
It is not practical presently to provide this information because it
would require a great deal of clerical time to develop. This
information will be provided, however, by the new inmate
management computer system currently under development. This
system will be in operation in approximately twelve months.
4. In-home svveillance be used in lieu of jail custody in selected cases.
The Sheriff's Department has already implemented the in-home
surveillance program on a limited basis. The results of our test
period were quite positive. A budget has been submitted to
expand the program to include electronic surveillance of selected
offenders. The program will continue on a limited basis and be
expanded when funding becomes available.
.5. Additional hours be added to the court calendar to include night courts
and weekend sessions.
Please see response to Recommendation No. 2.
6. Video arraignments be established.
A video arraignment/teleconferencing task force is currently
developing plans to establish a pilot video arraignment system
between the Main Detention Facility in Martinez and the Delta
Municipal Court. In addition, the task force is developing plans
to establish a pilot teleconferencing system between the Marsh
Creek Detention Facility in Clayton and the Probation and Public
Defender Offices in Martinez.
7. Attorneys be used more often as temporary judges.
If attorneys were used as temporary judges to provide relief for
judges on vacation; this would permit each court to function 52
weeks a year.
As . previously stated, any increase in the time courts are
available would move_N,prisoners through the system more rapidly.
Theoretically, this would reduce the time prisoners are in the
county system.
5
8. The District Attorney and Public Defender join in early disposition of
criminal cases to relieve jail overcrowding.
The Sheriff's Department supports this recommendation. The
Probation Department is also vital in the early disposition of
criminal cases.
THE 1987-88 GRAND JURY RECOMMENDATIONS - Page 139
COUNTY FACILITIES:
Main Detention Facility
1. More facilities be provided to expedite processing for both food
services and laundry.
The recommendation has been implemented. Additional freezer
space and larger cooking pots have been purchased and installed.
The additional clothes washers and dryers have been purchased
and are awaiting installation. The additional equipment will
provide the capacity to assist the Department in managing the
overcrowding situation.
Marsh Creek Facility
2. A General Services supervisor, skilled in various trades, be assigned
to the facility as required to supervise its maintenance and repair. He
or she would be responsible to ensure that materials are ordered and
on hand when needed, to be accountable for the security of materials
ordered, to supervise prisoner work parties, and to ensure the safety
of prison labor.
The recommended General Services Supervisor has been requested
in the department 1988-89 budget proposal. To date, the position
remains unfunded. The Department will continue to pursue this
issue until it is resolved.
3. Prison labor be utilized to maintain and repair all walkways, stair
walls, buildings, fences, septic tank and leach lines, recreation areas,
classrooms, weed abatement„ and other related tasks.
The recommendation to utilize inmate labor for an assortment of
maintenance tasks has been fully implemented with the sole
exceptions of electrical, sewage, or other related tasks which
require skilled and licensed craftspersons.
6
Work Furlough Center
4 . The Board of Supervisors establish similar work furlough
operations for central and east county areas .
The Department concurs with the recommendation that
we establish additional work furlough facilities in
central and east county areas. Presently, we could
operate a central facility with our current inmate
population and classification base. As the county
continues to expand, the Department could also
operate an east county facility in future years,
THE 1987-88 GRAND JURY RECOMMENDATIONS - Page 176
1. The County Supervisors appoint a security manager to have
overall authority and responsibility for security in all
court facilities under county jurisdiction. Security
includes , but is not limited to, the establishment of a safe
environment, prevention of criminal activity, and
preparation for fire, bomb, hostage, earthquake, and medical
emergencies.
The County Board of Supervisors, in cooperation
with the Superior Court Judges,, Municipal Court
Judges, and the Sheriff , has created by law a Court
Services Division within the Sheriff ' s Department
with specific responsibilities for security in all
court facilities under county jurisdiction.
2. The security manager make an immediate survey of existing
security arrangements and develop a plan of action for
improvement, keeping in mind that security problems are
likely to increase rather than decrease.
A security survey and plan of action containing
short- and long-term improvements is being
developed.
3 . Because of his interest and expertise in security matters,
the person appointed be County Marshal Rodger L. Davis.
The incumbent Marshal was appointed as head of the
Court Services Division, as discussed in Recom-
mendation No. 1. .
4. A person regularly employed in each courthouse be appointed
to be responsible for emergency procedures in the building,
and for seeing that those using the building are aware of
procedures . Where practical, drills for various emergencies
should be initiated.
See response for Recommendation No. 5.
7
i
J
5 . Judges, referees, clerks, court reporters, and other
employees receive special training for courtroom
emergencies. Judges, referees, and prosecutors, who may be
specially targeted for threat, should be trained for emer-
gencies that may occur out of court.
