Los Angeles County Grand Jury
2017-2018
Additional Recommendations
3
Not linked to specific findings.
R1:
the medical examiner’s jurisdiction is accepted
R2:
the coroner’s authorization is granted
R3:
or the receipt of an externally referred decedent 7.2 Address the need for more Forensic Pathologists. Increase the starting salaries to be comparable to those in private practice. Consider providing subsidized housing. 7.3 Address the deficiency caused by the delay in the release of decedents from the hospital, once the physician calls the time of death, and the release of the decedent from the hospital to the coroner. 7.4 The CEO and DHR should work with DME-C to explore: 1) Easing of Banding selections beyond “V” and Band 1 to help recruiting and hiring of Coroner Investigator Trainees 2) helping fill lower level support staff positions 3) filling technical positions as a priority 4) working with DHS Human Resources to accelerate the application process necessary to fill vacant positions 5) creating a strong relationship with local colleges and universities for greater exposure to job opportunities. 7.5 DHS should provide Hospital Administrators enough staffing for the ODA unit regarding mortuary attendants, mortuary aids and crematory operators. Provide three new Morgue Vans and staffing for transportation and pick-up of decedents. DHS should provide adequate, clearly marked, parking spaces at the loading dock for the Office of Decedent Affairs (ODA) to address delivery and pick-up of decedents. Provide three new crematory retorts to replace the end of life retorts now in use 7.6 Replace the existing outdoors Office of Decedent Affairs (ODA) Crypt containers with an in-house storage Crypt for all un-claimed and unidentified decedents. The ODA Refrigerant Units need to be upgraded or replaced with more modern and technically advanced units. 7.7 Provide a stable modernized efficient version of CME (case management enterprise) to replace the current inadequate and outdated version. Provide a modernized efficient Case Management System (CMS). Provide additional personnel for project management, implementation and maintenance of the new case management system. 7.8 CEO should consider outsourcing a cohort of cases to private forensic laboratories. This cohort could consist of the victims of automobile collisions, suspected drug overdoses, auto versus pedestrian deaths and other overt causes. 7.9 The B.O.S. and CEO should study the need for a capital project regarding replacing or remodeling the Coroner’s current facility. This new facility would consolidate all operations under one roof. It could be funded as was the new Los Angeles Hertzberg Davis Forensic Laboratory with a State Bond Issue and perhaps additional funding from USC, Los Angeles County and the Keck Foundation. 200 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT
Additional Recommendations
3
Not linked to specific findings.
R1:
the medical examiner’s jurisdiction is accepted
R2:
the coroner’s authorization is granted
R3:
or the receipt of an externally referred decedent 7.2 Address the need for more Forensic Pathologists. Increase the starting salaries to be comparable to those in private practice. Consider providing subsidized housing. 7.3 Address the deficiency caused by the delay in the release of decedents from the hospital, once the physician calls the time of death, and the release of the decedent from the hospital to the coroner. 7.4 The CEO and DHR should work with DME-C to explore: 1) Easing of Banding selections beyond “V” and Band 1 to help recruiting and hiring of Coroner Investigator Trainees 2) helping fill lower level support staff positions 3) filling technical positions as a priority 4) working with DHS Human Resources to accelerate the application process necessary to fill vacant positions 5) creating a strong relationship with local colleges and universities for greater exposure to job opportunities. 7.5 DHS should provide Hospital Administrators enough staffing for the ODA unit regarding mortuary attendants, mortuary aids and crematory operators. Provide three new Morgue Vans and staffing for transportation and pick-up of decedents. DHS should provide adequate, clearly marked, parking spaces at the loading dock for the Office of Decedent Affairs (ODA) to address delivery and pick-up of decedents. Provide three new crematory retorts to replace the end of life retorts now in use 7.6 Replace the existing outdoors Office of Decedent Affairs (ODA) Crypt containers with an in-house storage Crypt for all un-claimed and unidentified decedents. The ODA Refrigerant Units need to be upgraded or replaced with more modern and technically advanced units. 7.7 Provide a stable modernized efficient version of CME (case management enterprise) to replace the current inadequate and outdated version. Provide a modernized efficient Case Management System (CMS). Provide additional personnel for project management, implementation and maintenance of the new case management system. 7.8 CEO should consider outsourcing a cohort of cases to private forensic laboratories. This cohort could consist of the victims of automobile collisions, suspected drug overdoses, auto versus pedestrian deaths and other overt causes. 7.9 The B.O.S. and CEO should study the need for a capital project regarding replacing or remodeling the Coroner’s current facility. This new facility would consolidate all operations under one roof. It could be funded as was the new Los Angeles Hertzberg Davis Forensic Laboratory with a State Bond Issue and perhaps additional funding from USC, Los Angeles County and the Keck Foundation. 200 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT
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Findings & Recommendations
3 findings
F1:
Los Angeles County Public Works • Los Angeles County, annual forecast budget is $80 -100 million • Slurry and concrete repair work are performed every 3 years • Asphalt surfaces at bus stops are being replaced with concrete surfaces • Sinkholes are filled every 1-2 years • Street resurfacing is rarely done • A generic telephone number is utilized for each jurisdiction to report potholes15
F2:
Long Beach Public Works • The Port of Long Beach is responsible for road maintenance in their area • Public Works is responsible for preparation and maintenance for special events, such as the Long Beach Grand Prix • The City of Long Beach utilizes a smart phone application to take a picture of potholes, which sends the picture to the Public Works Department16
F3:
Los Angeles City Street Department • The Department operates on annual budget of $140–153 million • Utilizes hydraulic pressure or pressurized water to prepare the hole before the pothole is repaired • Inspects the city streets every 3 years • Repairs and maintains all airport streets • Offers an online basic assessment of pavement conditions around the city 15 Interview with a high level manager from Los Angeles County Department of Public Works, January 9, 2018 16 Interview with a high level manager from Long Beach City Department of Public Works, Public Service Bureau, January 12, 2018 210 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT
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Findings & Recommendations
3 findings
F1:
Los Angeles County Public Works • Los Angeles County, annual forecast budget is $80 -100 million • Slurry and concrete repair work are performed every 3 years • Asphalt surfaces at bus stops are being replaced with concrete surfaces • Sinkholes are filled every 1-2 years • Street resurfacing is rarely done • A generic telephone number is utilized for each jurisdiction to report potholes15
F2:
Long Beach Public Works • The Port of Long Beach is responsible for road maintenance in their area • Public Works is responsible for preparation and maintenance for special events, such as the Long Beach Grand Prix • The City of Long Beach utilizes a smart phone application to take a picture of potholes, which sends the picture to the Public Works Department16
F3:
Los Angeles City Street Department • The Department operates on annual budget of $140–153 million • Utilizes hydraulic pressure or pressurized water to prepare the hole before the pothole is repaired • Inspects the city streets every 3 years • Repairs and maintains all airport streets • Offers an online basic assessment of pavement conditions around the city 15 Interview with a high level manager from Los Angeles County Department of Public Works, January 9, 2018 16 Interview with a high level manager from Long Beach City Department of Public Works, Public Service Bureau, January 12, 2018 210 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT
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Findings & Recommendations
5 findings
F1:
The availability of forms for making citizen complaints for some police departments could be improved. All twelve police departments met the basic requirement that they establish a procedure to investigate complaints by members of the public against their police personnel. As Exhibit 1 shows, only three of the police departments had clear signage showing the location of complaint forms in the police station. None of the police departments had signage in languages other than English. All twelve of the police departments had complaint forms available in their police stations. However, the complaint form was only freely available at five of the police departments. For the other seven police departments, a person wanting to make a complaint would have to request the complaint form. This request may be made to the police personnel at the reception area or may require the person to obtain the form from a police supervisor or the watch commander. This practice may tend to discourage persons from making a complaint. However, the rationale provided by most police departments for this practice was to ensure there was not a simple misunderstanding rather than an actual complaint. Others stated that they encourage persons making complaints to talk with a supervisor or the watch commander, so they can get a complete and intelligible statement, including any evidence such as video or photos. Only four of the police departments had complaint forms available at other public facilities like city hall, libraries, and community centers. One police department stated that forms were also available through the local chapter of the National Association for the Advancement of Colored People (NAACP). 14 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 1 Availability of Citizen Complaint Forms Signage Access to Complaint Form Website Signage in Other Police Clear Police Freely Multiple Multiple Multiple Public English Department Signage Station Available Languages Languages Languages Facilities Bell Gardens No No Yes No No Yes No No Burbank Yes No Yes Yes Yes Yes Yes Yes Culver City No No Yes No No Yes No No El Monte No No Yes No No Yes No No Glendale No No Yes No Yes Yes Yes Yes Inglewood Yes No Yes Yes No Yes Yes Yes Pasadena Yes No Yes Yes Yes Yes Yes Yes Pomona No No Yes No Yes No Yes No San Fernando No No Yes Yes No Yes No No South Gate No No Yes No No Yes Yes No Torrance No No Yes Yes No Yes Yes Yes West Covina No No Yes No No No No No Two of the police departments provide the complaint form in English only. Ten of the police departments provided complaint forms in multiple languages that included English, Spanish, Armenian, Japanese, Korean, Chinese, French and Indonesian. Some departments stated that if a person wants to file a complaint and does not speak English they will provide an interpreter. Five of the police departments did not provide the complaint form on their website. Of the seven that did provide the complaint form on their website, all but one provided the complaint form in multiple languages. B. Convenience of Making Citizen Complaints For a citizen police complaint system to be effective, it should be fairly convenient and straightforward for an individual to make a police complaint. This includes providing multiple ways for a complaint to be filed, including in person, through the mail, by telephone, or completing the complaint form online. It also includes allowing persons to make complaints anonymously.
F2:
The convenience of making citizen complaints could be improved for some police departments. As Exhibit 2 shows, all the police departments accepted complaints in person. All but one police department (San Fernando) accepts complaints through either the mail or telephone. San Fernando accepts complaints by mail, but does not accept complaints over the telephone. Only two of the police departments (Burbank and Torrance) had a capability on their website to file a complaint. Some people may want to remain anonymous when making a complaint. Anonymous complaints can provide valuable information. As Exhibit 2 shows, all of the police departments 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 15 allow persons making a complaint to remain anonymous, although all encourage them to identify themselves, so they can get statements and information from them and follow up with them. Exhibit 2 Convenience of Making Citizen Complaints Ways of Making Complaints Police Department In Person By Mail By Telephone Online Anonymously Bell Gardens Yes Yes Yes No Yes Burbank Yes Yes Yes Yes Yes Culver City Yes Yes Yes No Yes El Monte Yes Yes Yes No Yes Glendale Yes Yes Yes No Yes Inglewood Yes Yes Yes No Yes Pasadena Yes Yes Yes No Yes Pomona Yes Yes Yes No Yes San Fernando Yes Yes No No Yes South Gate Yes Yes Yes No Yes Torrance Yes Yes Yes Yes Yes West Covina Yes Yes Yes No Yes C. Admonitions/Warnings on Citizen Complaint Forms Some individuals may be reluctant to file a complaint for fear of reprisal from the officer or officers they are complaining against or the police department itself. Ideally, the complaint form and process should not in any way intimidate or discourage persons from making complaints.
F3:
Some police departments include admonitions/warnings that may intimidate or discourage persons from making complaints on complaint forms or related materials. As Exhibit 3 shows, two police departments (South Gate and Torrance) include the warning, Penal Code 148.6, that a complainant making a false claim against a police officer can be prosecuted for a misdemeanor. As Exhibit 3 shows, only one police department (Torrance) includes the warning from California Civil Code 47.5, which indicates that a peace officer may bring a civil action for defamation against an individual who has filed a complaint with the officers employing agency alleging misconduct, criminal conduct, or incompetence, if the complaint is false, the complaint was made with the knowledge that it was false and that it was made with spite, hatred or ill will. The knowledge that the complaint was false may be proven by a showing that the complainant had no reasonable ground to believe the statement was true and that the complainant exhibited a reckless disregard for ascertaining the truth. 16 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 3 Warnings When Making Citizen Complaints False Claim Defamation Perjury Possible Polygraph Police Department Warning Warning Warning Warning (PC146.8) (CC47.5) Bell Gardens No No No No Burbank No No No No Culver City No No No No El Monte No No No No Glendale No No Yes No Inglewood No No No No Pasadena No No Yes No Pomona No No No No San Fernando No No No No South Gate Yes No No No Torrance Yes Yes No No West Covina No No No Yes Another warning against making a false claim is that requiring the complaint form be signed under “penalty of perjury.” Two police departments (Glendale and Pasadena) include such statements on their complaint forms. The Glendale form states: “I declare under penalty of perjury that the statements I have made are truthful and accurate to the best of my ability.” The Pasadena Police complaint form states: “I declare under penalty of perjury pursuant to the laws of the State of California that the foregoing information I have provided regarding this complaint is true and correct”. Perjury can be charged as a misdemeanor or a felony. A final warning that may intimidate or discourage persons from making complaints is the potential to be subjected to a polygraph examination. Only one police department (West Covina) includes this warning. The West Covina Police complaint brochure states: “In certain cases where we can't find the truth any other way, you may be asked to take a polygraph examination. The same is true for our officers.” D. Communication with Complainants A meaningful and effective citizen police complaint system requires clear and thorough communication with those making complaints. A key element of this communication is information on the procedure for receiving and investigating complaints. The California Penal Code Penal Code 832.5(a)(1) requires that every police department establish a procedure to investigate complaints by members of the public against the personnel of these departments or agencies and shall make a written description of the procedure available to the public. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 17
F4:
The Bell Gardens and San Fernando police department were not in compliance with the requirement that they make a written description of the procedure for investigating complaints available to the public. As shown in Exhibit 4, ten of the police departments had written descriptions of the procedure available to the public as required by the penal code. Two police departments (Bell Gardens and San Fernando) had no written procedures available and are not in compliance with the Penal Code 832.5(a)(1) requirement. Effective communication with complainants also requires that complainants have an opportunity to provide complete information on the incident that generated the complaint. This requires that the complaint form include all the pertinent information, including a description of what occurred to generate the complaint.
F5:
The El Monte and South Gate police department complaint form do not provide an opportunity for the complaining party to provide a statement or description of what occurred to generate the complaint. As Exhibit 4 shows, ten of the police department’s complaint forms included the appropriate content, including a description of what occurred to generate the complaint. The complaint form for two police departments (El Monte and South Gate) did not provide an opportunity for the complaining party to provide a statement or description of what occurred to generate the complaint. Ideally, persons making a complaint would have the ability to make a complaint without attempts to resolve the complaint prior to it being accepted and logged. As Exhibit 4 shows, ten of the police departments attempt to resolve complaints prior to them being accepted and logged. When asked for the rationale for this practice one police department stated: “When people come into the lobby and say they want to make a complaint about an officer and a watch commander is available, we have face time with them. Often time complaints are about why did they get a ticket or why was my son arrested, and so forth. This face times allows for an explanation and many times the person is satisfied. We don’t like to load our complaint log with items that have nothing to do with policy violations or criminal violations.” Two police departments stated they do not make such attempts to resolve complaints prior to their acceptance and logging. The California Penal Code 832.7(b) requires that each police department receiving a citizen complaint release to the complaining party a copy of their statement, in his or her own words, at the time the complaint is filed. 18 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT
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Findings & Recommendations
5 findings
F1:
The availability of forms for making citizen complaints for some police departments could be improved. All twelve police departments met the basic requirement that they establish a procedure to investigate complaints by members of the public against their police personnel. As Exhibit 1 shows, only three of the police departments had clear signage showing the location of complaint forms in the police station. None of the police departments had signage in languages other than English. All twelve of the police departments had complaint forms available in their police stations. However, the complaint form was only freely available at five of the police departments. For the other seven police departments, a person wanting to make a complaint would have to request the complaint form. This request may be made to the police personnel at the reception area or may require the person to obtain the form from a police supervisor or the watch commander. This practice may tend to discourage persons from making a complaint. However, the rationale provided by most police departments for this practice was to ensure there was not a simple misunderstanding rather than an actual complaint. Others stated that they encourage persons making complaints to talk with a supervisor or the watch commander, so they can get a complete and intelligible statement, including any evidence such as video or photos. Only four of the police departments had complaint forms available at other public facilities like city hall, libraries, and community centers. One police department stated that forms were also available through the local chapter of the National Association for the Advancement of Colored People (NAACP). 14 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 1 Availability of Citizen Complaint Forms Signage Access to Complaint Form Website Signage in Other Police Clear Police Freely Multiple Multiple Multiple Public English Department Signage Station Available Languages Languages Languages Facilities Bell Gardens No No Yes No No Yes No No Burbank Yes No Yes Yes Yes Yes Yes Yes Culver City No No Yes No No Yes No No El Monte No No Yes No No Yes No No Glendale No No Yes No Yes Yes Yes Yes Inglewood Yes No Yes Yes No Yes Yes Yes Pasadena Yes No Yes Yes Yes Yes Yes Yes Pomona No No Yes No Yes No Yes No San Fernando No No Yes Yes No Yes No No South Gate No No Yes No No Yes Yes No Torrance No No Yes Yes No Yes Yes Yes West Covina No No Yes No No No No No Two of the police departments provide the complaint form in English only. Ten of the police departments provided complaint forms in multiple languages that included English, Spanish, Armenian, Japanese, Korean, Chinese, French and Indonesian. Some departments stated that if a person wants to file a complaint and does not speak English they will provide an interpreter. Five of the police departments did not provide the complaint form on their website. Of the seven that did provide the complaint form on their website, all but one provided the complaint form in multiple languages. B. Convenience of Making Citizen Complaints For a citizen police complaint system to be effective, it should be fairly convenient and straightforward for an individual to make a police complaint. This includes providing multiple ways for a complaint to be filed, including in person, through the mail, by telephone, or completing the complaint form online. It also includes allowing persons to make complaints anonymously.
F2:
The convenience of making citizen complaints could be improved for some police departments. As Exhibit 2 shows, all the police departments accepted complaints in person. All but one police department (San Fernando) accepts complaints through either the mail or telephone. San Fernando accepts complaints by mail, but does not accept complaints over the telephone. Only two of the police departments (Burbank and Torrance) had a capability on their website to file a complaint. Some people may want to remain anonymous when making a complaint. Anonymous complaints can provide valuable information. As Exhibit 2 shows, all of the police departments 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 15 allow persons making a complaint to remain anonymous, although all encourage them to identify themselves, so they can get statements and information from them and follow up with them. Exhibit 2 Convenience of Making Citizen Complaints Ways of Making Complaints Police Department In Person By Mail By Telephone Online Anonymously Bell Gardens Yes Yes Yes No Yes Burbank Yes Yes Yes Yes Yes Culver City Yes Yes Yes No Yes El Monte Yes Yes Yes No Yes Glendale Yes Yes Yes No Yes Inglewood Yes Yes Yes No Yes Pasadena Yes Yes Yes No Yes Pomona Yes Yes Yes No Yes San Fernando Yes Yes No No Yes South Gate Yes Yes Yes No Yes Torrance Yes Yes Yes Yes Yes West Covina Yes Yes Yes No Yes C. Admonitions/Warnings on Citizen Complaint Forms Some individuals may be reluctant to file a complaint for fear of reprisal from the officer or officers they are complaining against or the police department itself. Ideally, the complaint form and process should not in any way intimidate or discourage persons from making complaints.
F3:
Some police departments include admonitions/warnings that may intimidate or discourage persons from making complaints on complaint forms or related materials. As Exhibit 3 shows, two police departments (South Gate and Torrance) include the warning, Penal Code 148.6, that a complainant making a false claim against a police officer can be prosecuted for a misdemeanor. As Exhibit 3 shows, only one police department (Torrance) includes the warning from California Civil Code 47.5, which indicates that a peace officer may bring a civil action for defamation against an individual who has filed a complaint with the officers employing agency alleging misconduct, criminal conduct, or incompetence, if the complaint is false, the complaint was made with the knowledge that it was false and that it was made with spite, hatred or ill will. The knowledge that the complaint was false may be proven by a showing that the complainant had no reasonable ground to believe the statement was true and that the complainant exhibited a reckless disregard for ascertaining the truth. 16 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 3 Warnings When Making Citizen Complaints False Claim Defamation Perjury Possible Polygraph Police Department Warning Warning Warning Warning (PC146.8) (CC47.5) Bell Gardens No No No No Burbank No No No No Culver City No No No No El Monte No No No No Glendale No No Yes No Inglewood No No No No Pasadena No No Yes No Pomona No No No No San Fernando No No No No South Gate Yes No No No Torrance Yes Yes No No West Covina No No No Yes Another warning against making a false claim is that requiring the complaint form be signed under “penalty of perjury.” Two police departments (Glendale and Pasadena) include such statements on their complaint forms. The Glendale form states: “I declare under penalty of perjury that the statements I have made are truthful and accurate to the best of my ability.” The Pasadena Police complaint form states: “I declare under penalty of perjury pursuant to the laws of the State of California that the foregoing information I have provided regarding this complaint is true and correct”. Perjury can be charged as a misdemeanor or a felony. A final warning that may intimidate or discourage persons from making complaints is the potential to be subjected to a polygraph examination. Only one police department (West Covina) includes this warning. The West Covina Police complaint brochure states: “In certain cases where we can't find the truth any other way, you may be asked to take a polygraph examination. The same is true for our officers.” D. Communication with Complainants A meaningful and effective citizen police complaint system requires clear and thorough communication with those making complaints. A key element of this communication is information on the procedure for receiving and investigating complaints. The California Penal Code Penal Code 832.5(a)(1) requires that every police department establish a procedure to investigate complaints by members of the public against the personnel of these departments or agencies and shall make a written description of the procedure available to the public. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 17
F4:
The Bell Gardens and San Fernando police department were not in compliance with the requirement that they make a written description of the procedure for investigating complaints available to the public. As shown in Exhibit 4, ten of the police departments had written descriptions of the procedure available to the public as required by the penal code. Two police departments (Bell Gardens and San Fernando) had no written procedures available and are not in compliance with the Penal Code 832.5(a)(1) requirement. Effective communication with complainants also requires that complainants have an opportunity to provide complete information on the incident that generated the complaint. This requires that the complaint form include all the pertinent information, including a description of what occurred to generate the complaint.