A Court Security Sergeant has been assigned to each
court facility with responsibility for bailiff and
security staffing, emergency procedures, and
training of judges, referees, clerks, court report-
ter, and all other tenants of the court facility.
6. The security manager be consulted before any court construc-
tion or remodeling is planned.
That has always been the case in the municipal
courts, and the early indications are that it will
be the same in superior court.
7. Courtroom assignments be made on the basis of security
rather than judges ' seniority.
That decision can only be made by the respective
courts.
8. Immediate action be taken to improve security arrangements
for the high-risk family and juvenile courts.
A security survey of all family law and juvenile
courts has been completed. Several changes are in
the process of implementation.
9. The construction of a high-security courtroom in the A. F.
Bray Courts Building not be delayed or eliminated.
That decision can only be made by the superior
court.
10. A permanent metal detector be installed at the entrance of
the A. F. Bray Courts Building to be manned in high-risk
situations and for random checks.
A permanent metal detector may not be the long-term
solution but is being considered as an alternative.
11. Bailiffs and transportation officers in all court facilities
patrol public areas when not otherwise busy.
This recommendation has been instituted.
8
Page 177
12. signs notifying visitors that they may be subject to search,
such as are posted in municipal courts, be posted at
superior and juvenile courts.
The signing of the respective courts is still in
the discussion stage.
13 . Occasional random searches be conducted.
Random searches are currently being done.
ry14 . All bailiffs within a courthouse be equipped with two-way
radios linking them with each other and a central station.
The use of portable radios is in the process of
being expanded.
15 . All vehicles used for the transportation of persons in
custody be equipped with emergency radios.
All vehicles are fully equipped with emergency
equipment, cages, and radios.
16 . Bailiffs be consulted on additional equipment and methods
they feel would enhance their ability to control emergen-
cies.
Facility sergeants hold monthly meetings with
bailiffs to discuss training and security strategy.
17 . All court bailiffs and security officers attend the special
court security schools now attended by Marshal' s deputies,
or an in-county school be established to provide such
training.
The 1988-89 training schedule includes a require-
ment for all court security personnel to attend
such a school.
,18 . Fire alarms be installed in the Contra Costa County Court-
house and any county court facility that lacks them. the
wooden module adjacent to the court at Juvenile Hall should
be inspected for fire safety.
Fire safety requirements are being addressed in
individual facility remodels.
19 . Court bailiffs conduct regular emergency drills for bomb,
hostage, building evacuation, and similar events. Bailiffs
be reassigned other activities after five years in the
courts to avoid complacency.
9
The facility supervisor is required to hold such
exercises regularly. Complacency can be dealt with
in other ways than transferring.
Superior Court
20. The Sheriff ' s department appoint a supervising b&:iliff to
work in the courthouse. Bailiffs should hold regular
meetings.
The superior court has a facility sergeant, and he
is required to hold monthly bailiff meetings.
21. When the new A. F. Bray Courts Building is operational, the
family courts be permanently moved out of the crowded ground-
floor area of the old courthouse to the new facility.
The family courts have relocated to the first floor
of the old courthouse.
22 . Space be provided in the old and new courthouses as a haven
for litigants and witnesses who fear for their safety while
awaiting court appearances.
That decision can only be made by the superior
court bench.
23 . The court in the Martinez Veterans Building be permanently
abandoned.
That decision can only be made by the superior
court bench.
24. Public and employee entry to the County Courthouse be
restricted to the main doors on Court Street or the handi-
capped entrance on Main Street.
Please see response to Recommendation No. 26.
Page 178
25 . To avoid the general public mixing with persons in custody,
the Ward Street door of the County Courthouse be reserved
for use by Sheriff ' s deputies escorting prisoners to and
from court.
Please see response to Recommendation No. 26.
26 . The two ground-floor doors on Court Street and the door in
the County Clerk' s office be secured for emergency exit
only. Exit alarms be installed on these doors.
Recommendations 24, 25, and 26 are all being con-
sidered as important recommendations in an overall
10
T security plan currently being developed for the old
courthouse and the A. F. Bray Courts Building.
Juvenile Court
(Recommendations No. 27 through 36 will be considered together. )
27 . A bailiff be assigned to each juvenile court.
28 . The bailiffs concentrate on the security and safety of the
court and not be asked to perform duties which routinely
take the ni away from their courtrooms.
29. Probation officers at Juvenile Hall who respond to courtroom
emergencies receive specific training in handling such emer-
gencies. They should not, however, be expected to do the
work of a bailiff or to replace a bailiff.
30 . An emergency - buzzer be installed directly from the West
County juvenile courtroom to the El Cerrito police depart-
ment in the same building. El Cerrito police be requested
to provide immediate response.
°31. In consultation with the referee, the West County juvenile
court be remodeled, in particular to separate males and
females in the court holding facility. The ceiling needs
attention, as tiles falling onto the heads of those using
the courtroom does not promote general health, safety,
respect to the court, or the overall dignity of the
proceedings.
32 . The receptionist at Juvenile Hall court be provided with an
emergency buzzer or intercom and a floor-to-ceiling parti-
tion that includes bullet-resistant glass .
33 . No armed officer, other than the bailiff on duty, be permit-
ted to enter the jevenile court, the offices or adjacent
hallways at Juvenile Hall except in response to emergency.
Weapons lockers are provided and should be used.
34 . The traffic patterns at each juvenile court be analyzed and
arranged so that the referee and bailiff have absolute
control over who enters the court and who has direct contact
-i with persons in custody.
35. The roving juvenile court referee be provided with adequate,
permanent, and secure court space in each of the three
locations he visits each week. Further, he should be pro-
i
vided with a clerk and bailiff .
Page 179
36 . If microphones accessible to defendants in any court remain
in use, they be equipped with lightweight plastic stands.
11
Response to Recommendations No. 27 through No. 36 is an
excerpt from a letter from Marshal Davis to Judge Minney,
dated June 8 , 1988 :
Effective July 5 , 1988 , in response to your request
and in anticipation of formal action by the Board
of Supervisors, we will:
1 . Assign a full-time temporary deputy
sheriff to each referee.
2. Develop a written job description for
each bailiff .
3 . Identify resources and develop a
written security plan for each site.
4. Issue each bailiff a searching wand.
5 . Issue five portable two-way radios to
accommodate necessary communication.
Recommended architectural changes and equipment
requirements should be communicated through further
meetings with the Superior Court, County Adminis-
trator' s Office, and Sheriff .
CONCLUSION
I would respectfully recommend a strong, coordi-
nated effort between the Superior Court and the
Sheriff at the impending budget hearings to insure
the permanent funding of these recognized security
personnel requirements.
Thank you for allowing us the opportunity to
address your concerns. We hope you find our
recommendations to be consistent with prudent
security planning.
*Because these positions were not recognized for funding
during the 1988-89 budget hearings, and with great reluc-
tance and extreme concern, these bailiff responsibilities
will be abandoned, effective September 5, 1988.
Municipal Court
37 . With the merger of the Marshal' s office and Sheriff ' s de-
partment, the standards of security consciousness, training,
and equipment now used in municipal courts be adopted as the
minimum standards acceptable for all Contra Costa County
court facilities.
The Sheriff ' s Department supports this recommenda-
tion.
12
138 . Every effort be expended by county administrators, judges,
and those concerned with court security to ensure that
overall court security is enhanced, not diluted, when the
two departments merge.
With a cooperative effort with the superior curt
bench and the municipal court bench, a countywide
security plan will become a reality.
Page 188
Delta Municipal Court
(Recommendations No. 1 through No. 7 will be considered together.
1. Activities not directly related to the Delta Court not take
place in the overcrowded building. The methadone clinic
should be moved to other quarters to free space for court
uses.
2. Until new quarters can be found for the clinic, security be
provided for the building beginning at the hour the clinic
opens. During the day, deputies should patrol the public
areas of the building when not otherwise busy.
3 . Safe, private space be provided for defense attorneys and
prosecutors to confer with clients, victims, and witnesses.
Ample private space should be provided for judges ' chambers.
If necessary, temporary modules should be leased and placed
at the rear of the courthouse . in a fenced area to provide
storage, meeting space, or employee break area until Phase
One is complete.
4. Courthouse employees make a concerted effort to remove all
unnecessary files and redundant storage from the building.
5. As part of Phase One construction, a sally port of 12-foot
high cyclone fence sides, with roof and locked gates, be
erected between the courthouse and the Pittsburg Police
Department so that prisoners can be delivered to either
building in a secure manner.
6. Phase One remodeling include see-through panels on courtroom
railings to discourage friends and relatives from making
physical contact with those in custody.
7. High priority be placed on all aspects of Phase One remodel-
ing in an effort to decrease the one-year estimated
construction time.
Response to Recommendations No. 1 through No. 7 .
A concentrated effort of all the players is taking
place as it relates to the dismal conditions at the
Delta Court. In lieu of a new facility, we will
13
4
• u
continue to attempt to minimize terrible security
conditions by the use of manpower and by
maintaining a high profile of uniformed patrol
throughout the building.