F5:
The El Monte and South Gate police department complaint form do not provide an opportunity for the complaining party to provide a statement or description of what occurred to generate the complaint. As Exhibit 4 shows, ten of the police department’s complaint forms included the appropriate content, including a description of what occurred to generate the complaint. The complaint form for two police departments (El Monte and South Gate) did not provide an opportunity for the complaining party to provide a statement or description of what occurred to generate the complaint. Ideally, persons making a complaint would have the ability to make a complaint without attempts to resolve the complaint prior to it being accepted and logged. As Exhibit 4 shows, ten of the police departments attempt to resolve complaints prior to them being accepted and logged. When asked for the rationale for this practice one police department stated: “When people come into the lobby and say they want to make a complaint about an officer and a watch commander is available, we have face time with them. Often time complaints are about why did they get a ticket or why was my son arrested, and so forth. This face times allows for an explanation and many times the person is satisfied. We don’t like to load our complaint log with items that have nothing to do with policy violations or criminal violations.” Two police departments stated they do not make such attempts to resolve complaints prior to their acceptance and logging. The California Penal Code 832.7(b) requires that each police department receiving a citizen complaint release to the complaining party a copy of their statement, in his or her own words, at the time the complaint is filed. 18 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT
Findings & Recommendations
10 findings
F1:
Many areas of Los Angeles County have unmet needs for park space and recreational amenities. Over half (52.6%) of the people living in the County live in areas with too few parks and park- land. Of these, 20.4% live in areas determined to have a “high” need for park-land, and 32.2% live in areas determined to have a “very high” need for park-land. Park acres per 1,000 people, is a common measurement of the number of park acres available in a given area. Because it accounts for population size, this measurement can be utilized across geographic areas to give an understanding of how much park-land residents have access to in any 34 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT given area. Park acres per 1,000 people were also used in the Countywide Parks Needs Assessment on a Study Area level, as well as on the level of individual parks. The County approved a standard of 4 acres per 1,000 people in the most recent County General Plan. Overall, the County has 3.3 acres of local and regional recreation park-land per 1,000 persons. Study Areas defined as having a high need for parks average less than 1.6 park acres per 1,000 people, and Study Areas having very high need for parks average less than 0.7 park acres per 1,000 people. However, there are exceptions to these thresholds depending on the effect of other factors used to calculate park need. These additional factors include park condition, access, amenities and park pressure. Recreational amenities at parks are also Exhibit 1 important to both individual and community Recreational Amenities per 100,000 Residents in L.A. health. Exhibit 1 shows the County is County Compared to National Averages substantially below the national average for the number of recreational amenities per 100,000 residents. Park accessibility is determined based on each household’s distance from a park. The Trust for Public Land’s Center for City Park Excellence identified a ½ mile (approximately 10 minutes) walk to a park as the distance that most pedestrians are willing to walk to reach a park. This distance has been widely adopted as a standard for providing nearby access to parks and open space. Overall, 51% of the County population lives more than a ½ mile of a park. B. Public Park-land Devoted to Golf Within the County, 7,739 acres are devoted to County and municipally owned golf courses. It is also important to note that an additional 5,486 acres of privately-owned land and green space is devoted to golf. Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, May 2016
F2:
A significant percentage of local government park-land in Los Angeles County is devoted to golf. The Countywide Parks Needs Assessment’s Parks & Open Space Inventory identifies 1,602 Local Parks totaling 15,723 acres. The Assessment also identifies 17 Regional Recreation Parks totaling 18,248 acres. The 55 County and municipal golf courses total approximately 7,739 acres. Exhibit 2 shows County and municipal golf course acreage representing a significant portion (18%) of the combined Local Park and Regional Recreation Park space in the County. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 35 Exhibit 2 County and Municipal Park-land in Los Angeles County Acres by Type of Use 7,739 Acres 18% 55 Golf Courses 15,723 Acres 38% 1,602 Local Parks 17 Regional Recreation Parks 18,248 Acres 44% Sources: Local Park and Regional Recreation Park Acres: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, May 2016, Executive Summary, page III. Golf Course Acres: City of Los Angeles Department of Recreation and Parks, 2009 Citywide Community Needs Assessment, Figure 1.9.3.c, . Although the 55 County and municipal golf courses were not included in the Countywide Parks Needs Assessment’s Parks & Open Space Inventory or the Assessment’s Study Areas, these golf courses fit well with the Assessment’s definition of Local Parks. Note: If golf course acreage is combined only with Local Park acreage, the County and municipal golf courses would represent nearly one-third of the County’s total Local Park acreage. Golf course acreage represents a significant investment in green and open space in the County. C. Trends in the Demand for Golf More than a decade ago, when the sport of golf was a playground for the professional set and a young Californian named Tiger Woods was the world’s best player, golf looked like an unassailable national undertaking with strong corporate involvement and sponsorship. However, the number of golfers and the number of golf rounds played over the last 10+ years has been declining. 36 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT
F3:
Trends in golf participation show a declining demand for golf Nationally, a decline in the number of active players has been experienced by the entire public, private, and municipal golf industry. The National Golf Foundation (NGF.org) conducts research annually on the number of golfers and their level of participation. This information is published in their annual Golf Participation in the U.S. report. The following Exhibit shows the reported number of golfers from 2005 to 2017. Exhibit 3 Golf Participation / All U.S. Golfers (People age 6+ who played golf on a golf course - in millions) 32 30 30 28 26.1 25.7 26 25.3 24.7 24.7 24.7 24.1 23.8 24 22 20 2005 2010 2011 2012 2013 2014 2015 2016 2017 Source: National Golf Foundation Annual Golf Participation Report (2013 and 2017 editions) More than 800 golf courses have closed nationwide in the last decade, as operators grapple with declining interest in the sport and a glut of competition.7 This decline in the demand for golf presents opportunities for local public agencies responsible for ownership and operation of golf courses to address the need for additional park acreage. Because of the nature and logistics of golf course design, courses are well-suited for expanding their use or repurposing in areas of high need for parks and recreational amenities. Among the 55 golf courses, there are 13 courses located in areas of high or very high park need as defined in the Countywide Parks Needs Assessment. Because of their location in high or very high park need areas; these 13 courses were made the focus of this CGJ investigation. America’s Golf Courses are Burning, Patricia Clark, Bloomberg, August 15, 2016 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 37 D. Los Angeles County Golf Courses in Study Areas with High or Very High Park Need The County operates five golf courses located within Study Areas identified as having either a high or very high need for additional park-land. Victoria Golf Course has been omitted from this investigation due to a recent initiative by BOS to repurpose this course into a community recreational center. The County’s golf courses included in this investigation are: • Alondra Golf Course (18 and 9 Hole Courses) • Chester Washington Golf Course (18 Hole Course) • Los Amigos Golf Course (18 Hole Course) • Maggie Hathaway Golf Course (9 Hole Course) • Don Knabe Golf Center (9 Hole Course)
F4:
The Los Angeles County has golf courses in areas determined to have high or very high need for additional park-land. The trends over the past ten years show a decline in demand for golf at most of these golf courses. The following Exhibit 4 shows three golf courses that have experienced declining volumes of rounds played along with declining or flat net revenues over the past 10 years. Exhibit 4 Overview of Los Angeles County Golf Courses Change Over 10 Year Period Golf Courses in Areas Total Park Need Rounds Total Net with High Park Need Acreage Category Played Revenues Revenues Alondra (9 and 18 Hole) 214 Very High (24%) (3%) (50%) Chester Washington 131 Very High (16%) (4%) 0% Los Amigos 127 High 3% 39% 187% Maggie Hathaway 12 Very High (40%) (14%) (64%) Don Knabe 11 High NA NA NA Source: Los Angeles County Department of Parks and Recreation (PAR). Note: Don Knabe Golf Center was re-opened by PAR in July 2017 The following sections provide overviews of park need in the Study Areas where these golf courses are located, as well as information on the trends in the number of golf rounds played and the revenues and expenditures for each course. 38 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Alondra Golf Course Exhibit 5 shows the Study Area has 2.3 acres of park-land per 1,000 people, somewhat below the County average of 3.3 acres. The Study Area is defined as having a very high need for additional park-land. The percentage of residents living within ½ mile of a park is 62%, which compares favorably with the County average of 49%. The Alondra Golf Course occupies 214 acres, including 155 acres for the 18-hole course, and 59 acres for the 9-hole course. The percentage of land devoted to golf in the Study Area is high at 89%, compared to just 11% devoted to park-land. Exhibit 5 Alondra Golf Course Park Need Study Area 34 - Unincorporated Hawthorne - Alondra Park Park Need Category: Very High Study Area Population 11,361 Within ½ Mile of a Park 62% Park Acres, Park Acres / 1,000 2.3 25.9, 11% Local Park Acres 25.9 Total Golf Acres 214 Alondra 18 Hole: 155 Alondra 9 Hole: 59 Golf Acres, 214, 89% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, May 2016 Exhibit 6 shows the number of rounds of golf played has declined approximately 24% over the past 10 years. The exhibit also shows that total revenues have only declined by 3% over the ten- year time period. However, net revenues declined by 50% over the same period. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 39 Exhibit 6 Alondra Golf Rounds Played Fiscal Year 2007-08 to 2016-17 Alondra Golf Revenue, Expenditure and Net Revenue Trends Fiscal Year 2007-08 to 2016-17 $4,500,000 $4,000,000 3,759,867 3,848,335 3,851,651 3,691,934 3,896,255 3,989,750 3,973,605 3,651,162 3,739,968 3,642,374 $3,500,000 $3,000,000 3,384,716 3,343,447 3,315,778 3,324,756 3,404,290 3,152,256 3,206,872 $2,500,000 2,965,686 $2,702,184 $2,000,000 $1,500,000 1,057,683 885,965 $1,000,000 463,619 539,678 552,808 673,972 648,849 533,096 $500,000 246,872 Total Revenues Total Expenditures Net Revenues $0 FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Fiscal Year Percentage FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Change Total Revenues $3,759,867 $3,848,335 $3,851,651 $3,691,934 $3,896,255 $3,989,750 $3,973,605 $3,651,162 $3,739,968 $3,642,374 -3% Total Expenditures $2,702,184 $3,384,716 $2,965,686 $3,152,256 $3,343,447 $3,315,778 $3,324,756 $3,404,290 $3,206,872 NA 19% Net Revenues $1,057,683 $463,619 $885,965 $539,678 $552,808 $673,972 $648,849 $246,872 $533,096 NA -50% Source: Los Angeles County Department of Parks and Recreation 40 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Chester Washington Golf Course Exhibit 7 shows the Study Area has just 0.2 acres of park-land per 1,000 people, substantially below the County average of 3.3 acres. Given this, the Study Area is defined as having a very high need for additional park-land. The percentage of residents living within ½ mile of a park is 26%, which is also substantially below the County average of 49%. The Chester Washington Golf Course occupies a total of 131 acres for the 18-hole golf course. The percentage of land devoted to golf in the Study Area is high at 95%, compared to just 5% devoted to park-land. Exhibit 7 Chester Washington Golf Course Park Need Study Area 22 - Unincorporated West Athens-Westmont Park Need Category: Very High Study Area Population 41,288 Within ½ Mile of a Park 26% Park Acres / 1,000 0.2 Park Acres, Local Park Acres 7 7, 5% Golf Acres 131 Golf Acres, 131, 95% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, M ay 2016 Exhibit 8 shows the number of rounds of golf played has declined approximately 16% over the past 10 years. The exhibit also shows total revenues have declined by 4% over the same period and net revenues remained fairly stable. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 41 Exhibit 8 Chester Washington Golf Rounds Played Fiscal Year 2007-08 to 2016-17 Chester Washington Golf Revenue, Expenditure and Net Revenue Trends Fiscal Year 2007-08 to 2016-17 $4,500,000 $4,000,000 3,698,460 3,865,358 3,830,352 3,676,189 3,815,690 3,688,125 3,714,318 3,651,931 3,709,286 3,566,546 $3,500,000 $3,000,000 $2,500,000 2,899,789 2,847,453 2,790,372 2,790,506 2,931,403 3,113,109 3,174,913 3,086,280 2,913,848 $2,000,000 $1,500,000 1,017,904 1,039,980 798,672 885,682 884,287 795,439 $1,000,000 575,015 539,405 565,651 $500,000 Total Revenues Total Expenditures Net Revenues $0 FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Fiscal Year Percentage FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Change Total Revenues $ 3 ,698,460 $ 3 ,865,358 $ 3 ,830,352 $ 3 ,676,189 $ 3 ,815,690 $ 3 ,688,125 $ 3 ,714,318 $ 3 ,651,931 $ 3 ,709,286 $ 3 ,566,546 -4% Total Expenditures $2,899,789 $2,847,453 $2,790,372 $2,790,506 $2,931,403 $3,113,109 $3,174,913 $3,086,280 $2,913,848 NA 0% Net Revenues $798,672 $1,017,904 $1,039,980 $885,682 $884,287 $575,015 $539,405 $565,651 $795,439 NA 0% Source: Los Angeles County Department of Parks and Recreation 42 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Los Amigos Golf Course Exhibit 9 shows the Study Area has 1.1 acres of park-land per 1,000 people, substantially below the County average of 3.3 acres. Given this, the Study Area is defined as having a high need for additional park-land. The percentage of residents living within ½ mile of a park is 26%, which is also substantially below the County average of 49%. The Los Amigos Golf Course occupies a total of 127 acres for the golf course. The percentage of land devoted to golf in the Study Area is 50%, with the other 50% devoted to park-land. Exhibit 9 Los Amigos Golf Course Park Need Study Area 162 - City of Downey Park Need Category: High Study Area Population 113,741 Within ½ Mile of a Park 26% Park Acres / 1,000 people 1.1 Local Park Acres 125.8 Golf Acres 127 Golf Acres, Park Acres, 127, 50% 125.8, 50% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, May 2016 Exhibit 10 shows the number of rounds of golf played has increased by 3% over the past 10 years. The exhibit also shows total revenues increased by 39% over a ten-year time period and net revenues have increased substantially at 187% over a nine-year period. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 43 Exhibit 10 Los Amigos Golf Rounds Played Fiscal Year 2007-08 to 2016-17 Los Amigos Golf Revenue, Expenditure and Net Revenue Trends Fiscal Year 2007-08 to 2016-17 $4,500,000 4,109,354�� 3,970,217�� 3,761,984�� $4,000,000 3,440,210�� $3,500,000 2,851,905�� 3,324,086�� $3,000,000 2,623,104�� 3,079,287�� 2,399,312�� $2,500,000 2,122,926�� 2,083,988�� 2,206,241�� 2,315,106�� 2,578,587�� $2,000,000 2,297,681�� 2,274,704�� 2,251,957�� 2,296,996�� 1,822,359�� $1,500,000 1,125,104�� $1,000,000 576,953�� 682,697�� 785,268�� 273,318�� 325,423�� $500,000 (151,778)� (167,969)� (90,755)� $0 FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 -$500,000 Total Revenues Total Expenditures Net Revenues Fiscal Year Percentage FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Change Total Revenues $ 2 ,851,905 $ 2 ,623,104 $ 2 ,122,926 $ 2 ,083,988 $ 2 ,206,241 $ 2 ,399,312 $ 3 ,440,210 $ 3 ,761,984 $ 4 ,109,354 $ 3 ,970,217 39% Total Expenditures $2,578,587 $2,297,681 $2,274,704 $2,251,957 $2,296,996 $1,822,359 $2,315,106 $3,079,287 $3,324,086 NA 29% Net Revenues $273,318 $325,423 ($151,778) ($167,969) ($90,755) $576,953 $1,125,104 $682,697 $785,268 NA 187% Source: Los Angeles County Department of Parks and Recreation 44 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Maggie Hathaway Golf Course Exhibit 11 shows the Study Area has just 0.5 acres of park-land per 1,000 people, substantially below the County average of 3.3 acres. Given this, the Study Area is defined as having a very high need for additional park-land. The percentage of residents living within ½ mile of a park is 59%, which compares favorably with the County average of 49%. The Maggie Hathaway Golf Course is a small facility occupying only 12 acres. The percentage of land devoted to golf in the Study Area is 17%, with the other 83% devoted to park-land. Exhibit 11 Maggie Hathaway Golf Course Park Need Study Area 119 - City of LA South Los Angeles Park Need Category: Very High Study Area Population 109,993 Within ½ Mile of a Park 59% Park Acres / 1,000 0.5 Local Park Acres 60.3 Golf Acres, Golf Acres 12 12, 17% Park Acres, 60.3, 83% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, M ay 2016 Exhibit 12 shows the number of rounds of golf played decreased by 40% over the past 10 years. The exhibit also shows total revenues decreased by 14% over a ten-year time period and net revenues have decreased substantially at 64%. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 45 Exhibit 12 Maggie Hathaway Golf Rounds Played Fiscal Year 2007-08 to 2016-17 Maggie Hathaway Golf Revenue, Expenditure and Net Revenue Trends Fiscal Year 2007-08 to 2016-17 $180,000 $160,000 $140,000 $120,000 $100,000 $80,000 $60,000 $40,000 $20,000 $0 FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 -$20,000 Total Revenues Total Expenditures Net Revenues Fiscal Year Percentage FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Change Total Revenues 120,724.98 119,304.11 158,771.86 125,133.99 110,542.73 108,745.80 111,241.65 109,631.71 105,079.00 103,979.10 -14% Total Expenditures 107,767.56 121,914.19 123,106.08 99,151.01 97,045.04 86,821.57 96,863.34 97,387.75 104,238.23 99,364.63 -8% Net Revenues 12,957.42 (2,610.08) 35,665.78 25,982.98 13,497.69 21,924.23 14,378.31 12,243.96 840.77 4,614.47 -64% Source: Los Angeles County Department of Parks and Recreation 46 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Don Knabe Golf Center Exhibit 13 shows the Study Area has just 1.1 acres of park-land per 1,000 people, substantially below the County average of 3.3 acres. Given this, the Study Area is defined as having a high need for additional park-land. The percentage of residents living within ½ mile of a park is 47%, just below the County average of 49%. The Don Knabe Golf Center is a small facility occupying only 11 acres. The percentage of land devoted to golf in the Study Area is 9%, with the other 91% devoted to park-land. Exhibit 13 Don Knabe Golf Center Park Need Study Area 149 - City of Norwalk Park Need Category: High Study Area Population 106,629 Within ½ Mile of a Park 47% Park Acres / 1,000 1.1 Golf Acres, Local Park Acres 113.2 11, 9% Golf Acres 11 Park Acres, 113.2, 91% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, M ay 2016 The County assumed control of the Norwalk Golf Center in 2016, renaming the facility Don Knabe Golf Center after a $13 million makeover completed in July 2017. No activity (rounds played) or financial information was provided by the County for the ten-year review.8 8 The Norwalk Patriot, July 18, 2017. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 47 E. Los Angeles City Golf Courses in Study Areas with High or Very High Park Need The City of Los Angeles operates four golf courses located within Study Areas identified as having either a high or very high need for additional park-land. These golf courses are: • Hansen Dam Golf Course (18 Hole Course) • Penmar Golf Course (18 Hole Course) • Rancho Park 18 Hole Golf Course • Rancho Park 9 Hole Golf Course
F5:
The City of Los Angeles has golf courses in areas determined to have high or very high need for additional park-land. The trends over the past ten years show a decline in demand for golf at these golf courses. As the following Exhibit 14 shows, the number of golf rounds played at all four of these courses has declined over the past ten years. Total and net revenues have declined for two of these golf courses. Exhibit 14 Overview of City of Los Angeles Golf Courses Change Over 10 Year Period Golf Course in Areas Total Park Need Rounds Total Net with High Park Need Acreage Category Played Revenues Revenues Hansen Dam 169 High (23%) 4% (74%) Penmar 47 Very High (10%) (8%) (98%) Rancho Park (9 Hole) 10 High (21%) (8%) 455% Rancho Park (18 Hole) 115 High (12%) 14% 6% Source: Los Angeles City Department of Recreation and Parks The following sections provide an overview of park need in the Study Areas these golf courses are located in, as well as information on the trends in the level of activity, revenues, and expenditures at each golf course. 48 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Hansen Dam Golf Course Exhibit 15 shows, the Study Area has just 0.6 acres of park-land per 1,000 people, significantly below the County average of 3.3 acres. The Study Area is defined as having a high need for additional park-land. The percentage of residents living within ½ mile of a park is 37%, which is below the County average of 49%. The Hansen Dam Golf Course occupies a total of 169 acres. The percentage of land devoted to golf in the Study Area is high at 73%, with the remaining 27% devoted to park-land. It is important to note that this Study Area also includes 419.6 acres of Regional Park land. Exhibit 15 Hansen Dam Golf Course Park Need Study Area 117 - City of LA Arleta-Pacoima Park Need Category: Very High Study Area Population 105,696 Within ½ Mile of a Park 37% Park Acres / 1,000 0.6 Local Park Acres 61.5 Park Acres, Golf Acres 169 61.5, 27% Golf Note: This Study Area includes 419.6 acres Acres, of Regional Park land. 169, 73% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, M ay 2016 Exhibit 16 shows the number of rounds of golf played has decreased by 23% over the past 8 years. The exhibit also shows total revenues increased by 4% over a seven-year time period, while net revenues decreased substantially by 74%. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 49 Exhibit 16 Hansen Dam Golf Rounds Played Fiscal Year 2009-10 to 2016-17 Fiscal Year Percentage FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Change Rounds Played 81,484 64,992 66,751 63,717 66,952 68,124 65,434 62,404 -23% Hansen Dam Golf Revenue, Expenditure and Net Revenue Trends Fiscal Year 2009-10 to Fiscal Year 2016-17 Fiscal Year Percent FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Change Total Revenues $2,207,431 $2,362,382 $2,400,791 $2,495,616 $2,478,886 $2,397,401 $2,302,645 4% Total Expenditures $1,853,192 $2,084,983 $2,237,328 $2,220,562 $2,311,423 $2,335,185 $2,210,547 19% Net Revenues $354,239 $277,399 $163,463 $275,054 $167,463 $62,216 $92,098 -74% Source: Los Angeles Department of Recreation and Parks 50 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Penmar Golf Course Exhibit 17 shows the Study Area has just 0.9 acres of park-land per 1,000 people, significantly below the County average of 3.3 acres. Given this, the Study Area is defined as having a high need for additional park-land. The percentage of residents living within ½ mile of a park is 78%, which compares favorably to the County average of 49%. The Penmar Golf Course occupies a total of 47 acres. The percentage of land devoted to golf in the Study Area is 59%, with the remaining 41% devoted to park-land. Exhibit 17 Penmar Golf Course Park Need Study Area 106 - City of LA Venice Park Need Category: High Study Area Population 37,309 Within ½ Mile of a Park 78% Park Acres / 1,000 0.9 Park Acres 32.6 Park Acres, Golf Acres 47 Golf Acres, 32.6, 41% 47, 59% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, M ay 2016 Exhibit 18 shows the number of rounds of golf played decreased by 10% over the past 8 years. The exhibit also shows total revenues decreased by 8% over a seven-year time period, while net revenues decreased substantially by 98%. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 51 Exhibit 18 Penmar Golf Rounds Played Fiscal Year 2009-10 to 2016-17 Fiscal Year Percentage FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Change Rounds Played 94,751 91,266 93,742 91,523 90,848 87,361 86,610 85,477 -10% Penmar Golf Revenue, Expenditure and Net Revenue Trends Fiscal Year 2009-10 to 2016-17 $1,600,000 1,337,090 1,324,746 $1,400,000 1,277,912 1,276,073 1,213,665 1,188,139 1,228,645 $1,200,000 1,306,627 1,195,169 1,218,759 1,223,302 $1,000,000 1,106,576 1,026,048 1,015,718 $800,000 $600,000 $400,000 311,042 309,028 171,336 $200,000 18,496 5,343 (30,554) (30,620) $0 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 -$200,000 Total Revenues Total Expenditures Net Revenues Fiscal Year Percentage FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Change Total Revenues $1,337,090 $1,324,746 $1,277,912 $1,276,073 $1,213,665 $1,188,139 $1,228,645 -8% Total Expenditures $1,026,048 $1,015,718 $1,106,576 $1,306,627 $1,195,169 $1,218,759 $1,223,302 19% Net Revenues $311,042 $309,028 $171,336 ($30,554) $18,496 ($30,620) $5,343 -98% Source: Los Angeles Department of Recreation and Parks 52 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Rancho Park Golf Courses (9 Hole and 18 Hole) Exhibit 19 shows the Study Area has just 1 acre of park-land per 1,000 people, significantly below the County average of 3.3 acres. Given this, the Study Area is defined as having a high need for additional park-land. The percentage of residents living within ½ mile of a park is 37%, which is below the County average of 49%. The two Rancho Park Golf Courses occupy a total of 125 acres, 115 for the 18-hole course and 10 for the 9-hole course. The percentage of total land devoted to golf in the Study Area is 67%, with the remaining 33% devoted to park-land. Exhibit 19 Rancho Park Golf Courses (9 Hole and 18 Hole) Park Need Study Area 85 - City of L.A. West Los Angeles Park Need Category: High Study Area Population 80,023 Within ½ Mile of a Park 37% Park Acres / 1,000 1 Local Park Acres 78.6 Park Acres, Total Golf Acres 125 61.5, 33% Rancho Park 18 (115) Rancho Park 9 (10) Golf Acres, 125, 67% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, May 2016 Exhibits 20 shows the number of rounds of golf played at the 18-hole course decreased by 12% over the past eight years, and total revenues decreased by 8% over a seven-year time period, while net revenues increased by 6%. Exhibit 21 shows the number of rounds of golf played at the 9-hole course decreased by 21% over the past eight years, and total revenues decreased by 35% over a seven-year time period, while net revenues increased substantially by 455%. Note: At this facility, net revenues vary greatly from year to year. The net revenue percentage change shown here is a comparison of FY 10/11 and FY 16/17 only. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 53
F6:
The Culver City, El Monte, San Fernando and Torrance police departments were not in compliance with the requirement that each police department receiving a citizen complaint release to the complaining party a copy of their own statements at the time the complaint is filed. Exhibit 4 Communication With Complainants Written Appropriate Attempt to Complainant Percent Written Police Department Complaint Complaint Resolve Receives Copy Notification* Procedure* Form Content Prior to Log of Statement* Bell Gardens No Yes Yes Yes 57% Burbank Yes Yes Yes Yes 100% Culver City Yes Yes Yes No 59% El Monte Yes No Yes No 82% Glendale Yes Yes Yes Yes 100% Inglewood Yes Yes No Yes 95% Pasadena Yes Yes Yes Yes 78% Pomona Yes Yes Yes Yes 51% San Fernando No Yes Yes No 8% South Gate Yes No Yes Yes NA Torrance Yes Yes No No 95% West Covina Yes Yes Yes Yes 91% Average % 74% * Required by the Penal Code (832.5, 832.7) Note: Percentage calculations of written notifications within 30 days excludes complaints with investigations pending, complaints generated from within the police department, and complaints with no mailing address, As Exhibit 4 shows, eight of the police departments routinely provided complainants copies of their statement at the time of the complaint. Several of these police departments had complaint forms that were carbonless in triplicate, making it convenient to provide a copy of the completed form to the complainant. Others routinely made copies of the completed complaint form and provided the copy to the complainant. Four police departments did not routinely provide copies of the complainants’ statement as required by the Penal Code. Some of these departments stated they would provide copies, if requested. A standard practice among law enforcement agencies is to send an acknowledgement letter, including a copy of the complainant’s statement, to each person making a complaint. For example, the Los Angeles Sheriff’s Department requires an acknowledgement letter be sent to each complaining party with a copy of their statement within three days of the complaint being received. The policy states: “The letter shall be sent regardless of whether the comment was made in person, by telephone, by electronic means, or by mail.”10 This approach ensures that the Penal Code requirement is met regardless of the method used to make the complaint. Los Angeles Sheriff’s Department Service Comment Report Handbook: Handling Public Complaints 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 19
F7:
Most police departments were not in compliance with the requirement to provide written notification to the complaining party of the disposition of the complaint within 30 days of the disposition. California Penal Code Penal Code 832.7(e)(1) requires that each department provide written notification to the complaining party of the disposition of the complaint within 30 days of the disposition. As shown in Exhibit 4, only two police departments (Burbank and Glendale) were in full compliance with the requirement to provide written notification to the complaining party of the disposition of the complaint. Glendale Police Department uses a software program that includes generating a written letter to the complainant once a disposition is determined. The case cannot be closed until that letter is generated. Other police departments stated they provided verbal notifications, or that there was no written notification made. We found that police departments’ compliance with this requirement averaged 74% for the twelve police departments and ranged from 8% to 100%. South Gate Police Department stated that “a letter is sent to the complainant via United States Postal Service (USPS) and is sent certified mail. When the letter is delivered we keep the USPS copy of the signature tag in the file with the complaint.” However, no other documentation was provided such as the date the letter was sent. E. Investigations of Citizen Complaints The California Penal Code (PC832.5) requires each department that employs peace officers shall establish a procedure to investigate complaints by members of the public against the personnel of these departments. As Exhibit 5 shows, all twelve police departments reviewed had policies in place for investigating such complaints. These policies assigned responsibility for conducting investigations to police personnel at appropriate levels. Exhibit 5 Investigation of Police Citizen Complaints Policy for Investigated at Complaints Numbered Complaint Police Department Investigations* Appropriate Level and Logged Tracking Program Bell Gardens Yes Yes Yes Yes Burbank Yes Yes Yes Yes Culver City Yes Yes Yes No El Monte Yes Yes Yes No Glendale Yes Yes Yes Yes Inglewood Yes Yes Yes Yes Pasadena Yes Yes Yes Yes Pomona Yes Yes Yes Yes San Fernando Yes Yes No No South Gate Yes Yes Yes Yes Torrance Yes Yes Yes Yes West Covina Yes Yes Yes No * Required by the Penal Code (832.5, 832.7) 20 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Effective management of citizen complaint investigations includes numbering and logging each complaint to ensure complaints do not get lost, and that appropriate timelines for completing the investigation are monitored.
F8:
Some police departments could improve the management of complaint investigations, including numbering and logging, as well as tracking and monitoring of key requirements and milestones. As Exhibit 5 shows, eleven of the police departments numbered and logged each complaint. One police department (San Fernando) did not number and log complaints as they were received. A software program or application can be helpful in managing investigations of citizen complaints to ensure investigations do not get lost, and to provide automatic tracking and reminders of key requirements and milestones in investigations. As Exhibit 5 shows, eight of the police departments used a software program or application to assist in managing and tracking investigations. F. Review, Disposition and Follow Up of Citizen Complaints An effective complaint process includes a review of investigations of complaints at an appropriate level, and a review process in place with some assurance that investigations are thorough, and conclusions are valid and well supported. As Exhibit 6 shows, all twelve police departments had clearly defined responsibilities for the review and approval of investigations of complaints about police. In all cases, the ultimate responsibility was with the Chief of Police.
F9:
Findings resulting from investigations of citizen complaints and the use of complaint information to identify potential problems could be improved for some police departments. Law enforcement standards and common practice among law enforcement agencies is that investigations of complaints and allegations against law enforcement personnel result in findings of fact. Law enforcement standards, as established by the Commission on Accreditation for law Enforcement Agencies (CALEA) dictate that these findings be used by the adjudicating officer to reach one of the following determinations:11 Unfounded: Allegation is false or not factual. Exonerated: Incident occurred, but the employee’s actions were lawful, proper and consistent with rules, regulations, policy, or state laws. Not Sustained: Insufficient facts either to prove or disprove the allegation. Sustained: The allegation is found to be substantially true. Generally speaking, the incident occurred and the specifically cited rule(s), regulation(s), or other general or special order(s) were violated by the employee. See appendix #4 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 21 As Exhibit 6 shows, police departments’ compliance with this standard averaged 75% for the twelve police departments and ranged from 22% to 97%. Other dispositions included frivolous, incomplete, none, and other. While some of these may have meaning, they do not preclude reaching one of the determinations outlined in the standards. Exhibit 6 Review, Disposition and Follow Up of Police Citizen Complaints Reviewed at Findings Consistent Used to Identify Maintain Records Police Department Appropriate Level with Standards Potential Problems for Five Years* Bell Gardens Yes 97% Yes Yes Burbank Yes 97% Yes Yes Culver City Yes 94% No Yes El Monte Yes 36% No Yes Glendale Yes 94% No Yes Inglewood Yes 96% Yes Yes Pasadena Yes 89% Yes Yes Pomona Yes 22% Yes Yes San Fernando Yes 45% No No South Gate Yes 78% Yes Yes Torrance Yes 65% Yes Yes West Covina Yes 84% No Yes Average % 75% * Required by the Penal Code (832.5, 832.7) Note: Percentage calculations of complaints with findings consistent with standards excludes complaints with investigations pending, complaints referred to other law enforcement agencies, service complaints, and complaints with no allegations of wrongdoing. 22 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 7 shows the number and percentage of complaints by disposition for each of the twelve police departments over the past five years. Exhibit 7 Number and Percentage of Complaints by Disposition Past Five Years (2013 to 2017) Police Unfounded Exonerated Not Sustained Sustained Other Department Number Percent Number Percent Number Percent Number Percent Number Percent Bell Gardens 31 86.1% 1 2.8% 2 5.6% 1 2.8% 1 2.8% Burbank 275 38.2% 131 18.2% 79 11.0% 212 29.4% 23 3.2% Culver City 48 31.4% 33 21.6% 22 14.4% 41 26.8% 9 5.9% El Monte 6 10.9% 2 3.6% 9 16.4% 3 5.5% 35 63.6% Glendale 238 63.5% 73 19.5% 10 2.7% 32 8.5% 22 5.9% Inglewood 34 21.1% 21 13.0% 76 47.2% 24 14.9% 6 3.7% Pasadena 41 19.3% 16 7.5% 10 4.7% 121 57.1% 24 11.3% Pomona 18 9.6% 2 1.1% 11 5.9% 10 5.3% 146 78.1% San Fernando 7 35.0% 0 0% 1 5.0% 1 5.0% 11 55.0% South Gate 11 23.9% 15 32.6% 3 6.5% 7 15.2% 10 21.7% Torrance 17 12.1% 43 30.5% 10 7.1% 22 15.6% 49 34.8% West Covina 12 37.5% 1 3.1% 10 31.3% 4 12.5% 5 15.6% Averages 738 34.5% 338 15.8% 243 11.4% 478 22.4% 341 15.9% Note: Numbers and percentages excludes complaints with investigations pending, complaints referred to other law enforcement agencies, service complaints, and complaints with no allegations of wrongdoing. A key purpose for receiving and investigating complaints is to identify law enforcement personnel that frequently or habitually engage in inappropriate behavior. Even if the results of investigations are inconclusive, tracking complaints can provide an “early warning” system to identify and take corrective actions to improve employee conduct. Identifying and mitigating behaviors before they become career limiting or ending for the employee or creating liability for the agency is in the best interest of both the law enforcement agency and its personnel. An “early warning” corrective action program should include two functions – monitoring and corrective action. Part of this program should be an early intervention program designed to enhance an employee’s professional performance through guidance and supervision. Employees are identified as candidates and become part of the program when it is determined that a specific employee may benefit from such a structured intervention plan. As Exhibit 6 shows, seven of the police departments had a formal program to use the complaint information to identify potential problems or as an “early warning” system. Most of these stated that this function was part of the program or software they used to track complaint investigations. Five of the police departments did not have such an “early warning” system. Several of them stated that their police departments were small, and supervisors and managers were able to maintain awareness of potential problems without a formal program or approach. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 23
F10:
The San Fernando Police Department was not in compliance with the requirement that records related to citizen complaints be maintained by the police department for a period of five years. The California Penal Code 832.5(b) requires that records related to citizen complaints regarding police be maintained by the police department for a period of five years. As Exhibit 6 shows, eleven of the police departments had records covering the past five years and were able to provide information on complaints for that period. One police department (San Fernando) was only able to provide information on citizen complaints for the past three years. 24 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT
Findings & Recommendations
10 findings
F1:
Many areas of Los Angeles County have unmet needs for park space and recreational amenities. Over half (52.6%) of the people living in the County live in areas with too few parks and park- land. Of these, 20.4% live in areas determined to have a “high” need for park-land, and 32.2% live in areas determined to have a “very high” need for park-land. Park acres per 1,000 people, is a common measurement of the number of park acres available in a given area. Because it accounts for population size, this measurement can be utilized across geographic areas to give an understanding of how much park-land residents have access to in any 34 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT given area. Park acres per 1,000 people were also used in the Countywide Parks Needs Assessment on a Study Area level, as well as on the level of individual parks. The County approved a standard of 4 acres per 1,000 people in the most recent County General Plan. Overall, the County has 3.3 acres of local and regional recreation park-land per 1,000 persons. Study Areas defined as having a high need for parks average less than 1.6 park acres per 1,000 people, and Study Areas having very high need for parks average less than 0.7 park acres per 1,000 people. However, there are exceptions to these thresholds depending on the effect of other factors used to calculate park need. These additional factors include park condition, access, amenities and park pressure. Recreational amenities at parks are also Exhibit 1 important to both individual and community Recreational Amenities per 100,000 Residents in L.A. health. Exhibit 1 shows the County is County Compared to National Averages substantially below the national average for the number of recreational amenities per 100,000 residents. Park accessibility is determined based on each household’s distance from a park. The Trust for Public Land’s Center for City Park Excellence identified a ½ mile (approximately 10 minutes) walk to a park as the distance that most pedestrians are willing to walk to reach a park. This distance has been widely adopted as a standard for providing nearby access to parks and open space. Overall, 51% of the County population lives more than a ½ mile of a park. B. Public Park-land Devoted to Golf Within the County, 7,739 acres are devoted to County and municipally owned golf courses. It is also important to note that an additional 5,486 acres of privately-owned land and green space is devoted to golf. Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, May 2016
F2:
A significant percentage of local government park-land in Los Angeles County is devoted to golf. The Countywide Parks Needs Assessment’s Parks & Open Space Inventory identifies 1,602 Local Parks totaling 15,723 acres. The Assessment also identifies 17 Regional Recreation Parks totaling 18,248 acres. The 55 County and municipal golf courses total approximately 7,739 acres. Exhibit 2 shows County and municipal golf course acreage representing a significant portion (18%) of the combined Local Park and Regional Recreation Park space in the County. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 35 Exhibit 2 County and Municipal Park-land in Los Angeles County Acres by Type of Use 7,739 Acres 18% 55 Golf Courses 15,723 Acres 38% 1,602 Local Parks 17 Regional Recreation Parks 18,248 Acres 44% Sources: Local Park and Regional Recreation Park Acres: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, May 2016, Executive Summary, page III. Golf Course Acres: City of Los Angeles Department of Recreation and Parks, 2009 Citywide Community Needs Assessment, Figure 1.9.3.c, . Although the 55 County and municipal golf courses were not included in the Countywide Parks Needs Assessment’s Parks & Open Space Inventory or the Assessment’s Study Areas, these golf courses fit well with the Assessment’s definition of Local Parks. Note: If golf course acreage is combined only with Local Park acreage, the County and municipal golf courses would represent nearly one-third of the County’s total Local Park acreage. Golf course acreage represents a significant investment in green and open space in the County. C. Trends in the Demand for Golf More than a decade ago, when the sport of golf was a playground for the professional set and a young Californian named Tiger Woods was the world’s best player, golf looked like an unassailable national undertaking with strong corporate involvement and sponsorship. However, the number of golfers and the number of golf rounds played over the last 10+ years has been declining. 36 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT
F3:
Trends in golf participation show a declining demand for golf Nationally, a decline in the number of active players has been experienced by the entire public, private, and municipal golf industry. The National Golf Foundation (NGF.org) conducts research annually on the number of golfers and their level of participation. This information is published in their annual Golf Participation in the U.S. report. The following Exhibit shows the reported number of golfers from 2005 to 2017. Exhibit 3 Golf Participation / All U.S. Golfers (People age 6+ who played golf on a golf course - in millions) 32 30 30 28 26.1 25.7 26 25.3 24.7 24.7 24.7 24.1 23.8 24 22 20 2005 2010 2011 2012 2013 2014 2015 2016 2017 Source: National Golf Foundation Annual Golf Participation Report (2013 and 2017 editions) More than 800 golf courses have closed nationwide in the last decade, as operators grapple with declining interest in the sport and a glut of competition.7 This decline in the demand for golf presents opportunities for local public agencies responsible for ownership and operation of golf courses to address the need for additional park acreage. Because of the nature and logistics of golf course design, courses are well-suited for expanding their use or repurposing in areas of high need for parks and recreational amenities. Among the 55 golf courses, there are 13 courses located in areas of high or very high park need as defined in the Countywide Parks Needs Assessment. Because of their location in high or very high park need areas; these 13 courses were made the focus of this CGJ investigation. America’s Golf Courses are Burning, Patricia Clark, Bloomberg, August 15, 2016 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 37 D. Los Angeles County Golf Courses in Study Areas with High or Very High Park Need The County operates five golf courses located within Study Areas identified as having either a high or very high need for additional park-land. Victoria Golf Course has been omitted from this investigation due to a recent initiative by BOS to repurpose this course into a community recreational center. The County’s golf courses included in this investigation are: • Alondra Golf Course (18 and 9 Hole Courses) • Chester Washington Golf Course (18 Hole Course) • Los Amigos Golf Course (18 Hole Course) • Maggie Hathaway Golf Course (9 Hole Course) • Don Knabe Golf Center (9 Hole Course)
F4:
The Los Angeles County has golf courses in areas determined to have high or very high need for additional park-land. The trends over the past ten years show a decline in demand for golf at most of these golf courses. The following Exhibit 4 shows three golf courses that have experienced declining volumes of rounds played along with declining or flat net revenues over the past 10 years. Exhibit 4 Overview of Los Angeles County Golf Courses Change Over 10 Year Period Golf Courses in Areas Total Park Need Rounds Total Net with High Park Need Acreage Category Played Revenues Revenues Alondra (9 and 18 Hole) 214 Very High (24%) (3%) (50%) Chester Washington 131 Very High (16%) (4%) 0% Los Amigos 127 High 3% 39% 187% Maggie Hathaway 12 Very High (40%) (14%) (64%) Don Knabe 11 High NA NA NA Source: Los Angeles County Department of Parks and Recreation (PAR). Note: Don Knabe Golf Center was re-opened by PAR in July 2017 The following sections provide overviews of park need in the Study Areas where these golf courses are located, as well as information on the trends in the number of golf rounds played and the revenues and expenditures for each course. 38 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Alondra Golf Course Exhibit 5 shows the Study Area has 2.3 acres of park-land per 1,000 people, somewhat below the County average of 3.3 acres. The Study Area is defined as having a very high need for additional park-land. The percentage of residents living within ½ mile of a park is 62%, which compares favorably with the County average of 49%. The Alondra Golf Course occupies 214 acres, including 155 acres for the 18-hole course, and 59 acres for the 9-hole course. The percentage of land devoted to golf in the Study Area is high at 89%, compared to just 11% devoted to park-land. Exhibit 5 Alondra Golf Course Park Need Study Area 34 - Unincorporated Hawthorne - Alondra Park Park Need Category: Very High Study Area Population 11,361 Within ½ Mile of a Park 62% Park Acres, Park Acres / 1,000 2.3 25.9, 11% Local Park Acres 25.9 Total Golf Acres 214 Alondra 18 Hole: 155 Alondra 9 Hole: 59 Golf Acres, 214, 89% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, May 2016 Exhibit 6 shows the number of rounds of golf played has declined approximately 24% over the past 10 years. The exhibit also shows that total revenues have only declined by 3% over the ten- year time period. However, net revenues declined by 50% over the same period. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 39 Exhibit 6 Alondra Golf Rounds Played Fiscal Year 2007-08 to 2016-17 Alondra Golf Revenue, Expenditure and Net Revenue Trends Fiscal Year 2007-08 to 2016-17 $4,500,000 $4,000,000 3,759,867 3,848,335 3,851,651 3,691,934 3,896,255 3,989,750 3,973,605 3,651,162 3,739,968 3,642,374 $3,500,000 $3,000,000 3,384,716 3,343,447 3,315,778 3,324,756 3,404,290 3,152,256 3,206,872 $2,500,000 2,965,686 $2,702,184 $2,000,000 $1,500,000 1,057,683 885,965 $1,000,000 463,619 539,678 552,808 673,972 648,849 533,096 $500,000 246,872 Total Revenues Total Expenditures Net Revenues $0 FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Fiscal Year Percentage FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Change Total Revenues $3,759,867 $3,848,335 $3,851,651 $3,691,934 $3,896,255 $3,989,750 $3,973,605 $3,651,162 $3,739,968 $3,642,374 -3% Total Expenditures $2,702,184 $3,384,716 $2,965,686 $3,152,256 $3,343,447 $3,315,778 $3,324,756 $3,404,290 $3,206,872 NA 19% Net Revenues $1,057,683 $463,619 $885,965 $539,678 $552,808 $673,972 $648,849 $246,872 $533,096 NA -50% Source: Los Angeles County Department of Parks and Recreation 40 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Chester Washington Golf Course Exhibit 7 shows the Study Area has just 0.2 acres of park-land per 1,000 people, substantially below the County average of 3.3 acres. Given this, the Study Area is defined as having a very high need for additional park-land. The percentage of residents living within ½ mile of a park is 26%, which is also substantially below the County average of 49%. The Chester Washington Golf Course occupies a total of 131 acres for the 18-hole golf course. The percentage of land devoted to golf in the Study Area is high at 95%, compared to just 5% devoted to park-land. Exhibit 7 Chester Washington Golf Course Park Need Study Area 22 - Unincorporated West Athens-Westmont Park Need Category: Very High Study Area Population 41,288 Within ½ Mile of a Park 26% Park Acres / 1,000 0.2 Park Acres, Local Park Acres 7 7, 5% Golf Acres 131 Golf Acres, 131, 95% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, M ay 2016 Exhibit 8 shows the number of rounds of golf played has declined approximately 16% over the past 10 years. The exhibit also shows total revenues have declined by 4% over the same period and net revenues remained fairly stable. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 41 Exhibit 8 Chester Washington Golf Rounds Played Fiscal Year 2007-08 to 2016-17 Chester Washington Golf Revenue, Expenditure and Net Revenue Trends Fiscal Year 2007-08 to 2016-17 $4,500,000 $4,000,000 3,698,460 3,865,358 3,830,352 3,676,189 3,815,690 3,688,125 3,714,318 3,651,931 3,709,286 3,566,546 $3,500,000 $3,000,000 $2,500,000 2,899,789 2,847,453 2,790,372 2,790,506 2,931,403 3,113,109 3,174,913 3,086,280 2,913,848 $2,000,000 $1,500,000 1,017,904 1,039,980 798,672 885,682 884,287 795,439 $1,000,000 575,015 539,405 565,651 $500,000 Total Revenues Total Expenditures Net Revenues $0 FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Fiscal Year Percentage FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Change Total Revenues $ 3 ,698,460 $ 3 ,865,358 $ 3 ,830,352 $ 3 ,676,189 $ 3 ,815,690 $ 3 ,688,125 $ 3 ,714,318 $ 3 ,651,931 $ 3 ,709,286 $ 3 ,566,546 -4% Total Expenditures $2,899,789 $2,847,453 $2,790,372 $2,790,506 $2,931,403 $3,113,109 $3,174,913 $3,086,280 $2,913,848 NA 0% Net Revenues $798,672 $1,017,904 $1,039,980 $885,682 $884,287 $575,015 $539,405 $565,651 $795,439 NA 0% Source: Los Angeles County Department of Parks and Recreation 42 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Los Amigos Golf Course Exhibit 9 shows the Study Area has 1.1 acres of park-land per 1,000 people, substantially below the County average of 3.3 acres. Given this, the Study Area is defined as having a high need for additional park-land. The percentage of residents living within ½ mile of a park is 26%, which is also substantially below the County average of 49%. The Los Amigos Golf Course occupies a total of 127 acres for the golf course. The percentage of land devoted to golf in the Study Area is 50%, with the other 50% devoted to park-land. Exhibit 9 Los Amigos Golf Course Park Need Study Area 162 - City of Downey Park Need Category: High Study Area Population 113,741 Within ½ Mile of a Park 26% Park Acres / 1,000 people 1.1 Local Park Acres 125.8 Golf Acres 127 Golf Acres, Park Acres, 127, 50% 125.8, 50% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, May 2016 Exhibit 10 shows the number of rounds of golf played has increased by 3% over the past 10 years. The exhibit also shows total revenues increased by 39% over a ten-year time period and net revenues have increased substantially at 187% over a nine-year period. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 43 Exhibit 10 Los Amigos Golf Rounds Played Fiscal Year 2007-08 to 2016-17 Los Amigos Golf Revenue, Expenditure and Net Revenue Trends Fiscal Year 2007-08 to 2016-17 $4,500,000 4,109,354�� 3,970,217�� 3,761,984�� $4,000,000 3,440,210�� $3,500,000 2,851,905�� 3,324,086�� $3,000,000 2,623,104�� 3,079,287�� 2,399,312�� $2,500,000 2,122,926�� 2,083,988�� 2,206,241�� 2,315,106�� 2,578,587�� $2,000,000 2,297,681�� 2,274,704�� 2,251,957�� 2,296,996�� 1,822,359�� $1,500,000 1,125,104�� $1,000,000 576,953�� 682,697�� 785,268�� 273,318�� 325,423�� $500,000 (151,778)� (167,969)� (90,755)� $0 FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 -$500,000 Total Revenues Total Expenditures Net Revenues Fiscal Year Percentage FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Change Total Revenues $ 2 ,851,905 $ 2 ,623,104 $ 2 ,122,926 $ 2 ,083,988 $ 2 ,206,241 $ 2 ,399,312 $ 3 ,440,210 $ 3 ,761,984 $ 4 ,109,354 $ 3 ,970,217 39% Total Expenditures $2,578,587 $2,297,681 $2,274,704 $2,251,957 $2,296,996 $1,822,359 $2,315,106 $3,079,287 $3,324,086 NA 29% Net Revenues $273,318 $325,423 ($151,778) ($167,969) ($90,755) $576,953 $1,125,104 $682,697 $785,268 NA 187% Source: Los Angeles County Department of Parks and Recreation 44 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Maggie Hathaway Golf Course Exhibit 11 shows the Study Area has just 0.5 acres of park-land per 1,000 people, substantially below the County average of 3.3 acres. Given this, the Study Area is defined as having a very high need for additional park-land. The percentage of residents living within ½ mile of a park is 59%, which compares favorably with the County average of 49%. The Maggie Hathaway Golf Course is a small facility occupying only 12 acres. The percentage of land devoted to golf in the Study Area is 17%, with the other 83% devoted to park-land. Exhibit 11 Maggie Hathaway Golf Course Park Need Study Area 119 - City of LA South Los Angeles Park Need Category: Very High Study Area Population 109,993 Within ½ Mile of a Park 59% Park Acres / 1,000 0.5 Local Park Acres 60.3 Golf Acres, Golf Acres 12 12, 17% Park Acres, 60.3, 83% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, M ay 2016 Exhibit 12 shows the number of rounds of golf played decreased by 40% over the past 10 years. The exhibit also shows total revenues decreased by 14% over a ten-year time period and net revenues have decreased substantially at 64%. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 45 Exhibit 12 Maggie Hathaway Golf Rounds Played Fiscal Year 2007-08 to 2016-17 Maggie Hathaway Golf Revenue, Expenditure and Net Revenue Trends Fiscal Year 2007-08 to 2016-17 $180,000 $160,000 $140,000 $120,000 $100,000 $80,000 $60,000 $40,000 $20,000 $0 FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 -$20,000 Total Revenues Total Expenditures Net Revenues Fiscal Year Percentage FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Change Total Revenues 120,724.98 119,304.11 158,771.86 125,133.99 110,542.73 108,745.80 111,241.65 109,631.71 105,079.00 103,979.10 -14% Total Expenditures 107,767.56 121,914.19 123,106.08 99,151.01 97,045.04 86,821.57 96,863.34 97,387.75 104,238.23 99,364.63 -8% Net Revenues 12,957.42 (2,610.08) 35,665.78 25,982.98 13,497.69 21,924.23 14,378.31 12,243.96 840.77 4,614.47 -64% Source: Los Angeles County Department of Parks and Recreation 46 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Don Knabe Golf Center Exhibit 13 shows the Study Area has just 1.1 acres of park-land per 1,000 people, substantially below the County average of 3.3 acres. Given this, the Study Area is defined as having a high need for additional park-land. The percentage of residents living within ½ mile of a park is 47%, just below the County average of 49%. The Don Knabe Golf Center is a small facility occupying only 11 acres. The percentage of land devoted to golf in the Study Area is 9%, with the other 91% devoted to park-land. Exhibit 13 Don Knabe Golf Center Park Need Study Area 149 - City of Norwalk Park Need Category: High Study Area Population 106,629 Within ½ Mile of a Park 47% Park Acres / 1,000 1.1 Golf Acres, Local Park Acres 113.2 11, 9% Golf Acres 11 Park Acres, 113.2, 91% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, M ay 2016 The County assumed control of the Norwalk Golf Center in 2016, renaming the facility Don Knabe Golf Center after a $13 million makeover completed in July 2017. No activity (rounds played) or financial information was provided by the County for the ten-year review.8 8 The Norwalk Patriot, July 18, 2017. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 47 E. Los Angeles City Golf Courses in Study Areas with High or Very High Park Need The City of Los Angeles operates four golf courses located within Study Areas identified as having either a high or very high need for additional park-land. These golf courses are: • Hansen Dam Golf Course (18 Hole Course) • Penmar Golf Course (18 Hole Course) • Rancho Park 18 Hole Golf Course • Rancho Park 9 Hole Golf Course
F5:
The City of Los Angeles has golf courses in areas determined to have high or very high need for additional park-land. The trends over the past ten years show a decline in demand for golf at these golf courses. As the following Exhibit 14 shows, the number of golf rounds played at all four of these courses has declined over the past ten years. Total and net revenues have declined for two of these golf courses. Exhibit 14 Overview of City of Los Angeles Golf Courses Change Over 10 Year Period Golf Course in Areas Total Park Need Rounds Total Net with High Park Need Acreage Category Played Revenues Revenues Hansen Dam 169 High (23%) 4% (74%) Penmar 47 Very High (10%) (8%) (98%) Rancho Park (9 Hole) 10 High (21%) (8%) 455% Rancho Park (18 Hole) 115 High (12%) 14% 6% Source: Los Angeles City Department of Recreation and Parks The following sections provide an overview of park need in the Study Areas these golf courses are located in, as well as information on the trends in the level of activity, revenues, and expenditures at each golf course. 48 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Hansen Dam Golf Course Exhibit 15 shows, the Study Area has just 0.6 acres of park-land per 1,000 people, significantly below the County average of 3.3 acres. The Study Area is defined as having a high need for additional park-land. The percentage of residents living within ½ mile of a park is 37%, which is below the County average of 49%. The Hansen Dam Golf Course occupies a total of 169 acres. The percentage of land devoted to golf in the Study Area is high at 73%, with the remaining 27% devoted to park-land. It is important to note that this Study Area also includes 419.6 acres of Regional Park land. Exhibit 15 Hansen Dam Golf Course Park Need Study Area 117 - City of LA Arleta-Pacoima Park Need Category: Very High Study Area Population 105,696 Within ½ Mile of a Park 37% Park Acres / 1,000 0.6 Local Park Acres 61.5 Park Acres, Golf Acres 169 61.5, 27% Golf Note: This Study Area includes 419.6 acres Acres, of Regional Park land. 169, 73% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, M ay 2016 Exhibit 16 shows the number of rounds of golf played has decreased by 23% over the past 8 years. The exhibit also shows total revenues increased by 4% over a seven-year time period, while net revenues decreased substantially by 74%. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 49 Exhibit 16 Hansen Dam Golf Rounds Played Fiscal Year 2009-10 to 2016-17 Fiscal Year Percentage FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Change Rounds Played 81,484 64,992 66,751 63,717 66,952 68,124 65,434 62,404 -23% Hansen Dam Golf Revenue, Expenditure and Net Revenue Trends Fiscal Year 2009-10 to Fiscal Year 2016-17 Fiscal Year Percent FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Change Total Revenues $2,207,431 $2,362,382 $2,400,791 $2,495,616 $2,478,886 $2,397,401 $2,302,645 4% Total Expenditures $1,853,192 $2,084,983 $2,237,328 $2,220,562 $2,311,423 $2,335,185 $2,210,547 19% Net Revenues $354,239 $277,399 $163,463 $275,054 $167,463 $62,216 $92,098 -74% Source: Los Angeles Department of Recreation and Parks 50 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Penmar Golf Course Exhibit 17 shows the Study Area has just 0.9 acres of park-land per 1,000 people, significantly below the County average of 3.3 acres. Given this, the Study Area is defined as having a high need for additional park-land. The percentage of residents living within ½ mile of a park is 78%, which compares favorably to the County average of 49%. The Penmar Golf Course occupies a total of 47 acres. The percentage of land devoted to golf in the Study Area is 59%, with the remaining 41% devoted to park-land. Exhibit 17 Penmar Golf Course Park Need Study Area 106 - City of LA Venice Park Need Category: High Study Area Population 37,309 Within ½ Mile of a Park 78% Park Acres / 1,000 0.9 Park Acres 32.6 Park Acres, Golf Acres 47 Golf Acres, 32.6, 41% 47, 59% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, M ay 2016 Exhibit 18 shows the number of rounds of golf played decreased by 10% over the past 8 years. The exhibit also shows total revenues decreased by 8% over a seven-year time period, while net revenues decreased substantially by 98%. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 51 Exhibit 18 Penmar Golf Rounds Played Fiscal Year 2009-10 to 2016-17 Fiscal Year Percentage FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Change Rounds Played 94,751 91,266 93,742 91,523 90,848 87,361 86,610 85,477 -10% Penmar Golf Revenue, Expenditure and Net Revenue Trends Fiscal Year 2009-10 to 2016-17 $1,600,000 1,337,090 1,324,746 $1,400,000 1,277,912 1,276,073 1,213,665 1,188,139 1,228,645 $1,200,000 1,306,627 1,195,169 1,218,759 1,223,302 $1,000,000 1,106,576 1,026,048 1,015,718 $800,000 $600,000 $400,000 311,042 309,028 171,336 $200,000 18,496 5,343 (30,554) (30,620) $0 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 -$200,000 Total Revenues Total Expenditures Net Revenues Fiscal Year Percentage FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Change Total Revenues $1,337,090 $1,324,746 $1,277,912 $1,276,073 $1,213,665 $1,188,139 $1,228,645 -8% Total Expenditures $1,026,048 $1,015,718 $1,106,576 $1,306,627 $1,195,169 $1,218,759 $1,223,302 19% Net Revenues $311,042 $309,028 $171,336 ($30,554) $18,496 ($30,620) $5,343 -98% Source: Los Angeles Department of Recreation and Parks 52 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Rancho Park Golf Courses (9 Hole and 18 Hole) Exhibit 19 shows the Study Area has just 1 acre of park-land per 1,000 people, significantly below the County average of 3.3 acres. Given this, the Study Area is defined as having a high need for additional park-land. The percentage of residents living within ½ mile of a park is 37%, which is below the County average of 49%. The two Rancho Park Golf Courses occupy a total of 125 acres, 115 for the 18-hole course and 10 for the 9-hole course. The percentage of total land devoted to golf in the Study Area is 67%, with the remaining 33% devoted to park-land. Exhibit 19 Rancho Park Golf Courses (9 Hole and 18 Hole) Park Need Study Area 85 - City of L.A. West Los Angeles Park Need Category: High Study Area Population 80,023 Within ½ Mile of a Park 37% Park Acres / 1,000 1 Local Park Acres 78.6 Park Acres, Total Golf Acres 125 61.5, 33% Rancho Park 18 (115) Rancho Park 9 (10) Golf Acres, 125, 67% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, May 2016 Exhibits 20 shows the number of rounds of golf played at the 18-hole course decreased by 12% over the past eight years, and total revenues decreased by 8% over a seven-year time period, while net revenues increased by 6%. Exhibit 21 shows the number of rounds of golf played at the 9-hole course decreased by 21% over the past eight years, and total revenues decreased by 35% over a seven-year time period, while net revenues increased substantially by 455%. Note: At this facility, net revenues vary greatly from year to year. The net revenue percentage change shown here is a comparison of FY 10/11 and FY 16/17 only. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 53
F6:
The Culver City, El Monte, San Fernando and Torrance police departments were not in compliance with the requirement that each police department receiving a citizen complaint release to the complaining party a copy of their own statements at the time the complaint is filed. Exhibit 4 Communication With Complainants Written Appropriate Attempt to Complainant Percent Written Police Department Complaint Complaint Resolve Receives Copy Notification* Procedure* Form Content Prior to Log of Statement* Bell Gardens No Yes Yes Yes 57% Burbank Yes Yes Yes Yes 100% Culver City Yes Yes Yes No 59% El Monte Yes No Yes No 82% Glendale Yes Yes Yes Yes 100% Inglewood Yes Yes No Yes 95% Pasadena Yes Yes Yes Yes 78% Pomona Yes Yes Yes Yes 51% San Fernando No Yes Yes No 8% South Gate Yes No Yes Yes NA Torrance Yes Yes No No 95% West Covina Yes Yes Yes Yes 91% Average % 74% * Required by the Penal Code (832.5, 832.7) Note: Percentage calculations of written notifications within 30 days excludes complaints with investigations pending, complaints generated from within the police department, and complaints with no mailing address, As Exhibit 4 shows, eight of the police departments routinely provided complainants copies of their statement at the time of the complaint. Several of these police departments had complaint forms that were carbonless in triplicate, making it convenient to provide a copy of the completed form to the complainant. Others routinely made copies of the completed complaint form and provided the copy to the complainant. Four police departments did not routinely provide copies of the complainants’ statement as required by the Penal Code. Some of these departments stated they would provide copies, if requested. A standard practice among law enforcement agencies is to send an acknowledgement letter, including a copy of the complainant’s statement, to each person making a complaint. For example, the Los Angeles Sheriff’s Department requires an acknowledgement letter be sent to each complaining party with a copy of their statement within three days of the complaint being received. The policy states: “The letter shall be sent regardless of whether the comment was made in person, by telephone, by electronic means, or by mail.”10 This approach ensures that the Penal Code requirement is met regardless of the method used to make the complaint. Los Angeles Sheriff’s Department Service Comment Report Handbook: Handling Public Complaints 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 19
F7:
Most police departments were not in compliance with the requirement to provide written notification to the complaining party of the disposition of the complaint within 30 days of the disposition. California Penal Code Penal Code 832.7(e)(1) requires that each department provide written notification to the complaining party of the disposition of the complaint within 30 days of the disposition. As shown in Exhibit 4, only two police departments (Burbank and Glendale) were in full compliance with the requirement to provide written notification to the complaining party of the disposition of the complaint. Glendale Police Department uses a software program that includes generating a written letter to the complainant once a disposition is determined. The case cannot be closed until that letter is generated. Other police departments stated they provided verbal notifications, or that there was no written notification made. We found that police departments’ compliance with this requirement averaged 74% for the twelve police departments and ranged from 8% to 100%. South Gate Police Department stated that “a letter is sent to the complainant via United States Postal Service (USPS) and is sent certified mail. When the letter is delivered we keep the USPS copy of the signature tag in the file with the complaint.” However, no other documentation was provided such as the date the letter was sent. E. Investigations of Citizen Complaints The California Penal Code (PC832.5) requires each department that employs peace officers shall establish a procedure to investigate complaints by members of the public against the personnel of these departments. As Exhibit 5 shows, all twelve police departments reviewed had policies in place for investigating such complaints. These policies assigned responsibility for conducting investigations to police personnel at appropriate levels. Exhibit 5 Investigation of Police Citizen Complaints Policy for Investigated at Complaints Numbered Complaint Police Department Investigations* Appropriate Level and Logged Tracking Program Bell Gardens Yes Yes Yes Yes Burbank Yes Yes Yes Yes Culver City Yes Yes Yes No El Monte Yes Yes Yes No Glendale Yes Yes Yes Yes Inglewood Yes Yes Yes Yes Pasadena Yes Yes Yes Yes Pomona Yes Yes Yes Yes San Fernando Yes Yes No No South Gate Yes Yes Yes Yes Torrance Yes Yes Yes Yes West Covina Yes Yes Yes No * Required by the Penal Code (832.5, 832.7) 20 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Effective management of citizen complaint investigations includes numbering and logging each complaint to ensure complaints do not get lost, and that appropriate timelines for completing the investigation are monitored.
F8:
Some police departments could improve the management of complaint investigations, including numbering and logging, as well as tracking and monitoring of key requirements and milestones. As Exhibit 5 shows, eleven of the police departments numbered and logged each complaint. One police department (San Fernando) did not number and log complaints as they were received. A software program or application can be helpful in managing investigations of citizen complaints to ensure investigations do not get lost, and to provide automatic tracking and reminders of key requirements and milestones in investigations. As Exhibit 5 shows, eight of the police departments used a software program or application to assist in managing and tracking investigations. F. Review, Disposition and Follow Up of Citizen Complaints An effective complaint process includes a review of investigations of complaints at an appropriate level, and a review process in place with some assurance that investigations are thorough, and conclusions are valid and well supported. As Exhibit 6 shows, all twelve police departments had clearly defined responsibilities for the review and approval of investigations of complaints about police. In all cases, the ultimate responsibility was with the Chief of Police.