14
RESPONSE
Juvenile Hall residents learn about nutrition when attending the
Health Science curriculum, which provides a nutritional unit several
times during the school year .
The meals served meet or exceed dietary requirements a5 set by the
California Youth Authority Standards, the State of California
nutritional requirements and the national guidelines. All meals are
approved by the County' s registered dietician - M.P.H. Nutritionist.
RECOMMENDATION #8
The "Juvenile Hall Five-Year Maintenance and Equipment Schedule" be
revised to be made comprehensive and prioritized, and to include
recommendations made by all inspecting agencies .
RESPONSE
We concur with this recommendation.
"THE EAST COUNTY RAPE CRISIS UNIT" (Page 199)
RECOMMENDATION #1
The County immediately terminate the existing contract with the ECRCU
and select a qualified organization to provide these services .
RESPONSE
The contract was terminated. Negotiations are underway to provide
services to East County.
RECOMMENDATION #2
The District Attorney' s Office establish adequate procedures to
monitor the finances of the other rape crisis centers the County has
placed in that office ' s budget.
RESPONSE
The District Attorney' s Office has established procedures to improve
financial monitoring of the County contract for the Rape Crisis Center
of West Contra Costa, which provides services in West and Central
County. These improvements are built into the agency' s contract with
the County for fiscal year 1988-89 .
In accordance with Penal Code Section 922 , the District Attorney' s
response is attached as Attachment C.
1
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RECOMMENDATION #3
The Board of Supervisors allocate a portion of rape crisis contract
funding to the District Attorney' s Office to cover the costs of
monitoring the contracts .
RESPONSE
Please see our response to Recommendation #6 .
RECOMMENDATION #4
Standard service contracts with rape crisis centers be modified to
explicitly require that the County have access , on demand, to all of
the centers ' financial records regardless of funding source.
RESPONSE
The contracts have been modified as recommended.
RECOMMENDATION #5
The County require that the rape crisis centers receiving County
funding meet the same standards as those described in the State ' s
Office of Criminal Justice Planning document for rape crisis centers .
RESPONSE
The County requires the contractors to meet OCJP standards .
RECOMMENDATION #6
The County develop a program for monitoring the performance and
quality of service provided by rape crisis centers throughout the
County.
RESPONSE
It is the District Attorney' s intent to jointly monitor this program in
cooperation with the city funding agencies involved, as well as with
the staff of the State Office of Criminal Justice Planning. This
coordinated approach to monitoring should be extremely beneficial to
the funding agencies and to the Rape Crisis Center itself. In
addition, the agency will continue to submit its detailed progress
reports as required by the State, but modified so as to clearly
identify services provided in both west and central County. A
requirement for an independent audit by a Certified Public Accountant
will be included in the contract. This audit will cover not only
County funds , but the total funding of the agency. This will give us
a total fiscal picture that we have lacked in the past.
RECOMMENDATION #7
The County explore the option of contracting all rape crisis services
through one agency for the purpose of improved accountability,
administration, and service delivery.
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Gary T. Yancey ATTACHMENT C
Distric", Attorney 'Uv;lY!a CO='ia County
OFFICE OF _ RECi=1:'F��
• 4 DISTRICT ATTORNEY
CONTRA COSTA COUNTY AUG
17 1986
1_)ffice of
To: Scott Tandy -I
Chief Assistant County Administrator
From: Gai-v T Y y
by Re stein, D.A. Chief of Administration and Planning
Date: August 16, 1988
Subject: Response to 1987-88 Grand Jury Recommendation
As you requested, we are submitting a response to the recommendation of the
1987-88 Contra Costa County Grand Jury, Final Report, p. - 210, No.2. Our
response is as follows:
The District Attorney's Office has established procedures to improve
financial monitoring of the County contract for the Rape Crisis Center
of West Contra Costa, which provides services in West and Central
County. These improvements are built into the agency's contract with
the County for fiscal year 1988-89. The basic structure of the
payment has been changed to cost reimbursement, after a one-month
initial advance. Also, new contract provisions have been added to
increase financial accountability. These include:
a. The Contractor must obtain an annual independent financial
audit, which accounts for funds received under the County
contract separately, as well as for all sources of funding of the
Contractor. this audit must be provided to the County within 90
days of the termination of the contract.
b. All time sheets submitted as documentation must be signed by
the employee and the employee's supervisor.
c. Line item changes of greater than five percent or changes in
the County-funded positions require prior written approval of the
D.A. 's Office.
d. The, County will have access to all the Contractor's financial
records regardless of funding source.
Please contact me, if you want any additional information.