F9:
Findings resulting from investigations of citizen complaints and the use of complaint information to identify potential problems could be improved for some police departments. Law enforcement standards and common practice among law enforcement agencies is that investigations of complaints and allegations against law enforcement personnel result in findings of fact. Law enforcement standards, as established by the Commission on Accreditation for law Enforcement Agencies (CALEA) dictate that these findings be used by the adjudicating officer to reach one of the following determinations:11 Unfounded: Allegation is false or not factual. Exonerated: Incident occurred, but the employee’s actions were lawful, proper and consistent with rules, regulations, policy, or state laws. Not Sustained: Insufficient facts either to prove or disprove the allegation. Sustained: The allegation is found to be substantially true. Generally speaking, the incident occurred and the specifically cited rule(s), regulation(s), or other general or special order(s) were violated by the employee. See appendix #4 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 21 As Exhibit 6 shows, police departments’ compliance with this standard averaged 75% for the twelve police departments and ranged from 22% to 97%. Other dispositions included frivolous, incomplete, none, and other. While some of these may have meaning, they do not preclude reaching one of the determinations outlined in the standards. Exhibit 6 Review, Disposition and Follow Up of Police Citizen Complaints Reviewed at Findings Consistent Used to Identify Maintain Records Police Department Appropriate Level with Standards Potential Problems for Five Years* Bell Gardens Yes 97% Yes Yes Burbank Yes 97% Yes Yes Culver City Yes 94% No Yes El Monte Yes 36% No Yes Glendale Yes 94% No Yes Inglewood Yes 96% Yes Yes Pasadena Yes 89% Yes Yes Pomona Yes 22% Yes Yes San Fernando Yes 45% No No South Gate Yes 78% Yes Yes Torrance Yes 65% Yes Yes West Covina Yes 84% No Yes Average % 75% * Required by the Penal Code (832.5, 832.7) Note: Percentage calculations of complaints with findings consistent with standards excludes complaints with investigations pending, complaints referred to other law enforcement agencies, service complaints, and complaints with no allegations of wrongdoing. 22 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 7 shows the number and percentage of complaints by disposition for each of the twelve police departments over the past five years. Exhibit 7 Number and Percentage of Complaints by Disposition Past Five Years (2013 to 2017) Police Unfounded Exonerated Not Sustained Sustained Other Department Number Percent Number Percent Number Percent Number Percent Number Percent Bell Gardens 31 86.1% 1 2.8% 2 5.6% 1 2.8% 1 2.8% Burbank 275 38.2% 131 18.2% 79 11.0% 212 29.4% 23 3.2% Culver City 48 31.4% 33 21.6% 22 14.4% 41 26.8% 9 5.9% El Monte 6 10.9% 2 3.6% 9 16.4% 3 5.5% 35 63.6% Glendale 238 63.5% 73 19.5% 10 2.7% 32 8.5% 22 5.9% Inglewood 34 21.1% 21 13.0% 76 47.2% 24 14.9% 6 3.7% Pasadena 41 19.3% 16 7.5% 10 4.7% 121 57.1% 24 11.3% Pomona 18 9.6% 2 1.1% 11 5.9% 10 5.3% 146 78.1% San Fernando 7 35.0% 0 0% 1 5.0% 1 5.0% 11 55.0% South Gate 11 23.9% 15 32.6% 3 6.5% 7 15.2% 10 21.7% Torrance 17 12.1% 43 30.5% 10 7.1% 22 15.6% 49 34.8% West Covina 12 37.5% 1 3.1% 10 31.3% 4 12.5% 5 15.6% Averages 738 34.5% 338 15.8% 243 11.4% 478 22.4% 341 15.9% Note: Numbers and percentages excludes complaints with investigations pending, complaints referred to other law enforcement agencies, service complaints, and complaints with no allegations of wrongdoing. A key purpose for receiving and investigating complaints is to identify law enforcement personnel that frequently or habitually engage in inappropriate behavior. Even if the results of investigations are inconclusive, tracking complaints can provide an “early warning” system to identify and take corrective actions to improve employee conduct. Identifying and mitigating behaviors before they become career limiting or ending for the employee or creating liability for the agency is in the best interest of both the law enforcement agency and its personnel. An “early warning” corrective action program should include two functions – monitoring and corrective action. Part of this program should be an early intervention program designed to enhance an employee’s professional performance through guidance and supervision. Employees are identified as candidates and become part of the program when it is determined that a specific employee may benefit from such a structured intervention plan. As Exhibit 6 shows, seven of the police departments had a formal program to use the complaint information to identify potential problems or as an “early warning” system. Most of these stated that this function was part of the program or software they used to track complaint investigations. Five of the police departments did not have such an “early warning” system. Several of them stated that their police departments were small, and supervisors and managers were able to maintain awareness of potential problems without a formal program or approach. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 23
F10:
The San Fernando Police Department was not in compliance with the requirement that records related to citizen complaints be maintained by the police department for a period of five years. The California Penal Code 832.5(b) requires that records related to citizen complaints regarding police be maintained by the police department for a period of five years. As Exhibit 6 shows, eleven of the police departments had records covering the past five years and were able to provide information on complaints for that period. One police department (San Fernando) was only able to provide information on citizen complaints for the past three years. 24 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT
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Findings & Recommendations
6 findings
F1:
Each of the ten school districts reviewed received substantial funds through the supplemental and concentration grant funding to meet the needs of their target student populations. As Exhibit 1 shows, the actual Supplemental and Concentration Grant funding received by each of the ten school districts over the four-year period was substantial. The annual amount allocated ranged from a low of about $23.4 million for Inglewood School District (FY2016-17) to a high of $1.2 billion for the LAUSD (FY2013-14). By any measure, these are substantial amounts of funds to be used to better meet the needs of the targeted student populations, including foster youth. Exhibit 1 Summary of Supplemental Grant and Concentration Grant Allocation of Funds for FY 2013-14 thru FY 2016-17 Fiscal UPP Base Supplemental Concentration Total SG and CG Year % Grant Grant (SG) Grant (CG) (a) (b) (c=b*20%*a) (d=b*50%*(a-55%)) (c+d) Antelope Valley Union High School District 2013-14 65.26% $ 182,459,178 $ 23,814,572 $ 9,360,156 $ 33,174,728 2014-15 65.02% $ 178,721,279 $ 23,240,915 $ 8,953,936 $ 32,194,851 2015-16 66.26% $ 179,677,432 $ 23,810,853 $ 10,115,839 $ 33,926,693 Fiscal UPP Base Supplemental Concentration Total SG and CG Year % Grant Grant (SG) Grant (CG) (a) (b) (c=b*20%*a) (d=b*50%*(a-55%)) (c+d) 2016-17 67.72% $ 177,173,371 $ 23,996,361 $ 11,268,226 $ 35,264,588 Compton Unified School District 2013-14 95.49% $ 180,747,374 $ 34,519,133 $ 36,592,306 $ 71,111,439 2014-15 88.18% $ 179,803,661 $ 31,710,174 $ 29,829,427 $ 61,539,601 2015-16 88.76% $ 177,202,654 $ 31,457,015 $ 29,911,808 $ 61,368,823 2016-17 87.51% $ 169,143,619 $ 29,603,516 $ 27,494,296 $ 57,097,812 Downey Unified School District 2013-14 74.73% $ 173,934,222 $ 25,996,208 $ 17,158,612 $ 43,154,820 2014-15 71.93% $ 175,415,409 $ 25,235,261 $ 14,848,914 $ 40,084,175 2015-16 71.45% $ 175,458,784 $ 25,073,060 $ 14,431,485 $ 39,504,545 2016-17 70.45% $ 174,188,924 $ 24,543,220 $ 13,456,094 $ 37,999,315 Hacienda La Puente Unified School District 2013-14 78.13% $ 152,762,102 $ 23,870,607 $ 17,666,937 $ 41,537,544 2014-15 78.41% $ 151,850,672 $ 23,813,223 $ 17,774,120 $ 41,587,344 2015-16 78.11% $ 150,355,347 $ 23,488,512 $ 17,373,561 $ 40,862,074 2016-17 77.20% $ 147,861,242 $ 22,829,775 $ 16,412,598 $ 39,242,373 Inglewood Unified School District 2013-14 93.62% $ 83,455,397 $ 15,626,189 $ 16,115,237 $ 31,741,426 2014-15 89.00% $ 81,468,574 $ 14,501,407 $ 13,849,657 $ 28,351,064 2015-16 86.92% $ 79,696,612 $ 13,854,458 $ 12,719,579 $ 26,574,037 2016-17 84.48% $ 74,089,712 $ 12,518,198 $ 10,920,824 $ 23,439,021 Long Beach Unified School District 72 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 1 Summary of Supplemental Grant and Concentration Grant Allocation of Funds for FY 2013-14 thru FY 2016-17 2013-14 70.02% $ 606,930,539 $ 84,994,553 $ 45,580,483 $ 130,575,036 2014-15 69.54% $ 607,253,905 $ 84,456,874 $ 44,147,359 $ 128,604,233 2015-16 69.29% $ 603,332,504 $ 83,609,819 $ 43,108,107 $ 126,717,927 2016-17 69.62% $ 588,064,858 $ 81,882,151 $ 42,987,541 $ 124,869,692 Los Angeles Unified School District 2013-14 84.61% $ 3,820,544,414 $ 646,512,525 $ 565,631,601 $ 1,212,144,126 2014-15 83.49% $ 3,780,560,195 $ 631,277,941 $ 538,540,801 $ 1,169,818,742 2015-16 83.82% $ 3,739,293,588 $ 626,855,177 $ 538,832,206 $ 1,165,687,383 2016-17 84.06% $ 3,617,599,499 $ 608,190,827 $ 525,637,207 $ 1,133,828,034 Paramount Unified School District 2013-14 91.06% $ 119,484,031 $ 21,760,433 $ 21,542,971 $ 43,303,404 2014-15 94.35% $ 120,537,150 $ 22,745,361 $ 23,715,685 $ 46,461,046 2015-16 94.16% $ 120,007,582 $ 22,599,828 $ 23,497,484 $ 46,097,311 2016-17 94.30% $ 118,444,121 $ 22,338,561 $ 23,274,270 $ 45,612,831 Pasadena Unified School District 2013-14 71.08% $ 133,058,776 $ 18,915,635 $ 10,697,926 $ 29,613,560 2014-15 70.39% $ 131,735,509 $ 18,545,726 $ 10,137,048 $ 28,682,774 2015-16 69.44% $ 130,716,720 $ 18,153,938 $ 9,437,747 $ 27,591,685 2016-17 67.27% $ 129,054,579 $ 17,363,004 $ 7,917,499 $ 25,280,503 Pomona Unified School District 2013-14 84.04% $ 200,860,688 $ 33,760,664 $ 29,164,971 $ 62,925,635 2014-15 84.89% $ 195,026,703 $ 33,111,633 $ 29,146,740 $ 62,258,372 2015-16 85.19% $ 190,082,489 $ 32,386,255 $ 28,692,952 $ 61,079,207 2016-17 85.44% $ 185,846,914 $ 31,757,521 $ 28,285,900 $ 60,043,421 Source: LCFF Funding Snapshot reports for fiscal year 2013-14 to 2016-17 obtained from California Department of Education website. C. Educational Challenges Faced by Foster Youth While each of the student populations targeted by the LCFF face educational challenges, it is important to understand the unique and substantial challenges faced by the foster youth student population.
F2:
Foster youth face substantial unique challenges to achieving school success. A study of the challenges faced by foster youth in California identified significant challenges faced by foster youth.2 Some of the key findings from this study include: • Students in foster care were classified with a disability at twice the rate of the comparison groups, and among students with disabilities, students in foster care were about five times more likely to be classified with an emotional disturbance than other students. • Students in foster care experienced much higher rates of school mobility than other students. Only about two thirds of students in foster care attended the same school for the full school year. In contrast, over ninety percent (90%) of the low SES and the statewide student populations attended the same school all year. Furthermore, about 1 in 10 students in foster care attended three or more schools during the school year, a level of 2 Barrat, V. X., & Berliner, B. (2013). The Invisible Achievement Gap, Part 1: Education Outcomes of Students in Foster Care in California’s Public Schools. San Francisco: WestEd 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 73 school mobility experienced by only about one percent (1%) of the low-SES and general student populations. • Students in foster care were also more likely than other students to be enrolled in nontraditional public schools (i.e. continuation high school, alternative school, charters, distant learning, or dependent studies). Enrollment in these schools suggests that students were unsuccessful at traditional schools and, thus, were transferred to other school types that were expected to better meet their needs. • Students in foster care were more likely than all comparison groups to drop out. During FY2009/10, across the high school grades, the single-year dropout rate for students in foster care was eight percent (8%), compared to the statewide dropout rate of three percent (3%) and dropout rates for the other at-risk groups between three and five percent (3%-5%). • The graduation rate for all grade-12 students statewide was eighty-four percent (84%), but for students in foster care, it was just fifty-eight percent (58%)—the lowest rate among the at-risk student groups. D. Services for Foster Youth Funded with LCFF Supplemental and Concentration Funds Given the substantial and unique challenges foster youth face in achieving school and educational success, it would be reasonable to expect that each school district would use funding received under LCFF to focus on addressing these challenges.
F3:
Some school districts reviewed had developed and implemented minimal programs or actions specifically targeted to meet the substantial and unique needs of their foster students. Exhibit 2 provides a description of the programs and services funded specifically targeted to the needs of foster youth using LCFF Supplemental and Concentration Funds. As this exhibit shows, four of the school districts (Downey, Long Beach, Paramount, Pomona) have developed programs specifically for foster youth, but have allocated relatively small amounts of funding to those programs (approximately $500,000 or less). One school district (Antelope Valley) has implemented a program that includes a Foster Youth Counselor, but has not identified the amount of funding devoted to the program in their LCAP. 74 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 2 Programs Specifically Targeted to the Needs of Foster Youth Funded with LCFF Supplemental and Concentration Funds Fiscal Program Title Funding Year Antelope Valley Union High School District 2013-14 No LCAP N/A 2014-15 Foster Youth Counselor $0* 2015-16 Foster Youth Counselor $0* 2016-17 Foster Youth Counselor $0* Compton Unified School District 2013-14 No LCAP N/A 2014-15 No LCAP N/A 2015-16 Foster Youth/McKinney Vento $1,283,538 2016-17 Foster Youth/McKinney Vento $1,209,784 Downey Unified School District 2013-14 No LCAP N/A 2014-15 Foster Youth Program Specialists $120,000 2015-16 Foster Youth Program Specialists $325,477 2016-17 Foster Youth Program Specialists $395,078 Hacienda La Puente Unified School District 2013-14 No LCAP N/A Funded with various funding sources (e.g. 2014-15 Foster Youth Liaison and Support Services LCFF Base, Title I, LCFF S&C, etc.). No specific amount for LCFF S&C funds. Funded with various funding sources (e.g. 2015-16 Foster Youth Liaison and Support Services LCFF Base, Title I, LCFF S&C, etc.). No specific amount for LCFF S&C funds. 2016-17 Foster Youth Liaison and Support Services $5,102,371 Inglewood Unified School District 2013-14 No LCAP N/A Additional Counselors/Psychologists and 2014-15 $1,300,000 Transportation for Foster Youth/Low Income Pupils Additional Counselors/Psychologists and 2015-16 $1,300,000 Transportation for Foster Youth/Low Income Pupils Additional Counselors/Psychologists and 2016-17 Transportation for Foster Youth/Low Income Pupils $1,926,000 (Budgeted Expenditure) Long Beach Unified School District 2013-14 No LCAP N/A Path to high school graduation and beyond for Foster 2014-15 $50,000 Youth (Budgeted Expenditure) Path to high school graduation and beyond for Foster 2015-16 $194,762 Youth Path to high school graduation and beyond for Foster 2016-17 $223,062 Youth Los Angeles Unified School District 2013-14 No LCAP N/A 2014-15 Foster Youth Support Plan and Family Source Centers $8,500,000 2015-16 Foster Youth Support Plan and Family Source Centers $11,762,578 2016-17 Foster Youth Support Plan and Family Source Centers $14,354,666 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 75 Paramount Unified School District 2013-14 No LCAP N/A 2014-15 No LCAP N/A 2015-16 Support for Foster Youth Students $95,012 2016-17 Support for Foster Youth Students $151,267 Pasadena Unified School District 2013-14 No LCAP N/A 2014-15 Foster Youth Liaison and Support Services $20,000 2015-16 Foster Youth Liaison and Support Services $3,843,536 2016-17 Foster Youth Liaison and Support Services $3,443,498 Pomona Unified School District 2013-14 No LCAP N/A 2014-15 Foster Youth Liaison $500,000 2015-16 Foster Youth Liaison $505,700 2016-17 Foster Youth Liaison $500,000 Source: Review of Local Control and Accountability Plans for each School District for each Fiscal Year Note: Antelope Valley reports: “No additional expenditure required. Work performed within the school day.” Five of the school districts (Compton, Hacienda-La Puente, Inglewood, Los Angeles and Pasadena) have developed significant programs to meet the specific needs of their foster youth student populations and allocated substantial amounts of funding to them. E. Distribution of LCFF Funds Statewide State funding provided under the LCFF is currently based on the unduplicated count of students that meet one or more of the criteria for targeted students which consists of low SES, foster youth, or English learners. Specific funding is not provided to school districts based solely on their foster youth students.
F4:
The method for distributing LCFF funds Statewide underrepresents the needs of foster youth students and does not directly fund programs and services required to meet the needs of students in foster care. There are a significant number of students that are foster youth and low SES and may be English learners as well. The unduplicated count does not take this overlap in needs, and qualifications, into account. For example, a student may be a low-income foster youth that also needs to learn English. This student would only be counted once when LCFF supplemental and concentration funds are being calculated. However, these students’ needs are much more substantial that a student that is low SES only or an English learner only. The cost for a school district to meet the additional needs of the student with multiple qualifications is also substantially higher. 76 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT
F6:
Four municipalities within the County have golf courses in areas determined to have high or very high need for additional park-land. Only limited or no usage and financial information was made available from three of the municipalities. What information that was made available generally shows declining golf rounds, total revenues, and net revenues. Exhibit 22 shows the number of golf rounds played, total revenues and net revenues at the Alhambra Golf Course have declined over the past ten years. Only rounds played for Bell Gardens Golf Course was provided. Activity and financial information for the 10-year review period were not available for the Compton and South Gate golf courses. Exhibit 22 Overview of Other Municipal Golf Courses Change Over 10 Year Period Golf Course in Areas Total Park Need Rounds Total Net with High Park Need Acreage Category Played Revenues Revenues Alhambra 98 High (33%) (19%) (40%) Bell Gardens 24 Very High (41%) NA NA Compton 12 High NA NA NA South Gate 7 High NA NA NA Sources: Alhambra Community Services Department, Bell Gardens Department of Recreation & Community Services, Compton Department of Parks and Recreation, South Gate Department of Parks and Recreation. Note: Information on rounds played, revenues and expenditures over 10-year time period were not available for Compton and South Gate golf courses. 56 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Alhambra Golf Course Exhibit 23 shows the Study Area has just 0.9 acres of park-land per 1,000 people, significantly below the County average of 3.3 acres. Given this, the Study Area is defined as having a high need for additional park-land. The percentage of residents living within ½ mile of a park is 44%, which is below the County average of 49%. The Alhambra Golf Course occupies a total of 98.2 acres. The percentage of land devoted to golf in the Study Area is 62%, with the remaining 38% devoted to park-land. Note: The park acreage calculated for this CGJ investigation does not include Moor Field (17.70 acres). Moor Field is an Alhambra Unified School District facility, not open as a local park to the public.9 In the Countywide Parks Needs Assessment, Study Area 82 – City of Alhambra, Moor Field is incorrectly reported as park-land.10 Exhibit 23 Alhambra Golf Course Park Need Study Area 82 - City of Alhambra Park Need Category: High Study Area Population 84,903 Within ½ Mile of a Park 44% Park Acres / 1,000 0.9 Park Acres 60.1* Park Acres, Golf Acres 98.2 60.1, 38% Golf Acres, 98.2, 62% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, May 2016 *Note: The Park Acres calculated for this table excludes Moor Field (17.79 acres). Moor Field is an Alhambra Unified School District facility not open as a local park to the public. In the Countywide Parks Needs Assessment, Study Area 82 – City of Alhambra, Moor Field is incorrectly reported as park-land. See: www.moorfield.org Exhibit 24 shows the number of rounds of golf played has decreased by 33% over the past 10 years. The exhibit also shows total revenues have decreased by 19% over the ten-year time period, while net revenues have decreased 40%. 9 www.moorfield.org 10 lacountyparksneeds.org/final-report appendix a 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 57 Exhibit 24 Alhambra Golf Rounds Played Fiscal Year 2007-08 to 2016-17 Golf Revenue, Expenditure and Net Revenue Trends Fiscal Year 2007-08 to 2016-17 $2,800,000 2,636,209 2,521,952 2,523,077 2,433,146 2,400,430 2,328,628 2,316,070 2,161,701 2,121,649 2,145,707 $2,100,000 1,639,172 1,498,770 1,474,621 1,390,103 1,369,590 1,401,594 $1,400,000 1,197,825 1,138,369 1,116,123 1,161,081 997,037 1,043,043 1,030,840 1,048,456 1,130,803 1,023,182 1,023,332 1,005,526 914,476 984,626 $700,000 Total Revenues Total Expenditures Net Revenues $0 FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Fiscal Year Percentage FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Change Total Revenues $2,636,209 $2,521,952 $2,433,146 $2,400,430 $2,523,077 $2,328,628 $2,316,070 $2,161,701 $2,121,649 $2,145,707 -19% Total Expenditures $997,037 $1,498,770 $1,043,043 $1,030,840 $1,048,456 $1,130,803 $1,401,594 $1,138,369 $1,005,526 $1,161,081 16% Net Revenues $1,639,172 $1,023,182 $1,390,103 $1,369,590 $1,474,621 $1,197,825 $914,476 $1,023,332 $1,116,123 $984,626 -40% Source: Alhambra Community Services Department 58 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Bell Gardens Golf Course Exhibit 25 shows the Study Area has just 1.3 acres of park-land per 1,000 people, significantly below the County average of 3.3 acres. The Study Area is defined as having a very high need for additional park-land. The percentage of residents living within ½ mile of a park is 82%, which is above the County average of 49%. The Bell Gardens Golf Course occupies a total of only 24 acres. The percentage of land devoted to golf in the Study area is 30%, with 70% devoted to local park-land. Exhibit 25 Bell Gardens Golf Course Park Need Study Area 114 - City of Bell Gardens Park Need Category: Very High Population 42,276 Within ½ Mile of a Park 82% Park Acres / 1,000 1.3 Golf Acres, Park Acres 56 24, 30% Golf Acres 24 Park Acres, 56, 70% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, May 2016 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 59 Exhibit 26 shows the number of rounds of golf played has decreased by 41% over the past 9 years. No other data was available. Exhibit 26 Bell Gardens Golf Rounds Played Fiscal Year 2009-09 to 2016-17 Source: Bell Gardens Recreation & Community Services Department Compton Golf Course Exhibit 27 shows the Study Area has just 0.6 acres of park-land per 1,000 people, significantly below the County average of 3.3 acres. The Study Area is defined as having a high need for additional park-land. The percentage of residents living within ½ mile of a park is 58%, which is above the County average of 49%. The Compton Golf Course is a small facility occupying only 12 acres. The percentage of land devoted to golf in the Study Area is 17%, with 83% devoted to park-land. 60 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 27 Compton Golf Course Park Need Study Area 142 - City of Compton Park Need Category: High Study Area Population 97,801 Within ½ Mile of a Park 58% Golf Acres, Park Acres / 1,000 0.6 12, 17% Park Acres 56.6 Golf Acres 12 Park Acres, 56.6, 83% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, May 2016 South Gate Golf Course Exhibit 28 shows the Study Area has just 1.5 acres of park-land per 1,000 people, significantly below the County average of 3.3 acres. The Study Area is defined as having a very high need for additional park-land. The percentage of residents living within ½ mile of a park is 45%, which is just below the County average of 49%. The South Gate Golf Course is a very small facility occupying only 7 acres. The percentage of land devoted to golf in the Study Area is 5%, with the remaining 95% devoted to park-land. Exhibit 28 South Gate Golf Course Park Need Study Area 88 - City of South Gate Park Need Category: Very High Study Area Population 96,297 Golf Acres, Within ½ Mile of a Park 45% 7, 5% Park Acres / 1,000 1.5 Park Acres 147.8 Golf Acres 7 Park Acres, 147.8, 95% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, May 2016 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 61 G. Potential to Expand Use or Repurpose Golf Courses in High or Very High Park Need Areas The potential to expand the use or repurpose golf courses was evaluated based on the need for additional park-land, the amount and percentage of public land devoted to golf in each area, the trends in the number of rounds of golf played at each golf course, and the potential impact of expanded use or repurposing each golf course.
F7:
There is high potential to expand the use or repurpose of seven golf courses, and moderate potential to expand the use or repurpose four of the 13 golf courses reviewed. The following Exhibit 29 lists the golf courses reviewed, and the potential to expand the use or repurpose these golf courses. Exhibit 29 Potential to Expand Use or Repurpose Golf Courses for Park and Recreation Use Golf Acre Rounds Expand Use or Golf Course Park Need Percentage Played Trend Repurpose Potential Alhambra High 62% (33%) High Alondra Very High 89% (24%) High Chester Washington Very High 95% (16%) High Los Amigos Very High 50% 3% High Penmar High 59% (10%) High Rancho Park 18 High 67% (12%) High Rancho Park 9 High 67% (21%) High Maggie Hathaway Very High 17% (40%) Moderate Don Knabe High 9% NA Moderate Bell Gardens Very High 30% (41%) Moderate Compton Very High 17% NA Moderate Hansen Dam Very High 73% (23%) Low South Gate High 5% NA Low As this exhibit shows, seven golf courses (Alhambra, Alondra, Chester Washington, Los Amigos, Penmar and Rancho Park 18 and Rancho Park 9) have a high potential for expanded use or repurposing to park and recreational uses. This is based on the fact that the golf acreage percentage in the Study Areas where these seven courses are located ranges from 50% to 95% of the combined park and golf acreage. Also, with the exception of Los Amigos golf course, the trend in rounds of golf play shows a decreasing demand for golf. Because of the low park acres relative to the high number of acres devoted to golf courses, partial or full conversion to park and recreational use could have a significant impact on meeting park need in these areas. The Alhambra Golf Course acreage amount and percentage of public land devoted to golf is relatively high. Partial repurposing of the Alhambra Golf Course by reducing the course from 18 to 9 holes would have a significant positive impact on park need in the Southeastern quadrant of 62 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT the City while continuing to allow for golf in the Study Area. Moor Field, while counted as a local park is, in fact, a School District property not open to the public. The 22-acre Almansor Park located adjacent to the golf course is overcrowded and appears to not meet the park and recreational needs of the City. Four golf courses (Maggie Hathaway, Don Knabe, Bell Gardens and Compton) have a moderate potential for expanded use or repurposing to park and recreational uses because the amount and percentage of public land devoted to golf in the Study Areas where these courses are located is relatively low. These courses are small 9-hole facilities ranging from 10 to 24 acres. Using this land to meet park and recreational need would have an impact, but not as substantial as the larger golf courses. Two golf courses (Hansen Dam and South Gate) have a low potential for expanded use or repurposing to park and recreational uses. Hansen Dam Golf Course is adjacent to the 420-acre Hansen Dam Regional Recreation Park, so expanding the use or repurposing the golf course would have little impact on park need. South Gate Golf course is a small 7 acre, 9-hole golf course which is part of the 96 acre South Gate City Park. Only 5% of the public park-land in this area is devoted to golf, so expanding its use or repurposing would have little impact on improving park need.
Additional Recommendations
5
Not linked to specific findings.
R1:
Were about five times more likely to be classified with an emotional disturbance than other students
R2:
Experienced much higher rates of school mobility than other students
R3:
Were also more likely than other students to be enrolled in non-traditional public schools
R4:
Were more likely than all comparison groups to drop out of school, and
R5:
Had graduation rates that were the lowest among the at-risk student groups Given the substantial and unique challenges foster youth face in achieving school and educational success, it would be reasonable to expect that each school district would use funding received under LCFF to focus on addressing these challenges. When we reviewed the LCAP’s for each of the ten school districts for the past four years (FY2013-14 to FY2016-17) the CGJ found only five of the ten districts (Compton, Hacienda-La Puente, Inglewood, Los Angeles and Pasadena) had substantial programs and funding specifically to meet the unique needs of their students in foster care. State funding provided under the LCFF is currently based on an unduplicated count of students that meet one of the criteria for targeted students. These identified student populations consist of low-socio-economic status (SES), English learners, or foster youth. Although some individual 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 67 students may meet the criteria for more than one group, they may only be counted once, no overlapping. Specific funding is not provided to school districts based solely on their foster youth students. This method for distributing LCFF funds statewide underrepresents the needs of foster youth students and does not directly fund programs and services required to meet the unique needs of students in foster care. To evaluate foster youth student achievement, the CGJ compared the chronic absenteeism rate, suspension rate, percentage prepared for college and career and graduation rate with the general student population and other targeted student groups. The CGJ found the chronic absenteeism rate for foster youth is much higher than for the general student population, or for other targeted student populations in each of the ten school districts reviewed. The chronic absentee rate for foster youth is more than twice that for the other groups. The CGJ also found the suspension rate for foster youth is more than three times that for the other groups. The percentage of foster youth prepared for college or career is much lower than for the general student population or for other targeted student populations in each of the ten school districts reviewed, with the percentage of foster youth prepared for college or career less than half that for the other groups. The percentage of foster youth graduating is also much lower than for the general student population, or for other targeted student populations. The average percentage of foster students that graduated was 64.5% for the ten school districts. This compares to 86.6% for the general student population, 71.7% for English Learner students, and 86.6% for socio- economically disadvantaged students. The reported graduation rate for foster youth students at some school districts shows some short- term positive trends. Reported graduation rates for foster youth at Antelope Valley and Paramount increased by about seventeen percent (17%) between FY2014-15 and FY2016-17, and by about fourteen percent (14%) for Compton and Pomona school districts. While these short-term reported trends appear positive, the quality and reliability of data and information reported by school districts to track and monitor success in meeting the needs of foster youth is inconsistent and of questionable quality. There are at least five local and state databases of foster student education data, and the reliability of the data in any one of the databases is questionable. There is substantial variance in the number of reported foster youth students enrolled. Enrollment is the key basic data element required in order to develop and focus educational efforts targeting the needs of foster youth. The Los Angeles County Office of Education (LACOE) is developing a common and consistent data repository called the LACOE’s Educational Passport System for all school district information concerning foster youth that will also provide a consistent base for monitoring, tracking and reporting on foster youth performance to better meet their specific needs. The CGJ recommends school districts that have allocated relatively small amounts of funding to programs or actions specifically targeted to meet the substantial unique needs of their foster youth students, or have not identified specific amounts of funding allocated, should consider allocating additional funding for such programs. (Antelope Valley, Downey, Long Beach, Paramount, and Pomona). The CGJ also recommends the LACO, Los Angeles County Department of Children and Family Services (DCFS), and Los Angeles County school districts should lobby the California Legislature to consider revising the method for distributing LCFF funds Statewide that provides 68 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT specific funding to each school district to fund programs that meet the specific substantial and unique needs of students in foster care. The CGJ also recommends school districts continue to track and monitor the significant achievement gap of foster youth compared with other targeted student groups and the general student population and develop and implement programs to address that achievement gap. The LACO should continue to enhance and expand its Educational Passport System to provide a common and consistent data repository for all school district information on foster youth, and encourage use of a consistent database for monitoring, tracking and reporting on foster youth performance to better meet their specific needs.
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Findings & Recommendations
6 findings
F1:
Each of the ten school districts reviewed received substantial funds through the supplemental and concentration grant funding to meet the needs of their target student populations. As Exhibit 1 shows, the actual Supplemental and Concentration Grant funding received by each of the ten school districts over the four-year period was substantial. The annual amount allocated ranged from a low of about $23.4 million for Inglewood School District (FY2016-17) to a high of $1.2 billion for the LAUSD (FY2013-14). By any measure, these are substantial amounts of funds to be used to better meet the needs of the targeted student populations, including foster youth. Exhibit 1 Summary of Supplemental Grant and Concentration Grant Allocation of Funds for FY 2013-14 thru FY 2016-17 Fiscal UPP Base Supplemental Concentration Total SG and CG Year % Grant Grant (SG) Grant (CG) (a) (b) (c=b*20%*a) (d=b*50%*(a-55%)) (c+d) Antelope Valley Union High School District 2013-14 65.26% $ 182,459,178 $ 23,814,572 $ 9,360,156 $ 33,174,728 2014-15 65.02% $ 178,721,279 $ 23,240,915 $ 8,953,936 $ 32,194,851 2015-16 66.26% $ 179,677,432 $ 23,810,853 $ 10,115,839 $ 33,926,693 Fiscal UPP Base Supplemental Concentration Total SG and CG Year % Grant Grant (SG) Grant (CG) (a) (b) (c=b*20%*a) (d=b*50%*(a-55%)) (c+d) 2016-17 67.72% $ 177,173,371 $ 23,996,361 $ 11,268,226 $ 35,264,588 Compton Unified School District 2013-14 95.49% $ 180,747,374 $ 34,519,133 $ 36,592,306 $ 71,111,439 2014-15 88.18% $ 179,803,661 $ 31,710,174 $ 29,829,427 $ 61,539,601 2015-16 88.76% $ 177,202,654 $ 31,457,015 $ 29,911,808 $ 61,368,823 2016-17 87.51% $ 169,143,619 $ 29,603,516 $ 27,494,296 $ 57,097,812 Downey Unified School District 2013-14 74.73% $ 173,934,222 $ 25,996,208 $ 17,158,612 $ 43,154,820 2014-15 71.93% $ 175,415,409 $ 25,235,261 $ 14,848,914 $ 40,084,175 2015-16 71.45% $ 175,458,784 $ 25,073,060 $ 14,431,485 $ 39,504,545 2016-17 70.45% $ 174,188,924 $ 24,543,220 $ 13,456,094 $ 37,999,315 Hacienda La Puente Unified School District 2013-14 78.13% $ 152,762,102 $ 23,870,607 $ 17,666,937 $ 41,537,544 2014-15 78.41% $ 151,850,672 $ 23,813,223 $ 17,774,120 $ 41,587,344 2015-16 78.11% $ 150,355,347 $ 23,488,512 $ 17,373,561 $ 40,862,074 2016-17 77.20% $ 147,861,242 $ 22,829,775 $ 16,412,598 $ 39,242,373 Inglewood Unified School District 2013-14 93.62% $ 83,455,397 $ 15,626,189 $ 16,115,237 $ 31,741,426 2014-15 89.00% $ 81,468,574 $ 14,501,407 $ 13,849,657 $ 28,351,064 2015-16 86.92% $ 79,696,612 $ 13,854,458 $ 12,719,579 $ 26,574,037 2016-17 84.48% $ 74,089,712 $ 12,518,198 $ 10,920,824 $ 23,439,021 Long Beach Unified School District 72 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 1 Summary of Supplemental Grant and Concentration Grant Allocation of Funds for FY 2013-14 thru FY 2016-17 2013-14 70.02% $ 606,930,539 $ 84,994,553 $ 45,580,483 $ 130,575,036 2014-15 69.54% $ 607,253,905 $ 84,456,874 $ 44,147,359 $ 128,604,233 2015-16 69.29% $ 603,332,504 $ 83,609,819 $ 43,108,107 $ 126,717,927 2016-17 69.62% $ 588,064,858 $ 81,882,151 $ 42,987,541 $ 124,869,692 Los Angeles Unified School District 2013-14 84.61% $ 3,820,544,414 $ 646,512,525 $ 565,631,601 $ 1,212,144,126 2014-15 83.49% $ 3,780,560,195 $ 631,277,941 $ 538,540,801 $ 1,169,818,742 2015-16 83.82% $ 3,739,293,588 $ 626,855,177 $ 538,832,206 $ 1,165,687,383 2016-17 84.06% $ 3,617,599,499 $ 608,190,827 $ 525,637,207 $ 1,133,828,034 Paramount Unified School District 2013-14 91.06% $ 119,484,031 $ 21,760,433 $ 21,542,971 $ 43,303,404 2014-15 94.35% $ 120,537,150 $ 22,745,361 $ 23,715,685 $ 46,461,046 2015-16 94.16% $ 120,007,582 $ 22,599,828 $ 23,497,484 $ 46,097,311 2016-17 94.30% $ 118,444,121 $ 22,338,561 $ 23,274,270 $ 45,612,831 Pasadena Unified School District 2013-14 71.08% $ 133,058,776 $ 18,915,635 $ 10,697,926 $ 29,613,560 2014-15 70.39% $ 131,735,509 $ 18,545,726 $ 10,137,048 $ 28,682,774 2015-16 69.44% $ 130,716,720 $ 18,153,938 $ 9,437,747 $ 27,591,685 2016-17 67.27% $ 129,054,579 $ 17,363,004 $ 7,917,499 $ 25,280,503 Pomona Unified School District 2013-14 84.04% $ 200,860,688 $ 33,760,664 $ 29,164,971 $ 62,925,635 2014-15 84.89% $ 195,026,703 $ 33,111,633 $ 29,146,740 $ 62,258,372 2015-16 85.19% $ 190,082,489 $ 32,386,255 $ 28,692,952 $ 61,079,207 2016-17 85.44% $ 185,846,914 $ 31,757,521 $ 28,285,900 $ 60,043,421 Source: LCFF Funding Snapshot reports for fiscal year 2013-14 to 2016-17 obtained from California Department of Education website. C. Educational Challenges Faced by Foster Youth While each of the student populations targeted by the LCFF face educational challenges, it is important to understand the unique and substantial challenges faced by the foster youth student population.
F2:
Foster youth face substantial unique challenges to achieving school success. A study of the challenges faced by foster youth in California identified significant challenges faced by foster youth.2 Some of the key findings from this study include: • Students in foster care were classified with a disability at twice the rate of the comparison groups, and among students with disabilities, students in foster care were about five times more likely to be classified with an emotional disturbance than other students. • Students in foster care experienced much higher rates of school mobility than other students. Only about two thirds of students in foster care attended the same school for the full school year. In contrast, over ninety percent (90%) of the low SES and the statewide student populations attended the same school all year. Furthermore, about 1 in 10 students in foster care attended three or more schools during the school year, a level of 2 Barrat, V. X., & Berliner, B. (2013). The Invisible Achievement Gap, Part 1: Education Outcomes of Students in Foster Care in California’s Public Schools. San Francisco: WestEd 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 73 school mobility experienced by only about one percent (1%) of the low-SES and general student populations. • Students in foster care were also more likely than other students to be enrolled in nontraditional public schools (i.e. continuation high school, alternative school, charters, distant learning, or dependent studies). Enrollment in these schools suggests that students were unsuccessful at traditional schools and, thus, were transferred to other school types that were expected to better meet their needs. • Students in foster care were more likely than all comparison groups to drop out. During FY2009/10, across the high school grades, the single-year dropout rate for students in foster care was eight percent (8%), compared to the statewide dropout rate of three percent (3%) and dropout rates for the other at-risk groups between three and five percent (3%-5%). • The graduation rate for all grade-12 students statewide was eighty-four percent (84%), but for students in foster care, it was just fifty-eight percent (58%)—the lowest rate among the at-risk student groups. D. Services for Foster Youth Funded with LCFF Supplemental and Concentration Funds Given the substantial and unique challenges foster youth face in achieving school and educational success, it would be reasonable to expect that each school district would use funding received under LCFF to focus on addressing these challenges.
F3:
Some school districts reviewed had developed and implemented minimal programs or actions specifically targeted to meet the substantial and unique needs of their foster students. Exhibit 2 provides a description of the programs and services funded specifically targeted to the needs of foster youth using LCFF Supplemental and Concentration Funds. As this exhibit shows, four of the school districts (Downey, Long Beach, Paramount, Pomona) have developed programs specifically for foster youth, but have allocated relatively small amounts of funding to those programs (approximately $500,000 or less). One school district (Antelope Valley) has implemented a program that includes a Foster Youth Counselor, but has not identified the amount of funding devoted to the program in their LCAP. 74 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 2 Programs Specifically Targeted to the Needs of Foster Youth Funded with LCFF Supplemental and Concentration Funds Fiscal Program Title Funding Year Antelope Valley Union High School District 2013-14 No LCAP N/A 2014-15 Foster Youth Counselor $0* 2015-16 Foster Youth Counselor $0* 2016-17 Foster Youth Counselor $0* Compton Unified School District 2013-14 No LCAP N/A 2014-15 No LCAP N/A 2015-16 Foster Youth/McKinney Vento $1,283,538 2016-17 Foster Youth/McKinney Vento $1,209,784 Downey Unified School District 2013-14 No LCAP N/A 2014-15 Foster Youth Program Specialists $120,000 2015-16 Foster Youth Program Specialists $325,477 2016-17 Foster Youth Program Specialists $395,078 Hacienda La Puente Unified School District 2013-14 No LCAP N/A Funded with various funding sources (e.g. 2014-15 Foster Youth Liaison and Support Services LCFF Base, Title I, LCFF S&C, etc.). No specific amount for LCFF S&C funds. Funded with various funding sources (e.g. 2015-16 Foster Youth Liaison and Support Services LCFF Base, Title I, LCFF S&C, etc.). No specific amount for LCFF S&C funds. 2016-17 Foster Youth Liaison and Support Services $5,102,371 Inglewood Unified School District 2013-14 No LCAP N/A Additional Counselors/Psychologists and 2014-15 $1,300,000 Transportation for Foster Youth/Low Income Pupils Additional Counselors/Psychologists and 2015-16 $1,300,000 Transportation for Foster Youth/Low Income Pupils Additional Counselors/Psychologists and 2016-17 Transportation for Foster Youth/Low Income Pupils $1,926,000 (Budgeted Expenditure) Long Beach Unified School District 2013-14 No LCAP N/A Path to high school graduation and beyond for Foster 2014-15 $50,000 Youth (Budgeted Expenditure) Path to high school graduation and beyond for Foster 2015-16 $194,762 Youth Path to high school graduation and beyond for Foster 2016-17 $223,062 Youth Los Angeles Unified School District 2013-14 No LCAP N/A 2014-15 Foster Youth Support Plan and Family Source Centers $8,500,000 2015-16 Foster Youth Support Plan and Family Source Centers $11,762,578 2016-17 Foster Youth Support Plan and Family Source Centers $14,354,666 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 75 Paramount Unified School District 2013-14 No LCAP N/A 2014-15 No LCAP N/A 2015-16 Support for Foster Youth Students $95,012 2016-17 Support for Foster Youth Students $151,267 Pasadena Unified School District 2013-14 No LCAP N/A 2014-15 Foster Youth Liaison and Support Services $20,000 2015-16 Foster Youth Liaison and Support Services $3,843,536 2016-17 Foster Youth Liaison and Support Services $3,443,498 Pomona Unified School District 2013-14 No LCAP N/A 2014-15 Foster Youth Liaison $500,000 2015-16 Foster Youth Liaison $505,700 2016-17 Foster Youth Liaison $500,000 Source: Review of Local Control and Accountability Plans for each School District for each Fiscal Year Note: Antelope Valley reports: “No additional expenditure required. Work performed within the school day.” Five of the school districts (Compton, Hacienda-La Puente, Inglewood, Los Angeles and Pasadena) have developed significant programs to meet the specific needs of their foster youth student populations and allocated substantial amounts of funding to them. E. Distribution of LCFF Funds Statewide State funding provided under the LCFF is currently based on the unduplicated count of students that meet one or more of the criteria for targeted students which consists of low SES, foster youth, or English learners. Specific funding is not provided to school districts based solely on their foster youth students.
F4:
The method for distributing LCFF funds Statewide underrepresents the needs of foster youth students and does not directly fund programs and services required to meet the needs of students in foster care. There are a significant number of students that are foster youth and low SES and may be English learners as well. The unduplicated count does not take this overlap in needs, and qualifications, into account. For example, a student may be a low-income foster youth that also needs to learn English. This student would only be counted once when LCFF supplemental and concentration funds are being calculated. However, these students’ needs are much more substantial that a student that is low SES only or an English learner only. The cost for a school district to meet the additional needs of the student with multiple qualifications is also substantially higher. 76 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT
F6:
Four municipalities within the County have golf courses in areas determined to have high or very high need for additional park-land. Only limited or no usage and financial information was made available from three of the municipalities. What information that was made available generally shows declining golf rounds, total revenues, and net revenues. Exhibit 22 shows the number of golf rounds played, total revenues and net revenues at the Alhambra Golf Course have declined over the past ten years. Only rounds played for Bell Gardens Golf Course was provided. Activity and financial information for the 10-year review period were not available for the Compton and South Gate golf courses. Exhibit 22 Overview of Other Municipal Golf Courses Change Over 10 Year Period Golf Course in Areas Total Park Need Rounds Total Net with High Park Need Acreage Category Played Revenues Revenues Alhambra 98 High (33%) (19%) (40%) Bell Gardens 24 Very High (41%) NA NA Compton 12 High NA NA NA South Gate 7 High NA NA NA Sources: Alhambra Community Services Department, Bell Gardens Department of Recreation & Community Services, Compton Department of Parks and Recreation, South Gate Department of Parks and Recreation. Note: Information on rounds played, revenues and expenditures over 10-year time period were not available for Compton and South Gate golf courses. 56 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Alhambra Golf Course Exhibit 23 shows the Study Area has just 0.9 acres of park-land per 1,000 people, significantly below the County average of 3.3 acres. Given this, the Study Area is defined as having a high need for additional park-land. The percentage of residents living within ½ mile of a park is 44%, which is below the County average of 49%. The Alhambra Golf Course occupies a total of 98.2 acres. The percentage of land devoted to golf in the Study Area is 62%, with the remaining 38% devoted to park-land. Note: The park acreage calculated for this CGJ investigation does not include Moor Field (17.70 acres). Moor Field is an Alhambra Unified School District facility, not open as a local park to the public.9 In the Countywide Parks Needs Assessment, Study Area 82 – City of Alhambra, Moor Field is incorrectly reported as park-land.10 Exhibit 23 Alhambra Golf Course Park Need Study Area 82 - City of Alhambra Park Need Category: High Study Area Population 84,903 Within ½ Mile of a Park 44% Park Acres / 1,000 0.9 Park Acres 60.1* Park Acres, Golf Acres 98.2 60.1, 38% Golf Acres, 98.2, 62% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, May 2016 *Note: The Park Acres calculated for this table excludes Moor Field (17.79 acres). Moor Field is an Alhambra Unified School District facility not open as a local park to the public. In the Countywide Parks Needs Assessment, Study Area 82 – City of Alhambra, Moor Field is incorrectly reported as park-land. See: www.moorfield.org Exhibit 24 shows the number of rounds of golf played has decreased by 33% over the past 10 years. The exhibit also shows total revenues have decreased by 19% over the ten-year time period, while net revenues have decreased 40%. 9 www.moorfield.org 10 lacountyparksneeds.org/final-report appendix a 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 57 Exhibit 24 Alhambra Golf Rounds Played Fiscal Year 2007-08 to 2016-17 Golf Revenue, Expenditure and Net Revenue Trends Fiscal Year 2007-08 to 2016-17 $2,800,000 2,636,209 2,521,952 2,523,077 2,433,146 2,400,430 2,328,628 2,316,070 2,161,701 2,121,649 2,145,707 $2,100,000 1,639,172 1,498,770 1,474,621 1,390,103 1,369,590 1,401,594 $1,400,000 1,197,825 1,138,369 1,116,123 1,161,081 997,037 1,043,043 1,030,840 1,048,456 1,130,803 1,023,182 1,023,332 1,005,526 914,476 984,626 $700,000 Total Revenues Total Expenditures Net Revenues $0 FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Fiscal Year Percentage FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Change Total Revenues $2,636,209 $2,521,952 $2,433,146 $2,400,430 $2,523,077 $2,328,628 $2,316,070 $2,161,701 $2,121,649 $2,145,707 -19% Total Expenditures $997,037 $1,498,770 $1,043,043 $1,030,840 $1,048,456 $1,130,803 $1,401,594 $1,138,369 $1,005,526 $1,161,081 16% Net Revenues $1,639,172 $1,023,182 $1,390,103 $1,369,590 $1,474,621 $1,197,825 $914,476 $1,023,332 $1,116,123 $984,626 -40% Source: Alhambra Community Services Department 58 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Bell Gardens Golf Course Exhibit 25 shows the Study Area has just 1.3 acres of park-land per 1,000 people, significantly below the County average of 3.3 acres. The Study Area is defined as having a very high need for additional park-land. The percentage of residents living within ½ mile of a park is 82%, which is above the County average of 49%. The Bell Gardens Golf Course occupies a total of only 24 acres. The percentage of land devoted to golf in the Study area is 30%, with 70% devoted to local park-land. Exhibit 25 Bell Gardens Golf Course Park Need Study Area 114 - City of Bell Gardens Park Need Category: Very High Population 42,276 Within ½ Mile of a Park 82% Park Acres / 1,000 1.3 Golf Acres, Park Acres 56 24, 30% Golf Acres 24 Park Acres, 56, 70% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, May 2016 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 59 Exhibit 26 shows the number of rounds of golf played has decreased by 41% over the past 9 years. No other data was available. Exhibit 26 Bell Gardens Golf Rounds Played Fiscal Year 2009-09 to 2016-17 Source: Bell Gardens Recreation & Community Services Department Compton Golf Course Exhibit 27 shows the Study Area has just 0.6 acres of park-land per 1,000 people, significantly below the County average of 3.3 acres. The Study Area is defined as having a high need for additional park-land. The percentage of residents living within ½ mile of a park is 58%, which is above the County average of 49%. The Compton Golf Course is a small facility occupying only 12 acres. The percentage of land devoted to golf in the Study Area is 17%, with 83% devoted to park-land. 60 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 27 Compton Golf Course Park Need Study Area 142 - City of Compton Park Need Category: High Study Area Population 97,801 Within ½ Mile of a Park 58% Golf Acres, Park Acres / 1,000 0.6 12, 17% Park Acres 56.6 Golf Acres 12 Park Acres, 56.6, 83% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, May 2016 South Gate Golf Course Exhibit 28 shows the Study Area has just 1.5 acres of park-land per 1,000 people, significantly below the County average of 3.3 acres. The Study Area is defined as having a very high need for additional park-land. The percentage of residents living within ½ mile of a park is 45%, which is just below the County average of 49%. The South Gate Golf Course is a very small facility occupying only 7 acres. The percentage of land devoted to golf in the Study Area is 5%, with the remaining 95% devoted to park-land. Exhibit 28 South Gate Golf Course Park Need Study Area 88 - City of South Gate Park Need Category: Very High Study Area Population 96,297 Golf Acres, Within ½ Mile of a Park 45% 7, 5% Park Acres / 1,000 1.5 Park Acres 147.8 Golf Acres 7 Park Acres, 147.8, 95% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, May 2016 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 61 G. Potential to Expand Use or Repurpose Golf Courses in High or Very High Park Need Areas The potential to expand the use or repurpose golf courses was evaluated based on the need for additional park-land, the amount and percentage of public land devoted to golf in each area, the trends in the number of rounds of golf played at each golf course, and the potential impact of expanded use or repurposing each golf course.
F7:
There is high potential to expand the use or repurpose of seven golf courses, and moderate potential to expand the use or repurpose four of the 13 golf courses reviewed. The following Exhibit 29 lists the golf courses reviewed, and the potential to expand the use or repurpose these golf courses. Exhibit 29 Potential to Expand Use or Repurpose Golf Courses for Park and Recreation Use Golf Acre Rounds Expand Use or Golf Course Park Need Percentage Played Trend Repurpose Potential Alhambra High 62% (33%) High Alondra Very High 89% (24%) High Chester Washington Very High 95% (16%) High Los Amigos Very High 50% 3% High Penmar High 59% (10%) High Rancho Park 18 High 67% (12%) High Rancho Park 9 High 67% (21%) High Maggie Hathaway Very High 17% (40%) Moderate Don Knabe High 9% NA Moderate Bell Gardens Very High 30% (41%) Moderate Compton Very High 17% NA Moderate Hansen Dam Very High 73% (23%) Low South Gate High 5% NA Low As this exhibit shows, seven golf courses (Alhambra, Alondra, Chester Washington, Los Amigos, Penmar and Rancho Park 18 and Rancho Park 9) have a high potential for expanded use or repurposing to park and recreational uses. This is based on the fact that the golf acreage percentage in the Study Areas where these seven courses are located ranges from 50% to 95% of the combined park and golf acreage. Also, with the exception of Los Amigos golf course, the trend in rounds of golf play shows a decreasing demand for golf. Because of the low park acres relative to the high number of acres devoted to golf courses, partial or full conversion to park and recreational use could have a significant impact on meeting park need in these areas. The Alhambra Golf Course acreage amount and percentage of public land devoted to golf is relatively high. Partial repurposing of the Alhambra Golf Course by reducing the course from 18 to 9 holes would have a significant positive impact on park need in the Southeastern quadrant of 62 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT the City while continuing to allow for golf in the Study Area. Moor Field, while counted as a local park is, in fact, a School District property not open to the public. The 22-acre Almansor Park located adjacent to the golf course is overcrowded and appears to not meet the park and recreational needs of the City. Four golf courses (Maggie Hathaway, Don Knabe, Bell Gardens and Compton) have a moderate potential for expanded use or repurposing to park and recreational uses because the amount and percentage of public land devoted to golf in the Study Areas where these courses are located is relatively low. These courses are small 9-hole facilities ranging from 10 to 24 acres. Using this land to meet park and recreational need would have an impact, but not as substantial as the larger golf courses. Two golf courses (Hansen Dam and South Gate) have a low potential for expanded use or repurposing to park and recreational uses. Hansen Dam Golf Course is adjacent to the 420-acre Hansen Dam Regional Recreation Park, so expanding the use or repurposing the golf course would have little impact on park need. South Gate Golf course is a small 7 acre, 9-hole golf course which is part of the 96 acre South Gate City Park. Only 5% of the public park-land in this area is devoted to golf, so expanding its use or repurposing would have little impact on improving park need.
Additional Recommendations
5
Not linked to specific findings.
R1:
Were about five times more likely to be classified with an emotional disturbance than other students
R2:
Experienced much higher rates of school mobility than other students
R3:
Were also more likely than other students to be enrolled in non-traditional public schools
R4:
Were more likely than all comparison groups to drop out of school, and
R5:
Had graduation rates that were the lowest among the at-risk student groups Given the substantial and unique challenges foster youth face in achieving school and educational success, it would be reasonable to expect that each school district would use funding received under LCFF to focus on addressing these challenges. When we reviewed the LCAP’s for each of the ten school districts for the past four years (FY2013-14 to FY2016-17) the CGJ found only five of the ten districts (Compton, Hacienda-La Puente, Inglewood, Los Angeles and Pasadena) had substantial programs and funding specifically to meet the unique needs of their students in foster care. State funding provided under the LCFF is currently based on an unduplicated count of students that meet one of the criteria for targeted students. These identified student populations consist of low-socio-economic status (SES), English learners, or foster youth. Although some individual 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 67 students may meet the criteria for more than one group, they may only be counted once, no overlapping. Specific funding is not provided to school districts based solely on their foster youth students. This method for distributing LCFF funds statewide underrepresents the needs of foster youth students and does not directly fund programs and services required to meet the unique needs of students in foster care. To evaluate foster youth student achievement, the CGJ compared the chronic absenteeism rate, suspension rate, percentage prepared for college and career and graduation rate with the general student population and other targeted student groups. The CGJ found the chronic absenteeism rate for foster youth is much higher than for the general student population, or for other targeted student populations in each of the ten school districts reviewed. The chronic absentee rate for foster youth is more than twice that for the other groups. The CGJ also found the suspension rate for foster youth is more than three times that for the other groups. The percentage of foster youth prepared for college or career is much lower than for the general student population or for other targeted student populations in each of the ten school districts reviewed, with the percentage of foster youth prepared for college or career less than half that for the other groups. The percentage of foster youth graduating is also much lower than for the general student population, or for other targeted student populations. The average percentage of foster students that graduated was 64.5% for the ten school districts. This compares to 86.6% for the general student population, 71.7% for English Learner students, and 86.6% for socio- economically disadvantaged students. The reported graduation rate for foster youth students at some school districts shows some short- term positive trends. Reported graduation rates for foster youth at Antelope Valley and Paramount increased by about seventeen percent (17%) between FY2014-15 and FY2016-17, and by about fourteen percent (14%) for Compton and Pomona school districts. While these short-term reported trends appear positive, the quality and reliability of data and information reported by school districts to track and monitor success in meeting the needs of foster youth is inconsistent and of questionable quality. There are at least five local and state databases of foster student education data, and the reliability of the data in any one of the databases is questionable. There is substantial variance in the number of reported foster youth students enrolled. Enrollment is the key basic data element required in order to develop and focus educational efforts targeting the needs of foster youth. The Los Angeles County Office of Education (LACOE) is developing a common and consistent data repository called the LACOE’s Educational Passport System for all school district information concerning foster youth that will also provide a consistent base for monitoring, tracking and reporting on foster youth performance to better meet their specific needs. The CGJ recommends school districts that have allocated relatively small amounts of funding to programs or actions specifically targeted to meet the substantial unique needs of their foster youth students, or have not identified specific amounts of funding allocated, should consider allocating additional funding for such programs. (Antelope Valley, Downey, Long Beach, Paramount, and Pomona). The CGJ also recommends the LACO, Los Angeles County Department of Children and Family Services (DCFS), and Los Angeles County school districts should lobby the California Legislature to consider revising the method for distributing LCFF funds Statewide that provides 68 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT specific funding to each school district to fund programs that meet the specific substantial and unique needs of students in foster care. The CGJ also recommends school districts continue to track and monitor the significant achievement gap of foster youth compared with other targeted student groups and the general student population and develop and implement programs to address that achievement gap. The LACO should continue to enhance and expand its Educational Passport System to provide a common and consistent data repository for all school district information on foster youth, and encourage use of a consistent database for monitoring, tracking and reporting on foster youth performance to better meet their specific needs.
Findings & Recommendations
7 findings
F1:
Nationally, women remain a very small percentage of the firefighter workforce. A nationwide study of women in firefighting resulted in the report A National Report Card on Women in Firefighting.6 This effort, supported by the Ford Foundation and the International Association of Women in the Fire and Emergency Services, reached several key conclusions, including: • The proportion of women working in occupations resembling firefighting in requiring strength, stamina, and dexterity, or involving outdoor, dirty or dangerous work is 17%. • Women now approach, equal, or even exceed 17% of uniformed police officers in a number of jurisdictions nationally. • Having female firefighters as 17% of fire departments’ firefighting workforce is a reasonable target. Female Firefighters in Los Angeles County Area Fire Departments’ Workforce As part of this investigation the CGJ identified the number of female firefighters at the three largest fire departments within Los Angeles County – LACFD, LAFD Department, and LBFD. The following sections show the number of total firefighters in the three largest fire departments in Los Angeles County, and the percentage that are female. Los Angeles County Fire Station (LACFD) 158 in Gardena 5 U.S. Bureau of Labor Statistics, Household Data Survey. As reported by the National Fire Protection Agency (NFPA.org) 6 Hulett, Denise M., et al, A National Report Card on Women in Firefighting. April 2008 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 95 Los Angeles County Fire Department Exhibit 1 shows, of the current 2,947 firefighter staff of the LACFD only 50, or 1.7% are female. This is substantially below the national average of 4.6%, and the potential target of 17%. However, there are female firefighters within the command ranks of the Department, including one Chief Deputy, three Battalion Chiefs, and eight Captains. Exhibit 1 Los Angeles County Fire Department Current Firefighter Staffing by Gender Male Female Position Number Percent Number Percent Totals Chief 1 100.0% - 0.0% 1 Chief Deputy 1 50.0% 1 50.0% 2 Deputy Chief 11 100.0% - 0.0% 11 Assistant Chief 15 100.0% - 0.0% 15 Battalion Chief 98 97.0% 3 3.0% 101 Captain 697 98.9% 8 1.1% 705 Firefighter Specialist 753 98.6% 11 1.4% 764 Firefighter 1,267 98.1% 25 1.9% 1,292 Firefighter Trainee 54 96.4% 2 3.6% 56 Total 2,897 98.3% 50 1.7% 2,947 Source: Los Angeles County Fire Department 96 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT City of Los Angeles Fire Department Exhibit 2 shows, of the current 3,308 firefighter staff of the LAFD, only 100, or 3% are female. While this percentage is higher than the percentage for the LA County Fire Department, it is still below the national average of 4.6%, and substantially below the potential target of 17%. However, there are female firefighters within the command ranks of the Department, including one Deputy Chief, five Battalion Chiefs, and twelve Captains. Exhibit 2 City of Los Angeles Fire Department Current Staffing by Gender Male Female Position No. % No. % Totals Chief 1 100.0% 0 0.0% 1 Deputy Chief 8 88.9% 1 11.1% 9 Assistant Chief 17 100.0% 0 0.0% 17 Battalion Chief 58 92.1% 5 7.9% 63 Captain 527 97.8% 12 2.2% 539 Engineer 429 98.4% 7 1.6% 436 Apparatus Operator 132 98.5% 2 1.5% 134 Inspector 116 89.9% 13 10.1% 129 Fire Helicopter Pilot 16 100.0% 0 0.0% 16 Fire Boat Pilot/Mate 21 100.0% 0 0.0% 21 Firefighter 1883 96.9% 60 3.1% 1,943 Total 3,208 97.0% 100 3.0% 3,308 Source: City of Los Angeles Fire Department 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 97 Long Beach Fire Department Exhibit 3 shows, of the current 370 firefighter staff of the LBFD, only 14, or 3.8% are female. This is below the national average of 4.6%, and substantially below the potential target of 17%. There is one female firefighter with the rank of Captain in the command ranks of the Department. Exhibit 3 Long Beach Fire Department Current Staffing by Gender Male Female Position No. % No. % Totals Chief 1 100.0% 0 0.0% 1 Deputy Chief 3 100.0% 0 0.0% 3 Assistant Chief 3 100.0% 0 0.0% 3 Battalion Chief 13 100.0% 0 0.0% 13 Captain 82 98.8% 1 1.2% 83 Engineer 80 100.0% 0 0.0% 80 Fire Boat Pilot 5 100.0% 0 0.0% 5 Firefighter 169 92.9% 13 7.1% 182 Total 356 96.2% 14 3.8% 370 Source: Long Beach Fire Department Recruiting and Testing Female Firefighter Candidates As part of this investigation, the CGJ identified the number of total applicants for firefighter recruit positions as well as the number and percent of female applicants for the three largest fire departments within Los Angeles County – the LACFD, the LAFD, and the LBFD.
F2:
The percentage of female firefighters in the workforce of each of Los Angeles County’s three largest fire departments is below national averages and substantially below suggested target levels. The following sections show the number of firefighter applications received and test results for each of the three fire departments, and the percentage that are female and male. Los Angeles County Fire Department Exhibit 4 shows, less than four percent (3.79%) of the applications received for firefighter candidate positions with the LACFD were female and only 3.32% of the candidates taking the written exam were female. Female candidates did do somewhat better on the written exam with 69.4% of female candidates passing the written exam. This compares to 64.9% for male firefighter candidates. After the application review and written test only 102 female candidates, or 3.54% of all firefighter candidates, were available to select for the fire academy. 98 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 4 Los Angeles County Fire Department Fire Fighter Candidate Applications and Test Results Applications Received Male Female Total Number Percent Number Percent Number Percent Total 6,352 96.21% 250 3.79% 6,602 100.00% Candidates Taking Written Test Male Female Total Number Percent Number Percent Number Percent Total 4,283 96.68% 147 3.32% 4,430 100.00% Written Test Results Male Female Total Number Percent Number Percent Number Percent Passed 2,778 64.90% 102 69.40% 2,880 100.00% Failed 1,505 35.10% 45 30.60% 1,550 100.00% Male Female Percent of Passing Candidates 96.46% 3.54% Source: Los Angeles County Fire Department Demographic Breakdown of Fire Fighter Trainee Candidates, 2015 Note: Excludes firefighter applicants and candidates with unidentified gender. City of Los Angeles Fire Department The LAFD requires individuals interested in becoming firefighters to complete an application and meet minimum requirements. These requirements include being at least 18 years of age at the time of the application and graduation from a U.S. high school or equivalent. Qualification also includes providing proof of a current passing score on the Candidate Physical Abilities Test (CPAT). Applicants are required to possess a valid California Drivers’ License and Emergency Medical Technician (EMT) certificate prior to appointment. Applicants must also achieve a passing score on the Firefighter Candidate Assessment in order to be considered in the next phase of the selection process. Information on the number of firefighter candidate applications received, as well as the number and percent that were female and male, was not available from the LAFD. Exhibit 5 shows only 8.13% of the firefighter candidates taking the firefighter candidate assessment were female. Female firefighter candidates, on the firefighter candidate assessment, had 76.76% of candidates passing the assessment. This compares to 82.55% for male firefighter candidates. After the firefighter candidate assessment only 370 female candidates, or 7.6% of all firefighter candidates, were available to be selected for the fire academy 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 99 Exhibit 5 City of Los Angeles Fire Department Fire Fighter Candidate Applications and Assessment Results Applications Received Male Female Total Number Percent Number Percent Number Percent Total NA NA NA NA 0 0 Candidates Taking Firefighter Candidate Assessment Male Female Total Number Percent Number Percent Number Percent Total 5,450 91.87% 482 8.13% 5,932 100.00% Firefighter Candidate Assessment Results Male Female Total Number Percent Number Percent Number Percent Passed 4,499 82.55% 370 76.76% 4,869 82.08% Failed 951 17.45% 112 23.24% 1,063 17.92% Male Female Percent of Passing Candidates 92.40% 7.60% Sources: City of Los Angeles Fire Department Recruitment Annual Report and Firefighter Candidate Assessment Passing Rates 2016 Note: Excludes firefighter applicants and candidates with unidentified gender. Long Beach Fire Department To become a Long Beach firefighter involves participating in an open-competitive selection process. In general, candidates are required to submit an application and engage in a testing process through the Long Beach Civil Service Department, followed by an in-depth selection process through the LBFD. The LBFD requires the successful completion of a physical ability test as part of the application and only accepts the Biddle Physical Ability Test (BPAT). Applicants who successfully pass the Civil Service testing process are placed in bands, which are groups of qualified applicants, and may then be contacted by the Fire Department for further consideration. Typically, the Fire Recruit open-competitive selection process opens every two to three years. Exhibit 6 shows, only about 5% percent of the applications received for firefighter candidate positions with the LBPD were female. A slightly higher percentage, (5.07%) of the candidates taking the written test, were female. 100 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Female firefighter candidates did do somewhat worse on the firefighter written test, with 43.65% of female candidates passing the test. This compares to 56.83% for male firefighter candidates. After the firefighter written test only 213 female candidates, or 3.94% of all firefighter candidates taking the written test, were available for selection to attend the fire drill school. (LBFD), Station 1. Station 1 is in the Civic Center. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 101 Exhibit 6 Long Beach Fire Department Fire Fighter Candidate Applications and Test Results Applications Received Male Female Total Number Percent Number Percent Number Percent Total 9,578 95.01% 503 4.99% 10,081 100.00% Candidates Taking Written Test Male Female Total Number Percent Number Percent Number Percent Total 9,134 94.93% 488 5.07% 9,622 100.00% Written Test Results Male Female Total Number Percent Number Percent Number Percent Passed 5,191 56.83% 213 43.65% 5,404 56.16% Failed 3,943 43.17% 275 56.35% 4,218 43.84% Male Female Percent of Passing Candidates 96.06% 3.94% Source: Long Beach Fire Department Fire Recruit Application and Written Test Results – 2013 to 2018 Note: Excludes firefighter applicants and candidates with unidentified gender.
F3:
The percentage of firefighter applicants and individuals taking firefighter exams and assessments that are female is very low. Female firefighter candidates taking written exams or assessments pass them at rates comparable or better than male firefighter applicants. Training Female Firefighter Recruits Candidates selected to become firefighter recruits must complete a substantial training program before becoming full firefighters. This includes successful completion of both a fire academy (or drill school) and the recruit probationary period. The fire academy is about five months of full time training. This training covers academic and manipulative tasks. Basic instruction teaches fire recruits the skills of use of personal protective equipment, handling ladders, hose lays, tools, equipment and emergency medical skills. The advanced training mirrors field activities in scope and intensity to challenge recruits using simulated fire ground conditions. The advanced training also requires a significant demonstration of the strength and stamina necessary to perform at a basic firefighter level in the field. After completion of the fire academy or drill school a fire recruit must continue to demonstrate the skills necessary to be a firefighter during the probationary period. The probationary period is for one full year, or 365 days. 102 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Los Angeles County Fire Department Exhibit 7 shows, only 17 or 2.3% of the firefighter recruits entering the LACFD Fire Academy were female. Of these, only 15, or 2.2%, of the Fire Academy graduates were female. The Fire Academy graduation rate for females was 88.2%, slightly lower than the graduation rate of 92.2% for males. Information on completion of the probationary period was not available from the LACFD. Exhibit 7 Los Angeles County Fire Department Fire Academy Entrees and Graduates Male Female Total Number Percent Number Percent Entered Academy 715 97.7% 17 2.3% 732 Graduated Academy 659 97.8% 15 2.2% 674 Percent Graduated 92.2% 88.2% Source: Los Angeles County Fire Department, Fire Fighter Trainee Breakdown by Gender, 2012 to Present City of Los Angeles Fire Department Exhibit 8 shows, only 21 or 6.52% of the firefighter recruits entering the LAFD Fire Academy were female. Of these, only 12 or 4.58%, of the Fire Academy graduates were female. The Fire Academy graduation rate for females was 57.14%, substantially lower than the graduation rate of 83.06% for males. Exhibit 8 also shows the information on completion of the probationary period by both female and male fire recruits. As this exhibit shows, all 12 or 100%, of the female recruits that completed the fire academy also successfully completed the probationary period. This is slightly higher than the percentage of male recruits successfully completing the probationary period at 98.4%. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 103 Exhibit 8 City of Los Angeles Fire Department Fire Academy Entrees and Graduates Male Female Total Number Percent Number Percent Entered Academy 301 93.48% 21 6.52% 322 Graduated Academy 250 95.42% 12 4.58% 262 Percent Graduated 83.06% 57.14% Fire Recruit Probationary Period Results Male Female Total Number Percent Number Percent Began Probation 250 95.42% 12 4.58% 262 Completed Probation 246 95.35% 12 4.65% 258 Percent Completing Probation 98.4% 100.0% Source: City of Los Angeles Fire Department, Recruit Training Academy Overview, August 2017, Includes six Academies between 2014 and 2017. Long Beach Fire Department Exhibit 9 shows, only 22 or 8.8% of the firefighter recruits entering the LBFD Drill School were female. Of these, only 10 or 5.24%, of the Fire Drill School graduates were female. The Fire Drill School graduation rate for females was 45.45%, substantially lower than the graduation rate of 79.39% for males. Exhibit 9 also shows the information on completion of the probationary period by both female and male fire recruits. As this exhibit shows, six or 3.87% of the firefighter recruits beginning probation were female. Of these, only four females successfully completed the probationary period. As a result, only 3.1% of firefighter recruits that completed the fire drill school and also successfully completed the probationary period were female. Approximately two-thirds (66.7%) of female firefighter recruits successfully completed the probationary period. This is much lower than the percentage of male firefighter recruits successfully completing the probationary period at 83.9%. 104 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 9 Long Beach Fire Department Fire Drill School Entrees and Graduates Male Female Total Number Percent Number Percent Entered Academy 228 91.20% 22 8.80% 250 Graduated Academy 181 94.76% 10 5.24% 191 Percent Graduated 79.39% 45.45% Fire Recruit Probationary Period Results Male Female Total Number Percent Number Percent Began Probation 149 96.13% 6 3.87% 155 Completed Probation 125 96.90% 4 3.10% 129 Percent Completing Probation 83.9% 66.7% Source: Long Beach Fire Department, Drill School Evaluation, Includes nine Academies between 2004 and 2017.
F4:
The percentage of female firefighters entering and completing the fire academies or drill schools at each of Los Angeles County’s three largest fire departments is very low. The percentage completing the probationary period is also very low. Accommodations for Female Firefighters Firefighters generally work long shifts (e.g. 24 hours) that require them to essentially live and sleep in the fire station during their shift. Most fire stations in use today were originally planned and built with a single-sex workforce in mind. Many of these buildings are now being used by a workforce that includes both women and men. Not surprisingly, the design of older stations can result in inadequacies that are a source of inconvenience, discomfort, embarrassment, and friction for all concerned.7 One reason there are so few female applicants for firefighter positions may be both the perception and reality that they will be required to live, sleep, and shower in fire stations that do not provide adequate accommodations for female firefighters. California State law requires employers to provide adequate bathroom facilities8 and separate shower rooms be provided for each sex where showering is required by the employer.9 In addition, most fire departments are working to ensure that firefighters have gender specific or individual toilet facilities, showers, clothes changing areas, personal storage lockers, and sleeping accommodations.10 7 Many Women Strong: A Handbook for Women Firefighters, Prepared by: Women in the Fire Service 8 California Code, Labor Code - LAB § 2350 9 California Administrative Code, Title 8 Section 3366(f} 10 Position Statement – Facilities, International Association of Women in Fire & Emergency Services, 2012 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 105
F5:
Foster Youth have a significant achievement gap when compared with other targeted student groups and the general student population. To evaluate the foster youth student achievement, we compared the chronic absenteeism rate, suspension rate, percentage prepared for college and career and graduation rate with the general student population and other targeted student groups. These comparisons are discussed in the following sections. Chronic Absenteeism Rate A "chronic absentee" has been defined in California Education Code (EC) Section 60901(c)(1) as "a pupil who is absent on 10 percent or more of the school days in the school year when the total number of days a pupil is absent is divided by the total number of days the pupil is enrolled and school was actually taught in the regular day schools of the district, exclusive of Saturdays and Sundays." The California Department of Education has focused on reducing the state’s chronic absenteeism rates, especially the rates for racial/ethnic groups and program populations (such as foster youth) which are significantly above the state average. The State Attendance Review Board (SARB), recommends how to identify and respond to patterns of chronic absenteeism or truancy. In its Model School Attendance Review Board Recognition Program, the SARB recognizes districts which implement a three-tiered approach to reducing chronic absenteeism rates for student populations which are above the district average: • First tier: Focus on preventing attendance problems by promoting a positive school climate. • Second tier: Ensure early interventions for minor attendance problems. • Third tier: Address intensive barriers to school attendance, such as mental health conditions. Data on chronic absenteeism is newly available, with this information being released by the California Department of Education in December 2017. According to the State Superintendent of Public Instruction “This data helps us determine which schools, districts, and student groups have the largest concentration of chronic absences, allowing educators and community members to focus attention and resources and take actions needed to keep those students in class and back on the path to academic success.” As shown in Exhibit 3, the chronic absenteeism rate for foster youth is much higher than for the general student population, or for other targeted student populations in each of the ten school districts reviewed. The average percentage of foster students that are chronically absent is twenty-six percent (26%) for the ten school districts. This compares to 11.9% for the general student population, 11.9% for English Learner students, and 12.9% for socio-economically disadvantaged students. The chronically absent rate for foster youth is more than twice that for the other groups. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 77 Exhibit 3 Comparison of Chronic Absenteeism Rates by School District and Student Populations Socio-Economic All Students English Learners Foster Youth Disadvantaged Chronic School District Chronic Absent Chronic Absent Chronic Absent Absent Total Total Total Total No. % No. % No. % No. % Antelope Valley 26,965 6,146 22.8% 3,076 786 25.6% 20,514 5,070 24.7% 918 364 39.7% Compton 25,408 4,493 17.7% 8,989 1,342 14.9% 22,442 3,981 17.7% 693 190 27.4% Downey 23,234 2,496 10.7% 3,729 437 11.7% 17,225 2,070 12.0% 271 50 18.5% Hacienda La Puente 19,800 1,572 7.9% 4,129 264 6.4% 14,832 1,322 8.9% 361 65 18.0% Inglewood 13,453 1,609 12.0% 3,821 401 10.5% 11,433 1,416 12.4% 230 43 18.7% Long Beach 80,163 8,951 11.2% 17,701 1,945 11.0% 56,713 7,396 13.0% 1,101 253 23.0% Los Angeles 661,653 77,312 11.7% 169,544 20,244 11.9% 533,307 67,087 12.6% 9,241 2,363 25.6% Paramount 16,254 1,357 8.3% 5,637 409 7.3% 15,625 1,326 8.5% 242 54 22.3% Pasadena 19,638 2,236 11.4% 3,666 508 13.9% 12,895 1,806 14.0% 583 204 35.0% Pomona 26,209 2,630 10.0% 8,132 741 9.1% 22,836 2,352 10.3% 545 97 17.8% Totals and Averages 912,777 108,802 11.9% 228,424 27,077 11.9% 727,822 93,826 12.9% 14,185 3,683 26.0% Source: 2016-17 Chronic Absenteeism Rate Report, California Department of Education Attendance Works (attendanceworks.org), a foundation with a mission to “advance student success and reduce equity gaps by reducing chronic absence” has developed a series of policies, tools, resources, and strategies for addressing chronic absenteeism that could be implemented by school districts to address the chronic absenteeism rates of foster youth students. Student Suspension Rates In schools, suspension is a mandatory leave assigned to a student as a form of punishment that can last anywhere from one day to several weeks, during which time the student is not allowed to attend regular school lessons. As with other forms of absence, students cannot be taught or learn when they are not at school, whether voluntarily or due to suspension. As shown in Exhibit 4, the suspension rate for foster youth is much higher than for the general student population, or for other targeted student populations in each of the ten school districts reviewed. The average percentage of foster students that were suspended is 6.5% for the ten school districts. This compares to 1.9% for the general student population, 1.2% for English Learner students, and 1.9% for socio-economically disadvantaged students. The suspension rate for foster youth is more than three times that for the other groups. 78 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 4 Comparison of Suspension Rates by School District and Student Populations Socio-Economic All Students English Learners Foster Youth Disadvantaged School District Suspended Suspended Suspended Suspended Total Total Total Total No. % No. % No. % No. % Antelope Valley 21,977 2,077 9.5% 2,379 228 9.6% 16,252 1,772 10.9% 693 175 25.3% Compton 23,547 996 4.2% 8,361 207 2.5% 20,486 889 4.3% 644 48 7.5% Downey 22,932 680 3.0% 3,660 105 2.9% 16,934 548 3.2% 254 21 8.3% Hacienda La Puente 19,706 625 3.2% 4,110 79 1.9% 14,710 552 3.8% 353 47 13.3% Inglewood 9,786 614 6.3% 3,268 121 3.7% 8,477 534 6.3% 184 17 9.2% Long Beach 79,268 2,724 3.4% 17,488 520 3.0% 55,805 2,276 4.1% 1,056 109 10.3% Los Angeles 494,709 2,585 0.5% 137,943 544 0.4% 414,232 2,328 0.6% 7,332 172 2.3% Paramount 15,934 548 3.4% 5,527 141 2.6% 15,325 526 3.4% 224 18 8.0% Pasadena 17,816 844 4.7% 3,493 156 4.5% 11,952 723 6.0% 455 92 20.2% Pomona 25,134 949 3.8% 7,818 261 3.3% 21,859 894 4.1% 481 58 12.1% Totals and Averages 730,809 12,642 1.7% 194,047 2,362 1.2% 596,032 11,042 1.9% 11,676 757 6.5% Source: Suspension Rate Indicator, California Department of Education Students Prepared for College or Career The College/Career Indicator (CCI) is based on the four-year graduation cohort and uses both college and career measures to evaluate how well districts and schools are preparing students for success after high school. Student preparedness can be evaluated using several measures or indicators of preparedness, including career technical education indicators, academic performance indicators, and exam scores. As shown in Exhibit 5, the percentage of foster youth prepared for college or career is much lower than for the general student population, or for other targeted student populations in each of the ten school districts reviewed. The average percentage of foster youth students that were determined to be prepared for college or career was 17.2% for the ten school districts. This compares to 38.6% for the general student population, 16% for English Learner students, and 36.4% for socio-economically disadvantaged students. The percentage of foster youth prepared for college or career is less than half that for the other groups. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 79 Exhibit 5 Comparison of College and Career Preparedness by School District and Student Populations All Students English Learners Socio-Economic Disadvantaged Foster Youth School District Prepared Prepared Prepared Prepared Total Total Total Total No. % No. % No. % No. % Antelope Valley 4,399 1,366 31.1% 546 44 8.1% 3,480 967 27.8% 111 11 9.9% Compton 1,060 231 21.8% 476 68 14.3% 1,028 227 22.1% 21 1 4.8% Downey 1,818 747 41.1% 244 24 9.8% 1,444 326 22.6% 16 1 6.3% Hacienda La Puente 1,544 717 46.4% 372 105 28.2% 1,257 426 33.9% 29 5 17.2% Inglewood 657 50 7.6% 188 8 4.3% 611 87 14.2% 10 * Long Beach 5,487 2,285 41.6% 1,090 179 16.4% 4,011 1,394 34.8% 53 7 13.2% Los Angeles 28,404 11,511 40.5% 6,005 999 16.6% 26,323 10,616 40.3% 399 82 20.6% Paramount 1,124 436 38.8% 294 52 17.7% 1,110 433 39.0% 21 7 33.3% Pasadena 1,141 407 35.7% 203 21 10.3% 927 283 30.5% 23 4 17.4% Pomona 1,580 484 30.6% 573 98 17.1% 1,375 387 28.1% 21 3 14.3% Totals and Averages 47,214 18,234 38.6% 9,991 1,598 16.0% 41,566 15,146 36.4% 704 121 17.2% Source: College and Career Preparedness Indicator, California Department of Education Graduation Rates A student graduates from high school when they successfully meet their school district’s graduation requirements. The state sets minimum requirements. Local school districts have the authority and responsibility for establishing any requirements for awarding a California high school diploma from their secondary schools. These must include the set of 13 minimum courses/130 credits required under California Education Code. Most school districts in California require between 22 and 26 one-year courses (or the equivalent) for graduation. A graduation cohort is a group of high school students who could potentially graduate with a regular high school diploma within four years of entering grade nine. Exhibit 6 shows the number in the cohort of students who started high school in 2012–13 for each of the ten school districts reviewed. It also shows the number and percentage of cohort students who graduated by both total students and each targeted student population. As shown in Exhibit 6, the percentage of foster youth graduating is much lower than for the general student population, or for other targeted student populations in each of the ten school districts reviewed. The average percentage of foster students that graduated was 64.5% for the ten school districts. This compares to 86.6% for the general student population, 71.7% for English Learner students, and 86.6% for socio-economically disadvantaged students. The percentage of foster youth is substantially below the graduation rate for the other groups. 80 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 6 Comparison of Graduation Rates by School District and Student Populations All Students English Learners Socio-Economic Disadvantaged Foster Youth School District Graduated Graduated Graduated Graduated Total Total Total Total No. % No. % No. % No. % Antelope Valley 4,472 3,944 88.2% 564 425 75.4% 3,543 3,064 86.5% 113 83 73.5% Compton 1,071 922 86.1% 484 402 83.1% 1,039 899 86.5% 21 14 66.7% Downey 1,843 1,785 96.9% 258 233 90.3% 1,464 1,416 96.7% 17 15 88.2% Hacienda La Puente 1,556 1,476 94.9% 377 341 90.5% 1,268 1,197 94.4% 30 24 80.0% Inglewood 666 570 85.6% 192 149 77.6% 619 539 87.1% 10 NA NA Long Beach 5,547 4,987 89.9% 1,116 910 81.5% 4,060 3,600 88.7% 56 37 66.1% Los Angeles 28,782 24,244 84.2% 6,216 4,008 64.5% 26,647 22,675 85.1% 413 251 60.8% Paramount 1,134 1,040 91.7% 298 260 87.2% 1,119 1,031 92.1% 21 18 85.7% Pasadena 1,149 997 86.8% 204 152 74.5% 933 799 85.6% 24 10 41.7% Pomona 1,601 1,432 89.4% 585 503 86.0% 1,394 1,242 89.1% 21 16 76.2% Totals and Averages 47,821 41,397 86.6% 10,294 7,383 71.7% 42,086 36,462 86.6% 726 468 64.5% Source: Graduation Rate Indicator, California Department of Education G. Foster Youth Graduation Rate Trends The rate at which students graduate from high school is the most meaningful and common measure of school success for school districts. Programs and strategies are developed and implemented to improve the success of students in completing the requirements and graduating from high school.
F6:
The reported graduation rate for foster youth students at some school districts shows some short-term positive trends. As Exhibit 7 shows, some of the ten school districts have reported increased graduation rates for the 2015-16 school year compared to the 2014-15 school year. For example, Antelope Valley shows an increase of just over sixteen percent (16%), Compton an increase of just over fourteen percent (14%), Paramount an increase of about seventeen percent (17%), and Pomona an increase of just over fourteen percent (14%). While these reported gains appear very positive, the timeline for this trend is only two years, and the data underlying these reported gains is questionable, as discussed in the next section of this report. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 81 Exhibit 7 Short-Term Trends in Foster Youth Graduation Rates by School District 100.0% 88.2% 90.0% 85.7% 80.0%80.0% 80.0% 76.2% 73.5% 68.8% 70.0% 66.7% 66.1% 61.9% 60.8% 61.9% 60.0% 55.9% 55.8% 52.2% 50.0% 41.7%41.7% 40.0% 30.0% 20.0% 10.0% 0 0 0 0.0% 2014-15 2015-16 Source: Fall 2017 Graduation Indicator reports obtained from California Department of Education. 82 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 8 shows the reported graduation rate for each of the ten school districts reviewed. No data was available for the 2013-14 or 2016-17 school year. Exhibit 8 Foster Youth Graduation Rates FY 2013-14 thru FY 2017-18 School Year Students Graduates Graduation Rate Antelope Valley Union High School District 2014-15 102 57 55.9% 2015-16 113 83 73.5% Compton Unified School District 2014-15 23 12 52.2% 2015-16 21 14 66.7% Downey Unified School District 2014-15 10 * * 2015-16 17 15 88.2% Hacienda La Puente Unified School District 2014-15 20 16 80.0% 2015-16 30 24 80.0% Inglewood Unified School District 2014-15 9 * * 2015-16 10 * * Long Beach Unified School District 2014-15 63 39 61.9% 2015-16 56 37 66.1% Los Angeles Unified School District 2014-15 301 168 55.8% 2015-16 413 251 60.8% Paramount Unified School District 2014-15 16 11 68.8% 2015-16 21 18 85.7% Pasadena Unified School District 2014-15 24 10 41.7% 2015-16 24 10 41.7% Pomona Unified School District 2014-15 21 13 61.9% 2015-16 21 16 76.2% Source: Fall 2017 Graduation Indicator reports obtained from California Department of Education. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 83 F. Foster Youth Data Quality and Reliability Valid and reliable data is essential in order to evaluate the relative needs of foster youth, and to effectively assess whether programs and strategies implemented to meet those needs are having an impact.
F7:
The quality and reliability of data and information reported by school districts to track and monitor foster youth enrollments, as well as success in meeting the needs of foster youth is inconsistent and of questionable quality. There are at least five local and state databases of foster student education data. The reliability of the data in any one of the databases is questionable, based on the following limitations:3 • The California Department of Education Student and School Data files report the largest number of foster students in each school district, which suggests an aggregate student reporting methodology throughout the school year. • California Longitudinal Pupil Achievement Data System (CalPADS) captures a moment-in time census. For 2017, the snapshot was taken on October 4, 2017. While CalPADS encourages additional data submissions throughout the school year, it isn’t mandatory. As of mid-December, only fifty percent (50%) of school districts had updated their CalPADS information. • The California School Dashboard, intended to report school district performance and success measures, is based upon the latest state data available. The Dashboard will be updated each fall with the most recent available data, including enrollment numbers and demographic information. • The DCFS Student Information Tracking System (SITS), developed in 2011, started first with LAUSD and then progressively added more school districts. SITS was LA County’s first automated foster student academic data sharing system. To date, SITS includes data on only fifty percent (50%) of LA County’s school districts. • LACOE’s Education Passport System (EPS) is Los Angeles County’s second generation academic data sharing system between LACOE, DCFS and 76 of our 80 school districts. LACOE developed EPS in collaboration with DCFS. While SITS is in the process of transitioning to EPS, right now, both systems are limited to data on children and youth under open court cases4 only. Overview provided by the Bureau of Clinical Services and Resources, LA Department of Children and Family Services 4 “Open court case” means a court has taken jurisdiction over a child and declared the child to be a dependent or ward of the court (California Education Code Section 42238.01(b)) 84 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 9 shows the number of foster youth enrolled in each school district as reported by the various data sources listed above. As this exhibit shows, there is substantial variance in the number of reported foster youth students enrolled. Exhibit 9 Foster Youth Reported Total Enrollment by Data Source DCFS Student LACOE California California Information Education School District Department of CalPads School Tracking Passport Education Dashboard System System Antelope Valley 1107 366 430 330 420 Compton 827 332 358 610 471 Downey 336 125 156 NA NA Hacienda La Puente 425 174 207 428 216 Inglewood 284 90 91 168 135 Long Beach 1498 387 534 611 457 Los Angeles 11,586 3,346 4,303 5,641 12,214 Paramount 291 126 124 NA NA Pasadena 686 274 274 612 637 Pomona 676 234 262 180 413 Source: Bureau of Clinical Services and Resources, LA Department of Children and Family Services The number of foster youth enrolled in a school district is the key basic data element required in order to develop and focus educational efforts targeted at the needs of foster youth. It is also the basic data element required to effectively monitor and report on progress in improving services and outcomes for foster youth. Los Angeles County is moving towards coordinating educational services, sharing information, responding to the needs of the juvenile court system and automating the transfer of education records, at no cost to participating school districts, through LACOE’s Educational Passport System. A Memorandum of Understanding with 81 entities has been signed (76 school districts and 5 charter schools). Over 1,000 users from 59 school districts are sharing data. This initiative should provide a common and consistent data repository for all school district information on foster youth. It will also provide a consistent base for monitoring, tracking, and reporting on foster youth and performance in meeting their specific needs. Overview provided by the Bureau of Clinical Services and Resources, LA Department of Children and Family Services 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 85
Findings & Recommendations
7 findings
F1:
Nationally, women remain a very small percentage of the firefighter workforce. A nationwide study of women in firefighting resulted in the report A National Report Card on Women in Firefighting.6 This effort, supported by the Ford Foundation and the International Association of Women in the Fire and Emergency Services, reached several key conclusions, including: • The proportion of women working in occupations resembling firefighting in requiring strength, stamina, and dexterity, or involving outdoor, dirty or dangerous work is 17%. • Women now approach, equal, or even exceed 17% of uniformed police officers in a number of jurisdictions nationally. • Having female firefighters as 17% of fire departments’ firefighting workforce is a reasonable target. Female Firefighters in Los Angeles County Area Fire Departments’ Workforce As part of this investigation the CGJ identified the number of female firefighters at the three largest fire departments within Los Angeles County – LACFD, LAFD Department, and LBFD. The following sections show the number of total firefighters in the three largest fire departments in Los Angeles County, and the percentage that are female. Los Angeles County Fire Station (LACFD) 158 in Gardena 5 U.S. Bureau of Labor Statistics, Household Data Survey. As reported by the National Fire Protection Agency (NFPA.org) 6 Hulett, Denise M., et al, A National Report Card on Women in Firefighting. April 2008 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 95 Los Angeles County Fire Department Exhibit 1 shows, of the current 2,947 firefighter staff of the LACFD only 50, or 1.7% are female. This is substantially below the national average of 4.6%, and the potential target of 17%. However, there are female firefighters within the command ranks of the Department, including one Chief Deputy, three Battalion Chiefs, and eight Captains. Exhibit 1 Los Angeles County Fire Department Current Firefighter Staffing by Gender Male Female Position Number Percent Number Percent Totals Chief 1 100.0% - 0.0% 1 Chief Deputy 1 50.0% 1 50.0% 2 Deputy Chief 11 100.0% - 0.0% 11 Assistant Chief 15 100.0% - 0.0% 15 Battalion Chief 98 97.0% 3 3.0% 101 Captain 697 98.9% 8 1.1% 705 Firefighter Specialist 753 98.6% 11 1.4% 764 Firefighter 1,267 98.1% 25 1.9% 1,292 Firefighter Trainee 54 96.4% 2 3.6% 56 Total 2,897 98.3% 50 1.7% 2,947 Source: Los Angeles County Fire Department 96 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT City of Los Angeles Fire Department Exhibit 2 shows, of the current 3,308 firefighter staff of the LAFD, only 100, or 3% are female. While this percentage is higher than the percentage for the LA County Fire Department, it is still below the national average of 4.6%, and substantially below the potential target of 17%. However, there are female firefighters within the command ranks of the Department, including one Deputy Chief, five Battalion Chiefs, and twelve Captains. Exhibit 2 City of Los Angeles Fire Department Current Staffing by Gender Male Female Position No. % No. % Totals Chief 1 100.0% 0 0.0% 1 Deputy Chief 8 88.9% 1 11.1% 9 Assistant Chief 17 100.0% 0 0.0% 17 Battalion Chief 58 92.1% 5 7.9% 63 Captain 527 97.8% 12 2.2% 539 Engineer 429 98.4% 7 1.6% 436 Apparatus Operator 132 98.5% 2 1.5% 134 Inspector 116 89.9% 13 10.1% 129 Fire Helicopter Pilot 16 100.0% 0 0.0% 16 Fire Boat Pilot/Mate 21 100.0% 0 0.0% 21 Firefighter 1883 96.9% 60 3.1% 1,943 Total 3,208 97.0% 100 3.0% 3,308 Source: City of Los Angeles Fire Department 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 97 Long Beach Fire Department Exhibit 3 shows, of the current 370 firefighter staff of the LBFD, only 14, or 3.8% are female. This is below the national average of 4.6%, and substantially below the potential target of 17%. There is one female firefighter with the rank of Captain in the command ranks of the Department. Exhibit 3 Long Beach Fire Department Current Staffing by Gender Male Female Position No. % No. % Totals Chief 1 100.0% 0 0.0% 1 Deputy Chief 3 100.0% 0 0.0% 3 Assistant Chief 3 100.0% 0 0.0% 3 Battalion Chief 13 100.0% 0 0.0% 13 Captain 82 98.8% 1 1.2% 83 Engineer 80 100.0% 0 0.0% 80 Fire Boat Pilot 5 100.0% 0 0.0% 5 Firefighter 169 92.9% 13 7.1% 182 Total 356 96.2% 14 3.8% 370 Source: Long Beach Fire Department Recruiting and Testing Female Firefighter Candidates As part of this investigation, the CGJ identified the number of total applicants for firefighter recruit positions as well as the number and percent of female applicants for the three largest fire departments within Los Angeles County – the LACFD, the LAFD, and the LBFD.
F2:
The percentage of female firefighters in the workforce of each of Los Angeles County’s three largest fire departments is below national averages and substantially below suggested target levels. The following sections show the number of firefighter applications received and test results for each of the three fire departments, and the percentage that are female and male. Los Angeles County Fire Department Exhibit 4 shows, less than four percent (3.79%) of the applications received for firefighter candidate positions with the LACFD were female and only 3.32% of the candidates taking the written exam were female. Female candidates did do somewhat better on the written exam with 69.4% of female candidates passing the written exam. This compares to 64.9% for male firefighter candidates. After the application review and written test only 102 female candidates, or 3.54% of all firefighter candidates, were available to select for the fire academy. 98 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 4 Los Angeles County Fire Department Fire Fighter Candidate Applications and Test Results Applications Received Male Female Total Number Percent Number Percent Number Percent Total 6,352 96.21% 250 3.79% 6,602 100.00% Candidates Taking Written Test Male Female Total Number Percent Number Percent Number Percent Total 4,283 96.68% 147 3.32% 4,430 100.00% Written Test Results Male Female Total Number Percent Number Percent Number Percent Passed 2,778 64.90% 102 69.40% 2,880 100.00% Failed 1,505 35.10% 45 30.60% 1,550 100.00% Male Female Percent of Passing Candidates 96.46% 3.54% Source: Los Angeles County Fire Department Demographic Breakdown of Fire Fighter Trainee Candidates, 2015 Note: Excludes firefighter applicants and candidates with unidentified gender. City of Los Angeles Fire Department The LAFD requires individuals interested in becoming firefighters to complete an application and meet minimum requirements. These requirements include being at least 18 years of age at the time of the application and graduation from a U.S. high school or equivalent. Qualification also includes providing proof of a current passing score on the Candidate Physical Abilities Test (CPAT). Applicants are required to possess a valid California Drivers’ License and Emergency Medical Technician (EMT) certificate prior to appointment. Applicants must also achieve a passing score on the Firefighter Candidate Assessment in order to be considered in the next phase of the selection process. Information on the number of firefighter candidate applications received, as well as the number and percent that were female and male, was not available from the LAFD. Exhibit 5 shows only 8.13% of the firefighter candidates taking the firefighter candidate assessment were female. Female firefighter candidates, on the firefighter candidate assessment, had 76.76% of candidates passing the assessment. This compares to 82.55% for male firefighter candidates. After the firefighter candidate assessment only 370 female candidates, or 7.6% of all firefighter candidates, were available to be selected for the fire academy 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 99 Exhibit 5 City of Los Angeles Fire Department Fire Fighter Candidate Applications and Assessment Results Applications Received Male Female Total Number Percent Number Percent Number Percent Total NA NA NA NA 0 0 Candidates Taking Firefighter Candidate Assessment Male Female Total Number Percent Number Percent Number Percent Total 5,450 91.87% 482 8.13% 5,932 100.00% Firefighter Candidate Assessment Results Male Female Total Number Percent Number Percent Number Percent Passed 4,499 82.55% 370 76.76% 4,869 82.08% Failed 951 17.45% 112 23.24% 1,063 17.92% Male Female Percent of Passing Candidates 92.40% 7.60% Sources: City of Los Angeles Fire Department Recruitment Annual Report and Firefighter Candidate Assessment Passing Rates 2016 Note: Excludes firefighter applicants and candidates with unidentified gender. Long Beach Fire Department To become a Long Beach firefighter involves participating in an open-competitive selection process. In general, candidates are required to submit an application and engage in a testing process through the Long Beach Civil Service Department, followed by an in-depth selection process through the LBFD. The LBFD requires the successful completion of a physical ability test as part of the application and only accepts the Biddle Physical Ability Test (BPAT). Applicants who successfully pass the Civil Service testing process are placed in bands, which are groups of qualified applicants, and may then be contacted by the Fire Department for further consideration. Typically, the Fire Recruit open-competitive selection process opens every two to three years. Exhibit 6 shows, only about 5% percent of the applications received for firefighter candidate positions with the LBPD were female. A slightly higher percentage, (5.07%) of the candidates taking the written test, were female. 100 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Female firefighter candidates did do somewhat worse on the firefighter written test, with 43.65% of female candidates passing the test. This compares to 56.83% for male firefighter candidates. After the firefighter written test only 213 female candidates, or 3.94% of all firefighter candidates taking the written test, were available for selection to attend the fire drill school. (LBFD), Station 1. Station 1 is in the Civic Center. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 101 Exhibit 6 Long Beach Fire Department Fire Fighter Candidate Applications and Test Results Applications Received Male Female Total Number Percent Number Percent Number Percent Total 9,578 95.01% 503 4.99% 10,081 100.00% Candidates Taking Written Test Male Female Total Number Percent Number Percent Number Percent Total 9,134 94.93% 488 5.07% 9,622 100.00% Written Test Results Male Female Total Number Percent Number Percent Number Percent Passed 5,191 56.83% 213 43.65% 5,404 56.16% Failed 3,943 43.17% 275 56.35% 4,218 43.84% Male Female Percent of Passing Candidates 96.06% 3.94% Source: Long Beach Fire Department Fire Recruit Application and Written Test Results – 2013 to 2018 Note: Excludes firefighter applicants and candidates with unidentified gender.
F3:
The percentage of firefighter applicants and individuals taking firefighter exams and assessments that are female is very low. Female firefighter candidates taking written exams or assessments pass them at rates comparable or better than male firefighter applicants. Training Female Firefighter Recruits Candidates selected to become firefighter recruits must complete a substantial training program before becoming full firefighters. This includes successful completion of both a fire academy (or drill school) and the recruit probationary period. The fire academy is about five months of full time training. This training covers academic and manipulative tasks. Basic instruction teaches fire recruits the skills of use of personal protective equipment, handling ladders, hose lays, tools, equipment and emergency medical skills. The advanced training mirrors field activities in scope and intensity to challenge recruits using simulated fire ground conditions. The advanced training also requires a significant demonstration of the strength and stamina necessary to perform at a basic firefighter level in the field. After completion of the fire academy or drill school a fire recruit must continue to demonstrate the skills necessary to be a firefighter during the probationary period. The probationary period is for one full year, or 365 days. 102 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Los Angeles County Fire Department Exhibit 7 shows, only 17 or 2.3% of the firefighter recruits entering the LACFD Fire Academy were female. Of these, only 15, or 2.2%, of the Fire Academy graduates were female. The Fire Academy graduation rate for females was 88.2%, slightly lower than the graduation rate of 92.2% for males. Information on completion of the probationary period was not available from the LACFD. Exhibit 7 Los Angeles County Fire Department Fire Academy Entrees and Graduates Male Female Total Number Percent Number Percent Entered Academy 715 97.7% 17 2.3% 732 Graduated Academy 659 97.8% 15 2.2% 674 Percent Graduated 92.2% 88.2% Source: Los Angeles County Fire Department, Fire Fighter Trainee Breakdown by Gender, 2012 to Present City of Los Angeles Fire Department Exhibit 8 shows, only 21 or 6.52% of the firefighter recruits entering the LAFD Fire Academy were female. Of these, only 12 or 4.58%, of the Fire Academy graduates were female. The Fire Academy graduation rate for females was 57.14%, substantially lower than the graduation rate of 83.06% for males. Exhibit 8 also shows the information on completion of the probationary period by both female and male fire recruits. As this exhibit shows, all 12 or 100%, of the female recruits that completed the fire academy also successfully completed the probationary period. This is slightly higher than the percentage of male recruits successfully completing the probationary period at 98.4%. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 103 Exhibit 8 City of Los Angeles Fire Department Fire Academy Entrees and Graduates Male Female Total Number Percent Number Percent Entered Academy 301 93.48% 21 6.52% 322 Graduated Academy 250 95.42% 12 4.58% 262 Percent Graduated 83.06% 57.14% Fire Recruit Probationary Period Results Male Female Total Number Percent Number Percent Began Probation 250 95.42% 12 4.58% 262 Completed Probation 246 95.35% 12 4.65% 258 Percent Completing Probation 98.4% 100.0% Source: City of Los Angeles Fire Department, Recruit Training Academy Overview, August 2017, Includes six Academies between 2014 and 2017. Long Beach Fire Department Exhibit 9 shows, only 22 or 8.8% of the firefighter recruits entering the LBFD Drill School were female. Of these, only 10 or 5.24%, of the Fire Drill School graduates were female. The Fire Drill School graduation rate for females was 45.45%, substantially lower than the graduation rate of 79.39% for males. Exhibit 9 also shows the information on completion of the probationary period by both female and male fire recruits. As this exhibit shows, six or 3.87% of the firefighter recruits beginning probation were female. Of these, only four females successfully completed the probationary period. As a result, only 3.1% of firefighter recruits that completed the fire drill school and also successfully completed the probationary period were female. Approximately two-thirds (66.7%) of female firefighter recruits successfully completed the probationary period. This is much lower than the percentage of male firefighter recruits successfully completing the probationary period at 83.9%. 104 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 9 Long Beach Fire Department Fire Drill School Entrees and Graduates Male Female Total Number Percent Number Percent Entered Academy 228 91.20% 22 8.80% 250 Graduated Academy 181 94.76% 10 5.24% 191 Percent Graduated 79.39% 45.45% Fire Recruit Probationary Period Results Male Female Total Number Percent Number Percent Began Probation 149 96.13% 6 3.87% 155 Completed Probation 125 96.90% 4 3.10% 129 Percent Completing Probation 83.9% 66.7% Source: Long Beach Fire Department, Drill School Evaluation, Includes nine Academies between 2004 and 2017.
F4:
The percentage of female firefighters entering and completing the fire academies or drill schools at each of Los Angeles County’s three largest fire departments is very low. The percentage completing the probationary period is also very low. Accommodations for Female Firefighters Firefighters generally work long shifts (e.g. 24 hours) that require them to essentially live and sleep in the fire station during their shift. Most fire stations in use today were originally planned and built with a single-sex workforce in mind. Many of these buildings are now being used by a workforce that includes both women and men. Not surprisingly, the design of older stations can result in inadequacies that are a source of inconvenience, discomfort, embarrassment, and friction for all concerned.7 One reason there are so few female applicants for firefighter positions may be both the perception and reality that they will be required to live, sleep, and shower in fire stations that do not provide adequate accommodations for female firefighters. California State law requires employers to provide adequate bathroom facilities8 and separate shower rooms be provided for each sex where showering is required by the employer.9 In addition, most fire departments are working to ensure that firefighters have gender specific or individual toilet facilities, showers, clothes changing areas, personal storage lockers, and sleeping accommodations.10 7 Many Women Strong: A Handbook for Women Firefighters, Prepared by: Women in the Fire Service 8 California Code, Labor Code - LAB § 2350 9 California Administrative Code, Title 8 Section 3366(f} 10 Position Statement – Facilities, International Association of Women in Fire & Emergency Services, 2012 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 105
F5:
Foster Youth have a significant achievement gap when compared with other targeted student groups and the general student population. To evaluate the foster youth student achievement, we compared the chronic absenteeism rate, suspension rate, percentage prepared for college and career and graduation rate with the general student population and other targeted student groups. These comparisons are discussed in the following sections. Chronic Absenteeism Rate A "chronic absentee" has been defined in California Education Code (EC) Section 60901(c)(1) as "a pupil who is absent on 10 percent or more of the school days in the school year when the total number of days a pupil is absent is divided by the total number of days the pupil is enrolled and school was actually taught in the regular day schools of the district, exclusive of Saturdays and Sundays." The California Department of Education has focused on reducing the state’s chronic absenteeism rates, especially the rates for racial/ethnic groups and program populations (such as foster youth) which are significantly above the state average. The State Attendance Review Board (SARB), recommends how to identify and respond to patterns of chronic absenteeism or truancy. In its Model School Attendance Review Board Recognition Program, the SARB recognizes districts which implement a three-tiered approach to reducing chronic absenteeism rates for student populations which are above the district average: • First tier: Focus on preventing attendance problems by promoting a positive school climate. • Second tier: Ensure early interventions for minor attendance problems. • Third tier: Address intensive barriers to school attendance, such as mental health conditions. Data on chronic absenteeism is newly available, with this information being released by the California Department of Education in December 2017. According to the State Superintendent of Public Instruction “This data helps us determine which schools, districts, and student groups have the largest concentration of chronic absences, allowing educators and community members to focus attention and resources and take actions needed to keep those students in class and back on the path to academic success.” As shown in Exhibit 3, the chronic absenteeism rate for foster youth is much higher than for the general student population, or for other targeted student populations in each of the ten school districts reviewed. The average percentage of foster students that are chronically absent is twenty-six percent (26%) for the ten school districts. This compares to 11.9% for the general student population, 11.9% for English Learner students, and 12.9% for socio-economically disadvantaged students. The chronically absent rate for foster youth is more than twice that for the other groups. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 77 Exhibit 3 Comparison of Chronic Absenteeism Rates by School District and Student Populations Socio-Economic All Students English Learners Foster Youth Disadvantaged Chronic School District Chronic Absent Chronic Absent Chronic Absent Absent Total Total Total Total No. % No. % No. % No. % Antelope Valley 26,965 6,146 22.8% 3,076 786 25.6% 20,514 5,070 24.7% 918 364 39.7% Compton 25,408 4,493 17.7% 8,989 1,342 14.9% 22,442 3,981 17.7% 693 190 27.4% Downey 23,234 2,496 10.7% 3,729 437 11.7% 17,225 2,070 12.0% 271 50 18.5% Hacienda La Puente 19,800 1,572 7.9% 4,129 264 6.4% 14,832 1,322 8.9% 361 65 18.0% Inglewood 13,453 1,609 12.0% 3,821 401 10.5% 11,433 1,416 12.4% 230 43 18.7% Long Beach 80,163 8,951 11.2% 17,701 1,945 11.0% 56,713 7,396 13.0% 1,101 253 23.0% Los Angeles 661,653 77,312 11.7% 169,544 20,244 11.9% 533,307 67,087 12.6% 9,241 2,363 25.6% Paramount 16,254 1,357 8.3% 5,637 409 7.3% 15,625 1,326 8.5% 242 54 22.3% Pasadena 19,638 2,236 11.4% 3,666 508 13.9% 12,895 1,806 14.0% 583 204 35.0% Pomona 26,209 2,630 10.0% 8,132 741 9.1% 22,836 2,352 10.3% 545 97 17.8% Totals and Averages 912,777 108,802 11.9% 228,424 27,077 11.9% 727,822 93,826 12.9% 14,185 3,683 26.0% Source: 2016-17 Chronic Absenteeism Rate Report, California Department of Education Attendance Works (attendanceworks.org), a foundation with a mission to “advance student success and reduce equity gaps by reducing chronic absence” has developed a series of policies, tools, resources, and strategies for addressing chronic absenteeism that could be implemented by school districts to address the chronic absenteeism rates of foster youth students. Student Suspension Rates In schools, suspension is a mandatory leave assigned to a student as a form of punishment that can last anywhere from one day to several weeks, during which time the student is not allowed to attend regular school lessons. As with other forms of absence, students cannot be taught or learn when they are not at school, whether voluntarily or due to suspension. As shown in Exhibit 4, the suspension rate for foster youth is much higher than for the general student population, or for other targeted student populations in each of the ten school districts reviewed. The average percentage of foster students that were suspended is 6.5% for the ten school districts. This compares to 1.9% for the general student population, 1.2% for English Learner students, and 1.9% for socio-economically disadvantaged students. The suspension rate for foster youth is more than three times that for the other groups. 78 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 4 Comparison of Suspension Rates by School District and Student Populations Socio-Economic All Students English Learners Foster Youth Disadvantaged School District Suspended Suspended Suspended Suspended Total Total Total Total No. % No. % No. % No. % Antelope Valley 21,977 2,077 9.5% 2,379 228 9.6% 16,252 1,772 10.9% 693 175 25.3% Compton 23,547 996 4.2% 8,361 207 2.5% 20,486 889 4.3% 644 48 7.5% Downey 22,932 680 3.0% 3,660 105 2.9% 16,934 548 3.2% 254 21 8.3% Hacienda La Puente 19,706 625 3.2% 4,110 79 1.9% 14,710 552 3.8% 353 47 13.3% Inglewood 9,786 614 6.3% 3,268 121 3.7% 8,477 534 6.3% 184 17 9.2% Long Beach 79,268 2,724 3.4% 17,488 520 3.0% 55,805 2,276 4.1% 1,056 109 10.3% Los Angeles 494,709 2,585 0.5% 137,943 544 0.4% 414,232 2,328 0.6% 7,332 172 2.3% Paramount 15,934 548 3.4% 5,527 141 2.6% 15,325 526 3.4% 224 18 8.0% Pasadena 17,816 844 4.7% 3,493 156 4.5% 11,952 723 6.0% 455 92 20.2% Pomona 25,134 949 3.8% 7,818 261 3.3% 21,859 894 4.1% 481 58 12.1% Totals and Averages 730,809 12,642 1.7% 194,047 2,362 1.2% 596,032 11,042 1.9% 11,676 757 6.5% Source: Suspension Rate Indicator, California Department of Education Students Prepared for College or Career The College/Career Indicator (CCI) is based on the four-year graduation cohort and uses both college and career measures to evaluate how well districts and schools are preparing students for success after high school. Student preparedness can be evaluated using several measures or indicators of preparedness, including career technical education indicators, academic performance indicators, and exam scores. As shown in Exhibit 5, the percentage of foster youth prepared for college or career is much lower than for the general student population, or for other targeted student populations in each of the ten school districts reviewed. The average percentage of foster youth students that were determined to be prepared for college or career was 17.2% for the ten school districts. This compares to 38.6% for the general student population, 16% for English Learner students, and 36.4% for socio-economically disadvantaged students. The percentage of foster youth prepared for college or career is less than half that for the other groups. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 79 Exhibit 5 Comparison of College and Career Preparedness by School District and Student Populations All Students English Learners Socio-Economic Disadvantaged Foster Youth School District Prepared Prepared Prepared Prepared Total Total Total Total No. % No. % No. % No. % Antelope Valley 4,399 1,366 31.1% 546 44 8.1% 3,480 967 27.8% 111 11 9.9% Compton 1,060 231 21.8% 476 68 14.3% 1,028 227 22.1% 21 1 4.8% Downey 1,818 747 41.1% 244 24 9.8% 1,444 326 22.6% 16 1 6.3% Hacienda La Puente 1,544 717 46.4% 372 105 28.2% 1,257 426 33.9% 29 5 17.2% Inglewood 657 50 7.6% 188 8 4.3% 611 87 14.2% 10 * Long Beach 5,487 2,285 41.6% 1,090 179 16.4% 4,011 1,394 34.8% 53 7 13.2% Los Angeles 28,404 11,511 40.5% 6,005 999 16.6% 26,323 10,616 40.3% 399 82 20.6% Paramount 1,124 436 38.8% 294 52 17.7% 1,110 433 39.0% 21 7 33.3% Pasadena 1,141 407 35.7% 203 21 10.3% 927 283 30.5% 23 4 17.4% Pomona 1,580 484 30.6% 573 98 17.1% 1,375 387 28.1% 21 3 14.3% Totals and Averages 47,214 18,234 38.6% 9,991 1,598 16.0% 41,566 15,146 36.4% 704 121 17.2% Source: College and Career Preparedness Indicator, California Department of Education Graduation Rates A student graduates from high school when they successfully meet their school district’s graduation requirements. The state sets minimum requirements. Local school districts have the authority and responsibility for establishing any requirements for awarding a California high school diploma from their secondary schools. These must include the set of 13 minimum courses/130 credits required under California Education Code. Most school districts in California require between 22 and 26 one-year courses (or the equivalent) for graduation. A graduation cohort is a group of high school students who could potentially graduate with a regular high school diploma within four years of entering grade nine. Exhibit 6 shows the number in the cohort of students who started high school in 2012–13 for each of the ten school districts reviewed. It also shows the number and percentage of cohort students who graduated by both total students and each targeted student population. As shown in Exhibit 6, the percentage of foster youth graduating is much lower than for the general student population, or for other targeted student populations in each of the ten school districts reviewed. The average percentage of foster students that graduated was 64.5% for the ten school districts. This compares to 86.6% for the general student population, 71.7% for English Learner students, and 86.6% for socio-economically disadvantaged students. The percentage of foster youth is substantially below the graduation rate for the other groups. 80 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 6 Comparison of Graduation Rates by School District and Student Populations All Students English Learners Socio-Economic Disadvantaged Foster Youth School District Graduated Graduated Graduated Graduated Total Total Total Total No. % No. % No. % No. % Antelope Valley 4,472 3,944 88.2% 564 425 75.4% 3,543 3,064 86.5% 113 83 73.5% Compton 1,071 922 86.1% 484 402 83.1% 1,039 899 86.5% 21 14 66.7% Downey 1,843 1,785 96.9% 258 233 90.3% 1,464 1,416 96.7% 17 15 88.2% Hacienda La Puente 1,556 1,476 94.9% 377 341 90.5% 1,268 1,197 94.4% 30 24 80.0% Inglewood 666 570 85.6% 192 149 77.6% 619 539 87.1% 10 NA NA Long Beach 5,547 4,987 89.9% 1,116 910 81.5% 4,060 3,600 88.7% 56 37 66.1% Los Angeles 28,782 24,244 84.2% 6,216 4,008 64.5% 26,647 22,675 85.1% 413 251 60.8% Paramount 1,134 1,040 91.7% 298 260 87.2% 1,119 1,031 92.1% 21 18 85.7% Pasadena 1,149 997 86.8% 204 152 74.5% 933 799 85.6% 24 10 41.7% Pomona 1,601 1,432 89.4% 585 503 86.0% 1,394 1,242 89.1% 21 16 76.2% Totals and Averages 47,821 41,397 86.6% 10,294 7,383 71.7% 42,086 36,462 86.6% 726 468 64.5% Source: Graduation Rate Indicator, California Department of Education G. Foster Youth Graduation Rate Trends The rate at which students graduate from high school is the most meaningful and common measure of school success for school districts. Programs and strategies are developed and implemented to improve the success of students in completing the requirements and graduating from high school.
F6:
The reported graduation rate for foster youth students at some school districts shows some short-term positive trends. As Exhibit 7 shows, some of the ten school districts have reported increased graduation rates for the 2015-16 school year compared to the 2014-15 school year. For example, Antelope Valley shows an increase of just over sixteen percent (16%), Compton an increase of just over fourteen percent (14%), Paramount an increase of about seventeen percent (17%), and Pomona an increase of just over fourteen percent (14%). While these reported gains appear very positive, the timeline for this trend is only two years, and the data underlying these reported gains is questionable, as discussed in the next section of this report. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 81 Exhibit 7 Short-Term Trends in Foster Youth Graduation Rates by School District 100.0% 88.2% 90.0% 85.7% 80.0%80.0% 80.0% 76.2% 73.5% 68.8% 70.0% 66.7% 66.1% 61.9% 60.8% 61.9% 60.0% 55.9% 55.8% 52.2% 50.0% 41.7%41.7% 40.0% 30.0% 20.0% 10.0% 0 0 0 0.0% 2014-15 2015-16 Source: Fall 2017 Graduation Indicator reports obtained from California Department of Education. 82 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 8 shows the reported graduation rate for each of the ten school districts reviewed. No data was available for the 2013-14 or 2016-17 school year. Exhibit 8 Foster Youth Graduation Rates FY 2013-14 thru FY 2017-18 School Year Students Graduates Graduation Rate Antelope Valley Union High School District 2014-15 102 57 55.9% 2015-16 113 83 73.5% Compton Unified School District 2014-15 23 12 52.2% 2015-16 21 14 66.7% Downey Unified School District 2014-15 10 * * 2015-16 17 15 88.2% Hacienda La Puente Unified School District 2014-15 20 16 80.0% 2015-16 30 24 80.0% Inglewood Unified School District 2014-15 9 * * 2015-16 10 * * Long Beach Unified School District 2014-15 63 39 61.9% 2015-16 56 37 66.1% Los Angeles Unified School District 2014-15 301 168 55.8% 2015-16 413 251 60.8% Paramount Unified School District 2014-15 16 11 68.8% 2015-16 21 18 85.7% Pasadena Unified School District 2014-15 24 10 41.7% 2015-16 24 10 41.7% Pomona Unified School District 2014-15 21 13 61.9% 2015-16 21 16 76.2% Source: Fall 2017 Graduation Indicator reports obtained from California Department of Education. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 83 F. Foster Youth Data Quality and Reliability Valid and reliable data is essential in order to evaluate the relative needs of foster youth, and to effectively assess whether programs and strategies implemented to meet those needs are having an impact.
F7:
The quality and reliability of data and information reported by school districts to track and monitor foster youth enrollments, as well as success in meeting the needs of foster youth is inconsistent and of questionable quality. There are at least five local and state databases of foster student education data. The reliability of the data in any one of the databases is questionable, based on the following limitations:3 • The California Department of Education Student and School Data files report the largest number of foster students in each school district, which suggests an aggregate student reporting methodology throughout the school year. • California Longitudinal Pupil Achievement Data System (CalPADS) captures a moment-in time census. For 2017, the snapshot was taken on October 4, 2017. While CalPADS encourages additional data submissions throughout the school year, it isn’t mandatory. As of mid-December, only fifty percent (50%) of school districts had updated their CalPADS information. • The California School Dashboard, intended to report school district performance and success measures, is based upon the latest state data available. The Dashboard will be updated each fall with the most recent available data, including enrollment numbers and demographic information. • The DCFS Student Information Tracking System (SITS), developed in 2011, started first with LAUSD and then progressively added more school districts. SITS was LA County’s first automated foster student academic data sharing system. To date, SITS includes data on only fifty percent (50%) of LA County’s school districts. • LACOE’s Education Passport System (EPS) is Los Angeles County’s second generation academic data sharing system between LACOE, DCFS and 76 of our 80 school districts. LACOE developed EPS in collaboration with DCFS. While SITS is in the process of transitioning to EPS, right now, both systems are limited to data on children and youth under open court cases4 only. Overview provided by the Bureau of Clinical Services and Resources, LA Department of Children and Family Services 4 “Open court case” means a court has taken jurisdiction over a child and declared the child to be a dependent or ward of the court (California Education Code Section 42238.01(b)) 84 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 9 shows the number of foster youth enrolled in each school district as reported by the various data sources listed above. As this exhibit shows, there is substantial variance in the number of reported foster youth students enrolled. Exhibit 9 Foster Youth Reported Total Enrollment by Data Source DCFS Student LACOE California California Information Education School District Department of CalPads School Tracking Passport Education Dashboard System System Antelope Valley 1107 366 430 330 420 Compton 827 332 358 610 471 Downey 336 125 156 NA NA Hacienda La Puente 425 174 207 428 216 Inglewood 284 90 91 168 135 Long Beach 1498 387 534 611 457 Los Angeles 11,586 3,346 4,303 5,641 12,214 Paramount 291 126 124 NA NA Pasadena 686 274 274 612 637 Pomona 676 234 262 180 413 Source: Bureau of Clinical Services and Resources, LA Department of Children and Family Services The number of foster youth enrolled in a school district is the key basic data element required in order to develop and focus educational efforts targeted at the needs of foster youth. It is also the basic data element required to effectively monitor and report on progress in improving services and outcomes for foster youth. Los Angeles County is moving towards coordinating educational services, sharing information, responding to the needs of the juvenile court system and automating the transfer of education records, at no cost to participating school districts, through LACOE’s Educational Passport System. A Memorandum of Understanding with 81 entities has been signed (76 school districts and 5 charter schools). Over 1,000 users from 59 school districts are sharing data. This initiative should provide a common and consistent data repository for all school district information on foster youth. It will also provide a consistent base for monitoring, tracking, and reporting on foster youth and performance in meeting their specific needs. Overview provided by the Bureau of Clinical Services and Resources, LA Department of Children and Family Services 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 85
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Findings & Recommendations
7 findings
F1:
There are many in the community who possess only a casual attitude toward responsible pet ownership. The results have led to greater euthanasia and increased risks to public health due to various animal diseases including rabies, typhus, scabies, distemper, hookworm, toxo, histoplasmosis, crypto and others. 12 http://publichealth.lacounty.gov/vet/AboutUs/htm 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 127 Adoption Best Friends, a non-profit organization, operates a pet adoption and spay and neuter clinic in their shelter located in Mission Hills. They draw companion animals from City shelters and have saved Los Angeles City Department of Animal Services $1,000,000 a year.
F2:
Adoption and fostering by a non-profit coalition has increased for the feline and canine population, which has helped to reduce their euthanasia rate. Population Control, Not Animal Cruelty ASPCA Spay/Neuter Clinic at City’s Veterinary Clinic at the County’s Carson Chesterfield Square Animal Shelter Animal Shelter The addition of low cost veterinary and spay and neuter clinics, in conjunction with shelters, have helped support the public and control the animal population. 128 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT National figures indicate pet overpopulation is an overwhelming problem throughout America and the only way to solve it is by tackling it proactively through effective and expansive programs of spaying and neutering. Failing this forces a grim solution to this problem by the killing of the 2.4 million adoptable cats and dogs every year; an animal every 13 seconds.13 According to the American Society for the Prevention of Cruelty to Animals (ASPCA), the numbers are even higher at 2.7 million and these animals are being euthanized because, in many cases, there are few alternatives to help address the sheer numbers being brought into shelters or the length of time animals are being held. Since the government facilities are considered “open admission” shelters, as opposed to many rescue and “boutique” shelters that can “pick and choose” their intake, they are required to take in all animals crossing their doorstep. Concentrating on the euthanasia statistics per se may be depressing; a more appropriate focus should be on the adoption and live release rates which would include those animals adopted, fostered and Returned to Owner (RTO).
F3:
The key to reducing the euthanasia rate and protecting public health is responsible pet ownership. This includes licensing, immunization, micro chipping, spaying and neutering. From Shelter to Pet Store A new code in California states, “pet store operators shall obtain dogs, cats, and rabbits from a public or private shelter or approved organization.”14 Beginning January 2019, pet stores must offer only shelter animals for sale and adoption. Since the City and County require that immunization, spay and neutering, and micro-chipping be done for any animals over 4 months old that leave their shelters, this should help to reduce many problems related to compliance with these requirements. It is assumed that compliance to this law, sourcing animals from shelters for sale from pet stores will likely be done by non-profits “buying” animals from the shelters at a reduced rate and selling them to pet stores. There is hope that the law, as implemented, would not treat these animals as being fostered by the pet stores, in that they would not be able to be returned if they are not sold, 15 although there is a concern that as more adoptable pets are removed from shelters, the remaining animals will be less likely to be adopted.
F4:
Further policy and implementation of Health & Safety Code 122354.5 procedures need to be addressed and initiated by both City and County to prevent problems with this expected benefit. Benefits of Ongoing Public Education Expenditures on education and promotions can result in better public and pet owner awareness. When agencies are effective in educating the public and there is an increase in immunizations, spaying and neutering, micro chipping and licensing of animals, shelter populations should decrease16 because of the reduced numbers of unwanted pets surrendered at animal care centers. When shelter space improves, due to increased licensing, spay and neutering, and microchipping, there will be fewer animals available in the shelters. Any concern that there will be decreased 13 Humane Society of the United States, www.humanesociety.org 14 California Health and Safety Code 122354.5 15 Meeting with a senior official at LA Animal Services 16 Supra.see note 3, 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 129 funding is only temporary. As everyone in animal control wishes to clear the shelters, with less animal intake and sheltering, these fluctuations will enable more opportunity for outreach to the public. Shelter activities will change as the shelter pet population changes so there should not be a direct relationship between numbers and funding. Animal Services personnel will be able to address projects and goals which are currently limited as a result of routine responsibilities. This can include involvement in schools along with other outreach programs to protect both the public and animal population.
F5:
Only about one-third (39%) of Los Angeles County Fire Department fire stations are compliant with building code requirements that provide adequate accommodations for both female and male firefighters. All City of Los Angeles and Long Beach Fire Department fire stations are compliant and provide accommodations for both female and male firefighters. The following sections outline the information provided by each of the three fire departments. Los Angeles County Fire Department The following are the actions outlined by the LACFD their efforts to improve the recruitment and success of female firefighters within the Department. Recent Efforts in the Fire Series • Creation, Community Outreach, Recruitment, Diversity and Inclusion (CORDI) Section to prioritize recruiting and hiring practices throughout the department. • Conducting the 3rd Annual Women’s Fire Prep Academy which almost doubles the number of women this year (2018). • Conducting New Firefighter Trainee Exam in Late Summer 2018. • Reviewing and reassessing the Exam process to increase access and remove obstacles. • Inaugural LACFD Arise Summit, focused on partnering with other fire agencies in the region to gather feedback, identify focused areas of needed improvement and work throughout the year to develop strategic solutions that will support the needs of women in the fire service. Thoughts Moving Forward • The goal of the LACFD is to strive to grow a workforce that represents the communities the LACFD serves. • The LACFD made a substantial financial and staffing investment to ensure it is successful and takes advantage of every opportunity it has to improve our ability to reach underrepresented groups. • The LACFD is wholeheartedly committed to this mission throughout the entire Department. The LACFD has created a structure that will develop pathways with various groups including LGBTQ, women, military, foster youth, socioeconomic challenged communities, ethnicity and geographic diversity. • Through CORDI, the LACFD will work hand in hand with stakeholders, board offices, cities, schools, colleges, county departments, community and faith based groups to assess and identify key target methods for recruiting specific to their areas. Strategic Approach and Implementation • Over the last year, the LACFD worked together with our members and subject matter experts (SME’s) to assess the needs and areas of improvement in relation to our hiring practices, recruiting and community outreach efforts; and identified key areas of improvement and growth to focus on in 2018. • As part of the process, the LACFD is collecting and analyzing data of all recruiting and exam activities to see where their gaps are and what is successful. 114 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT • The LACFD is creating an entirely new recruiting website which will be an informational resource for all employment opportunities within the department. • In regard to recruiting women for the Lifeguard and Fire Divisions, the LACFD is implementing a two-fold approach of ensuring our process and procedures and facilities are updated and able to accommodate our current and future members (i.e., privacy and access, maternity policy). • As this is a multi-faceted issue, and not just about increasing our recruiting numbers to take the exam, the department is addressing both internal and external opportunities to increase our diversity and truly represent the communities we serve. • In addition to what the LACFD has accomplished so far, the department realizes there is much more work to do and has a great team in place to accomplish these goals. City of Los Angeles Fire Department In 2016 the LAFD developed a “Gender Equity Action Plan” as required by Executive Order No. 11 issued by Mayor Garcetti. This plan states: The ultimate goal of the Gender Equity Action Plan is to create a diverse workforce that is more reflective of the citizens we serve, embrace diversity and recognize individual worth within the team environment and create greater job satisfaction and retention of female firefighters while continuing to encourage and support diversity within the leadership ranks. The Department, with the support of the Mayor's Office and Executive Directive No. 11, will continue to strive towards creating greater gender parity. Some of the key strategies outlined in the Gender Equity Action Plan as well as the Department’s Recruitment Plan for 2015-16 include: Recruitment and Mentoring of Females • In the short term, each Captain, Firefighter, and Battalion Chief assigned to the Firefighter Recruitment Section (FRS) will be focused on developing programs, scheduling events, and hosting orientation sessions that welcome and encourage, in every way, female applicants. • A Captain II position has been requested in the 2016/2017 budget process as a Women’s Recruitment Officer. Some areas the Women's Recruitment Officer will be responsible for are: o Recruitment and marketing campaign development o Analyzing, tracking, and assessing female applicant progress o Developing a Girls Camp o Liaison with stakeholder groups (Mayor, Council, Board of Fire Commissioners, Empower LA, Los Angeles Women in the Fire Service, etc.) o Oversee the Applicant Orientation Program at Drill Tower 21 Youth Programs • The FRS is also dedicated to offering a variety of youth programs to increase the number of girls and boys motivated to become LAFD firefighters. As an update to the prior plan, all youth programs have been or are undergoing re-design with standardized curriculum development. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 115 • Increased efforts have been made to get more girls involved in the various youth programs. The Department now has the tools to collect the data necessary to track the involvement by ethnicity and gender. • There have also been 3 Girls Camps (ages 14-18 years old) with a total of 194 female participants. The Department is committed to continuously providing 2 girls camps per fiscal year at various locations rotating throughout each Geographic Bureau. • Although the youth programs will not create immediate results in increasing the number of female firefighters on the job, the long-term goal is to create a group of diverse, enthusiastic, and knowledgeable candidates for the FRS to follow and mentor throughout the hiring process, training academy, and probationary period. Work Environment • The Department has taken many steps to ensure that the work environment is free from discrimination and/or harassment, including Equal Employment Opportunity (EEO) training. This training includes: o Mandatory reading of the Discrimination Prevention Policy Handbook (DPPH) by all members o Mandatory completion of the "EEO Challenge" training course by all members o Mandatory completion of "EEO for Supervisors”, a required course for all supervisors to be completed every two years o Required enforcement of the City's zero tolerance policies, as defined in the DPPH o Maintenance of a Complaint Tracking System in which members can submit complaints either from their workplace or from home. • A women's strategic planning workgroup was also formed to develop goals aimed at improving the work environment for women. Long Beach Fire Department The following are the actions outlined by the Long Beach Fire Department as their efforts to improve the recruitment and success of female firefighters within the Department. • The LBFD works cooperatively with the City’s Civil Service Department with the objective of recruiting a qualified and diverse candidate pool. When additional funding has been available, the LBFD has assembled a diverse team of firefighters to actively recruit members of underrepresented groups. Female firefighters are included in this group. • Additionally, the LBFD has implemented opportunities for all candidates to better prepare for success in the testing process and the academy. These include offering advance practice sessions to better prepare all candidates for the physical agility test. Additionally, in advance of the academy, Fire Training staff offers an orientation at which candidates are given an overview of the Training Center, information on physical training requirements, and familiarity with tools of the trade. Also, during a firefighter’s probationary period, the Department encourages mentorship relationships in which the probationary firefighter can learn from, and ask questions of, more experienced firefighters. 116 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT • Looking forward, the LBFD continues to work with local schools to implement fire service programs. This includes working with the Long Beach Unified School District to incorporate the fire service into the District’s Regional Occupational Program (ROP) curriculum, and ongoing discussions with Long Beach City College to implement a fire service program. These programs will prepare interested female and male students from all backgrounds for careers in the fire service and educate them, at an early age, with regard to the requirements and demands of being a firefighter.
F6:
Each of Los Angeles County’s three largest fire departments have developed and implemented strategies to improve the recruitment and success of female firefighters within their departments. Fire Science Programs A number of colleges in Los Angeles County have programs and instruction in Fire Science that helps to prepare students for careers as firefighters. As part of this investigation the CGJ requested information from these colleges, including the number of female and male students enrolled in these programs.
F7:
The percentage of female students enrolled in Fire Science programs at Los Angeles County colleges that offer such programs is very low. Exhibit 10 shows, of the 4,575 total students enrolled in Fire Science programs at Los Angeles County colleges that provided information, only 205, or 4% are females. The remaining 4,370 students in these programs are male. Exhibit 10 Colleges with Fire Science Programs in Los Angeles County Student Enrollment by Gender Students Enrolled College Male Percent Female Percent Total Cal State Los Angeles 140 93% 10 7% 150 College of the Canyons 278 93% 20 7% 298 East L.A. College 3,092 97% 96 3% 3,188 El Camino College 450 90% 51 10% 501 Mt. San Antonio 410 94% 28 6% 438 Totals / Averages 4,370 96% 205 4% 4,575 Source: Responses to Civil Grand Jury request for information on fire science programs and student enrollment. 2017-2018 This information confirms that the most significant challenge to increasing the percentage of firefighters that are female is changing the perception that the profession is limited to males. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 117 REPRESENTATION BY ENTERTAINMENT INDUSTRY During the 2017-2018 television season, citizens are able to view a new television program, “Station 19”, on the ABC network. This program is not reality; however, it does show women in responsible, leadership roles as a Captain and a Battalion Chief. It should be noted that, certain aspects are not appropriate in real life fire stations: the promotion of the female firefighter to the position of “Captain” by her father, being directly supervised by his or her parent, or that a firefighter would be dating a superior in the fire station where they are both supervised by her father is not likely to occur. These are just a few examples of “artistic license”, however, showing a positive representation of female firefighters should be helpful in changing the perception of women in the fire service.
Additional Recommendations
7
Not linked to specific findings.
R1:
Requiring private veterinarians to comply with the law by reporting their rabies vaccinations to the appropriate jurisdictional Director and tie that into canvassing for licensing.
R2:
Fully utilizing the Chameleon (animal management software) modules available in the present computer system to optimize revenue collections for both City and County.
R3:
Making sure the contract cities are paying their fair share into the county for services rendered.
R4:
Resolving delays to the TNR injunction and the resulting increase of euthanasia rates for stray cats.
R5:
Examining structural and operational changes to increase adoptability in shelters.
R6:
Increasing the utilization of non-profit coalitions to provide additional services.
R7:
Improving the onerous phone tree system so the public can make appointments for low cost spay and neuter service, e.g. 1-888-SPAY4LA. Non-profit partners, seek out adoptable animals to foster or relocate to their volunteers and community. Some areas have greater success in adoption than others. These are residents of the County’s Carson Shelter. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 123
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Findings & Recommendations
7 findings
F1:
There are many in the community who possess only a casual attitude toward responsible pet ownership. The results have led to greater euthanasia and increased risks to public health due to various animal diseases including rabies, typhus, scabies, distemper, hookworm, toxo, histoplasmosis, crypto and others. 12 http://publichealth.lacounty.gov/vet/AboutUs/htm 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 127 Adoption Best Friends, a non-profit organization, operates a pet adoption and spay and neuter clinic in their shelter located in Mission Hills. They draw companion animals from City shelters and have saved Los Angeles City Department of Animal Services $1,000,000 a year.
F2:
Adoption and fostering by a non-profit coalition has increased for the feline and canine population, which has helped to reduce their euthanasia rate. Population Control, Not Animal Cruelty ASPCA Spay/Neuter Clinic at City’s Veterinary Clinic at the County’s Carson Chesterfield Square Animal Shelter Animal Shelter The addition of low cost veterinary and spay and neuter clinics, in conjunction with shelters, have helped support the public and control the animal population. 128 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT National figures indicate pet overpopulation is an overwhelming problem throughout America and the only way to solve it is by tackling it proactively through effective and expansive programs of spaying and neutering. Failing this forces a grim solution to this problem by the killing of the 2.4 million adoptable cats and dogs every year; an animal every 13 seconds.13 According to the American Society for the Prevention of Cruelty to Animals (ASPCA), the numbers are even higher at 2.7 million and these animals are being euthanized because, in many cases, there are few alternatives to help address the sheer numbers being brought into shelters or the length of time animals are being held. Since the government facilities are considered “open admission” shelters, as opposed to many rescue and “boutique” shelters that can “pick and choose” their intake, they are required to take in all animals crossing their doorstep. Concentrating on the euthanasia statistics per se may be depressing; a more appropriate focus should be on the adoption and live release rates which would include those animals adopted, fostered and Returned to Owner (RTO).
F3:
The key to reducing the euthanasia rate and protecting public health is responsible pet ownership. This includes licensing, immunization, micro chipping, spaying and neutering. From Shelter to Pet Store A new code in California states, “pet store operators shall obtain dogs, cats, and rabbits from a public or private shelter or approved organization.”14 Beginning January 2019, pet stores must offer only shelter animals for sale and adoption. Since the City and County require that immunization, spay and neutering, and micro-chipping be done for any animals over 4 months old that leave their shelters, this should help to reduce many problems related to compliance with these requirements. It is assumed that compliance to this law, sourcing animals from shelters for sale from pet stores will likely be done by non-profits “buying” animals from the shelters at a reduced rate and selling them to pet stores. There is hope that the law, as implemented, would not treat these animals as being fostered by the pet stores, in that they would not be able to be returned if they are not sold, 15 although there is a concern that as more adoptable pets are removed from shelters, the remaining animals will be less likely to be adopted.
F4:
Further policy and implementation of Health & Safety Code 122354.5 procedures need to be addressed and initiated by both City and County to prevent problems with this expected benefit. Benefits of Ongoing Public Education Expenditures on education and promotions can result in better public and pet owner awareness. When agencies are effective in educating the public and there is an increase in immunizations, spaying and neutering, micro chipping and licensing of animals, shelter populations should decrease16 because of the reduced numbers of unwanted pets surrendered at animal care centers. When shelter space improves, due to increased licensing, spay and neutering, and microchipping, there will be fewer animals available in the shelters. Any concern that there will be decreased 13 Humane Society of the United States, www.humanesociety.org 14 California Health and Safety Code 122354.5 15 Meeting with a senior official at LA Animal Services 16 Supra.see note 3, 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 129 funding is only temporary. As everyone in animal control wishes to clear the shelters, with less animal intake and sheltering, these fluctuations will enable more opportunity for outreach to the public. Shelter activities will change as the shelter pet population changes so there should not be a direct relationship between numbers and funding. Animal Services personnel will be able to address projects and goals which are currently limited as a result of routine responsibilities. This can include involvement in schools along with other outreach programs to protect both the public and animal population.
F5:
Only about one-third (39%) of Los Angeles County Fire Department fire stations are compliant with building code requirements that provide adequate accommodations for both female and male firefighters. All City of Los Angeles and Long Beach Fire Department fire stations are compliant and provide accommodations for both female and male firefighters. The following sections outline the information provided by each of the three fire departments. Los Angeles County Fire Department The following are the actions outlined by the LACFD their efforts to improve the recruitment and success of female firefighters within the Department. Recent Efforts in the Fire Series • Creation, Community Outreach, Recruitment, Diversity and Inclusion (CORDI) Section to prioritize recruiting and hiring practices throughout the department. • Conducting the 3rd Annual Women’s Fire Prep Academy which almost doubles the number of women this year (2018). • Conducting New Firefighter Trainee Exam in Late Summer 2018. • Reviewing and reassessing the Exam process to increase access and remove obstacles. • Inaugural LACFD Arise Summit, focused on partnering with other fire agencies in the region to gather feedback, identify focused areas of needed improvement and work throughout the year to develop strategic solutions that will support the needs of women in the fire service. Thoughts Moving Forward • The goal of the LACFD is to strive to grow a workforce that represents the communities the LACFD serves. • The LACFD made a substantial financial and staffing investment to ensure it is successful and takes advantage of every opportunity it has to improve our ability to reach underrepresented groups. • The LACFD is wholeheartedly committed to this mission throughout the entire Department. The LACFD has created a structure that will develop pathways with various groups including LGBTQ, women, military, foster youth, socioeconomic challenged communities, ethnicity and geographic diversity. • Through CORDI, the LACFD will work hand in hand with stakeholders, board offices, cities, schools, colleges, county departments, community and faith based groups to assess and identify key target methods for recruiting specific to their areas. Strategic Approach and Implementation • Over the last year, the LACFD worked together with our members and subject matter experts (SME’s) to assess the needs and areas of improvement in relation to our hiring practices, recruiting and community outreach efforts; and identified key areas of improvement and growth to focus on in 2018. • As part of the process, the LACFD is collecting and analyzing data of all recruiting and exam activities to see where their gaps are and what is successful. 114 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT • The LACFD is creating an entirely new recruiting website which will be an informational resource for all employment opportunities within the department. • In regard to recruiting women for the Lifeguard and Fire Divisions, the LACFD is implementing a two-fold approach of ensuring our process and procedures and facilities are updated and able to accommodate our current and future members (i.e., privacy and access, maternity policy). • As this is a multi-faceted issue, and not just about increasing our recruiting numbers to take the exam, the department is addressing both internal and external opportunities to increase our diversity and truly represent the communities we serve. • In addition to what the LACFD has accomplished so far, the department realizes there is much more work to do and has a great team in place to accomplish these goals. City of Los Angeles Fire Department In 2016 the LAFD developed a “Gender Equity Action Plan” as required by Executive Order No. 11 issued by Mayor Garcetti. This plan states: The ultimate goal of the Gender Equity Action Plan is to create a diverse workforce that is more reflective of the citizens we serve, embrace diversity and recognize individual worth within the team environment and create greater job satisfaction and retention of female firefighters while continuing to encourage and support diversity within the leadership ranks. The Department, with the support of the Mayor's Office and Executive Directive No. 11, will continue to strive towards creating greater gender parity. Some of the key strategies outlined in the Gender Equity Action Plan as well as the Department’s Recruitment Plan for 2015-16 include: Recruitment and Mentoring of Females • In the short term, each Captain, Firefighter, and Battalion Chief assigned to the Firefighter Recruitment Section (FRS) will be focused on developing programs, scheduling events, and hosting orientation sessions that welcome and encourage, in every way, female applicants. • A Captain II position has been requested in the 2016/2017 budget process as a Women’s Recruitment Officer. Some areas the Women's Recruitment Officer will be responsible for are: o Recruitment and marketing campaign development o Analyzing, tracking, and assessing female applicant progress o Developing a Girls Camp o Liaison with stakeholder groups (Mayor, Council, Board of Fire Commissioners, Empower LA, Los Angeles Women in the Fire Service, etc.) o Oversee the Applicant Orientation Program at Drill Tower 21 Youth Programs • The FRS is also dedicated to offering a variety of youth programs to increase the number of girls and boys motivated to become LAFD firefighters. As an update to the prior plan, all youth programs have been or are undergoing re-design with standardized curriculum development. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 115 • Increased efforts have been made to get more girls involved in the various youth programs. The Department now has the tools to collect the data necessary to track the involvement by ethnicity and gender. • There have also been 3 Girls Camps (ages 14-18 years old) with a total of 194 female participants. The Department is committed to continuously providing 2 girls camps per fiscal year at various locations rotating throughout each Geographic Bureau. • Although the youth programs will not create immediate results in increasing the number of female firefighters on the job, the long-term goal is to create a group of diverse, enthusiastic, and knowledgeable candidates for the FRS to follow and mentor throughout the hiring process, training academy, and probationary period. Work Environment • The Department has taken many steps to ensure that the work environment is free from discrimination and/or harassment, including Equal Employment Opportunity (EEO) training. This training includes: o Mandatory reading of the Discrimination Prevention Policy Handbook (DPPH) by all members o Mandatory completion of the "EEO Challenge" training course by all members o Mandatory completion of "EEO for Supervisors”, a required course for all supervisors to be completed every two years o Required enforcement of the City's zero tolerance policies, as defined in the DPPH o Maintenance of a Complaint Tracking System in which members can submit complaints either from their workplace or from home. • A women's strategic planning workgroup was also formed to develop goals aimed at improving the work environment for women. Long Beach Fire Department The following are the actions outlined by the Long Beach Fire Department as their efforts to improve the recruitment and success of female firefighters within the Department. • The LBFD works cooperatively with the City’s Civil Service Department with the objective of recruiting a qualified and diverse candidate pool. When additional funding has been available, the LBFD has assembled a diverse team of firefighters to actively recruit members of underrepresented groups. Female firefighters are included in this group. • Additionally, the LBFD has implemented opportunities for all candidates to better prepare for success in the testing process and the academy. These include offering advance practice sessions to better prepare all candidates for the physical agility test. Additionally, in advance of the academy, Fire Training staff offers an orientation at which candidates are given an overview of the Training Center, information on physical training requirements, and familiarity with tools of the trade. Also, during a firefighter’s probationary period, the Department encourages mentorship relationships in which the probationary firefighter can learn from, and ask questions of, more experienced firefighters. 116 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT • Looking forward, the LBFD continues to work with local schools to implement fire service programs. This includes working with the Long Beach Unified School District to incorporate the fire service into the District’s Regional Occupational Program (ROP) curriculum, and ongoing discussions with Long Beach City College to implement a fire service program. These programs will prepare interested female and male students from all backgrounds for careers in the fire service and educate them, at an early age, with regard to the requirements and demands of being a firefighter.
F6:
Each of Los Angeles County’s three largest fire departments have developed and implemented strategies to improve the recruitment and success of female firefighters within their departments. Fire Science Programs A number of colleges in Los Angeles County have programs and instruction in Fire Science that helps to prepare students for careers as firefighters. As part of this investigation the CGJ requested information from these colleges, including the number of female and male students enrolled in these programs.
F7:
The percentage of female students enrolled in Fire Science programs at Los Angeles County colleges that offer such programs is very low. Exhibit 10 shows, of the 4,575 total students enrolled in Fire Science programs at Los Angeles County colleges that provided information, only 205, or 4% are females. The remaining 4,370 students in these programs are male. Exhibit 10 Colleges with Fire Science Programs in Los Angeles County Student Enrollment by Gender Students Enrolled College Male Percent Female Percent Total Cal State Los Angeles 140 93% 10 7% 150 College of the Canyons 278 93% 20 7% 298 East L.A. College 3,092 97% 96 3% 3,188 El Camino College 450 90% 51 10% 501 Mt. San Antonio 410 94% 28 6% 438 Totals / Averages 4,370 96% 205 4% 4,575 Source: Responses to Civil Grand Jury request for information on fire science programs and student enrollment. 2017-2018 This information confirms that the most significant challenge to increasing the percentage of firefighters that are female is changing the perception that the profession is limited to males. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 117 REPRESENTATION BY ENTERTAINMENT INDUSTRY During the 2017-2018 television season, citizens are able to view a new television program, “Station 19”, on the ABC network. This program is not reality; however, it does show women in responsible, leadership roles as a Captain and a Battalion Chief. It should be noted that, certain aspects are not appropriate in real life fire stations: the promotion of the female firefighter to the position of “Captain” by her father, being directly supervised by his or her parent, or that a firefighter would be dating a superior in the fire station where they are both supervised by her father is not likely to occur. These are just a few examples of “artistic license”, however, showing a positive representation of female firefighters should be helpful in changing the perception of women in the fire service.
Additional Recommendations
7
Not linked to specific findings.
R1:
Requiring private veterinarians to comply with the law by reporting their rabies vaccinations to the appropriate jurisdictional Director and tie that into canvassing for licensing.
R2:
Fully utilizing the Chameleon (animal management software) modules available in the present computer system to optimize revenue collections for both City and County.
R3:
Making sure the contract cities are paying their fair share into the county for services rendered.
R4:
Resolving delays to the TNR injunction and the resulting increase of euthanasia rates for stray cats.
R5:
Examining structural and operational changes to increase adoptability in shelters.
R6:
Increasing the utilization of non-profit coalitions to provide additional services.
R7:
Improving the onerous phone tree system so the public can make appointments for low cost spay and neuter service, e.g. 1-888-SPAY4LA. Non-profit partners, seek out adoptable animals to foster or relocate to their volunteers and community. Some areas have greater success in adoption than others. These are residents of the County’s Carson Shelter. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 123
Findings & Recommendations
21 findings
F1:
The Creation and growth of LAHSA and MHIA in Implementation of Measure H Program toward intended goals has progressed in a logical and efficient manner. In 2012 County and city leaders realized significant increases in funds and personnel would be needed to find a solution to the increasing needs caused by the rapid increase in the homeless count. LAHSA was formed as a joint authority by the County and City Los Angeles in 1993 as a result of a lawsuit settlement to coordinate the homeless needs within the County. At that time, there were three cities, Glendale, Pasadena and Long Beach that had previously established organized homeless support services within their jurisdictions. These cities were given the option of continuing to receive funding directly from HUD. Because these cities operate independently, they were able to rapidly implement HUD suggestions in 2012. The result was a continuous reduction in the homeless counts. These three cities, Glendale, Pasadena and Long Beach, have independent HUD coordination and not through LAHSA administration. They have independent Continuum of Care, (LACoC), providing and monitoring homeless service contracts with local nonprofit firms. Because LAHSA was required to coordinate with all other stakeholders and obtain voter approval within the County, homelessness in 84 smaller cities and the City of Los Angles did not receive the level of support needed to address the increasing homeless count. One of HUD’s revised recommendations in 2012 was to establish a new data entry system that would focus more on the progress of individuals, not the service providers. The prior data entry system used a data system control based on services performed by each participating service provider. Another recommendation by HUD was to revise the Coordinated Entry System (CES) to be more community centered in order to enable each homeless caseworker to have access to the services provided in the areas served from a CES location. In 2014 a new Executive Director was hired for LAHSA to begin the necessary restructuring for a massive increase in funding to improve homeless support responsibilities. Also in 2015, Los Angeles County established a new Strategic Authority to plan for what would become the Measure H program. The BOS asked a county employee with 10 years serving the County homeless support needs, to act as Director of the new authority. Exhibit 6 on the following page lists 21 initiatives approved for funding availability projected by MHIA for the FY2017-18, 2018-19, and 2019-20. Eight initiatives designated for LAHSA administrative responsibility are noted with asterisks in the Agency/Department column. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 159 Exhibit 6 160 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT
F2:
Increasing LAHSA staff with qualified personnel has been and continues to be a challenge. Over a three-year period beginning in FY2014-15, LAHSA’s staffing budget increased over 280%, requiring staff to increase from 94 full time equivalent positions (FTE) to 360 FTE positions in FY2017-18. Exhibit 7 shows where additional positions have been added: Exhibit 7: LAHSA Staffing by Department DEPARTMENT FY14/15 FY15/16 FY16/17 FY17/18 Executive 4 4 6 HR/Administrative 2 5 7 Finance 27 47 58 Communications 1 3 3 IT/HMIS 16.5 10 12 Policy & Systems 15.5 30 62 Procurment and performance 32 74 54 Data Management 39 Access & Engagement 35 72 117 Total Full Time Equivalent Staff 94 133 245 358 As part of implementing these staffing increases, LAHSA retained a consultant to assist the agency in examining its organizational structure. LAHSA restructured it’s organization to include the creation of a Policy and System Department and a Procurement and Performance Management Department. The Policy and Systems Department focuses on developing County- wide policies applicable to its service providers related to delivering homeless services. This department is responsible for increasing LAHSA’s role as a systems change agent. The restructuring also resulted in the creation of the Procurement and Performance Management Department section which consolidated multiple functions to create one organizational unit focused solely on developing and managing service provider contracts. As of the time of the CGJ interviews, there were approximately 83 employee vacancies yet to be filled ranging from executive staff positions down to line staff. This hiring challenge is exemplified by the fact that two critical executive staff positions for Chief Program Officer and Chief Financial Officer remain unfilled. LAHSA’s struggle to fill its vacant positions was attributed to two different reasons. First, low unemployment within the region has made hiring quality staff more difficult, especially at the lower levels within the organization. Second, the demand for staff with homeless service sector experience is very high in the region in light of the fact that many County agencies and community-based organizations are also attempting to find qualified staff in response to Measure H funding. Competing for staff in this environment was reported as especially challenging as LAHSA’s salaries do not seem to be as competitive as some of the large County agencies seeking the same talent. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 161 LAHSA’s hiring process has adopted a two-phased approach. Phase I is focused on filling its most critical positions such as executive staff and managers. To help in this area, LAHSA retained a recruiting firm to assist the agency in filling the CPO and CFO positions. Phase II is focused on supervisorial positions, administrative positions and line staff. LAHSA has been conducting job fairs and continues to post for jobs on its job board. Staffing will likely continue to be an issue in the short-term, but LAHSA officials indicated they believe its efforts will result in the agency being reasonably staffed by the end of this fiscal year, June 30, 2018.
F3:
Ensuring programs success within different Service Planning Areas may warrant more flexibility in allocating funding through CES Lead Agencies in Each SPA to maximize effectiveness. LAHSA has separated the County homeless coordination into eight SPA. The 2017 homeless count showed dramatic variations in SPA homeless count. Monitoring activities and contracts by SPA’s is expected to give advanced indications of what increased service and support efforts are needed. LAHSA is now structured to better coordinate the three-fold funding increase. Exhibit 8 shows the homeless counts by cities and the County in total and as percentage of population: The important comparison is the percentage of total residents compared to the homeless count in each of these areas. Future reports should publish data by SPA’s so LAHSA can better adjust service as needs change. Exhibit 8: 2017 Homeless Count 2015 Jan 2017 Jan Long Beach 2345 1863 490,000 .3 of 1% -21% Glendale 208 168 201,000 .1 of 1% -20% Pasadena 632 575 145,000 .4 of 1% -11% LA City 25,686 34,189 3,900,000 .9 of 1% plus 25% LA County 41,174 57,794 9,800,000 .6 of 1% plus 29% Funding strategies for homeless services is complex as the causes for homelessness are varied. An added layer of complexity increases when attempting to create strategies for a region as ethnically, economically and geographically diverse as the County. The funding strategies for Measure H were approved by BOS and included specific dollar amounts for each strategy area. Some initiatives are subcontracted through other agencies. The eight funded initiatives assigned to LAHSA, are then allocated for each of the eight SPA, defined by the County based on the number of homeless within each SPA determined by the most recent homeless count carried out by LAHSA. The twenty-one Initiatives are budgeted for the first three years. Initiatives funded through LAHSA are more flexible than HUD grants. Field interviews indicate that SPA Lead CES agencies should have more flexibility in the subcontracting process. There was recognition that the initial allocation of funds in a consistent and universal manner allowed dollars to flow out to the communities more quickly. However, some service providers noted that the issues facing the homeless are different depending on the community. Needs can 162 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT differ based upon the type of services that have previously been funded in that community, the existing infrastructure, and the unique nature of the population being served. For instance, while some communities may have a greater need for an expansion of Rapid Re-housing, other communities may have a greater need for Subsidized Housing. As the funding process begins to stabilize, it may be appropriate to allow SPAs to request a tailored funding of strategies that more accurately match the needs of their local population.
F4:
LAHSA and MHIA coordination for distribution of the increased funding available from Measure H tax income has gone smoothly in the initial startup period. LAHSA was able to effectively accelerate the implementation process. LAHSA accelerated the activity for processing all necessary RFP’s to firms that were qualified or had applied to qualify for specific services. Also LAHSA prepared a new staff organization structure to meet the increased level of service that was required. LAHSA prioritized training programs needed to train all new personnel in each department. Efficient support coordination is being provided to all the service providers that also had to ramp up staff for increased homeless services. Planning of funds also covers funds available to other agencies from Measure H to meet the needs of other initiatives needed in the pathway out of homelessness supplied by other agencies. LAHSA receives about two-thirds of the Measure H funds on an annual basis. The CGJ learned that MHIA had done a broad outreach to all service providers as they developed the initiatives. That process included a revised adjustment to determine which initiative had priority for increase in funding in the initial years. MHIA has also reached out to all city organizations in the County in an attempt to have all city administrations participate in the program goals development. While all cities have not yet responded, it is expected that based on the responses to date, MHIA and LAHSA will be able to better coordinate the support programs that are now focused in the local needs of the eight SPA’s. LAHSA and MHIA have constant communication on the various initiatives so that variations of funding needs can be identified and made during the ten year program period. The long term results of this new coordination system and increased funding are expected to show positive results once all the planned activities have been implemented. The training programs established by LAHSA are well structured for a smooth operating process with the ability to adjust as new techniques and technology become available. Issuing service contracts over a three-year period allows service providers to properly provide the increased service levels needed to reach a solution to the expanding homelessness problem.
F5:
All steps for which the MHIA and LAHSA plan for coordination must be understood to properly evaluate the effectiveness of the increased funding Measure H provides. Measure H funding is expected to reduce the homeless count in all SPAs. MHIA and LAHSA are attempting to encourage all 88 incorporated cities in the County to be involved in coordinating their city staff with County and local nonprofit groups to better serve and possibly prevent local homelessness rather than just push the problem to others. Each homeless situation has a different cause with different solutions needed to rejoin the local community properly. There are specific paths and services that can be provided to help each individual or family re-join society. The CGJ has listed and described the objective of 13 steps below. Funding for some steps was not provided through LAHSA but is listed to provide a full 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 163 picture of the homeless services available. Those that are funded through LAHSA have the funding amount for the first two years in bold print to indicate the areas needing the most increase in service support. Outreach: E6 initiative allocation is $19 million in 2017-18 and $27 million for 2018- 19. This service is targeted at homeless groups to inform them of local services available for their specific needs. LAHSA maintains some homeless services staff to perform outreach needs as well as funding CES and LACoC for activities of outreach in all SPA’s. Many service providers with private funding perform this function. In addition to increased support to all the CES and LACoC agencies in each SPA, LAHSA now has staff with specific outreach duties. Many of these employees have experienced homelessness so they can more easily relate to various homeless conditions There are ten outreach teams, (two individuals per team), operating countywide. There is an outreach team assigned specifically to each of the eight SPA. There are also nine teams operating with County law enforcement. Another team is focused on Skid Row. LAHSA now hires ex-homeless to work in their outreach program. LAHSA conducted a job fair to increase their outreach staff which was open to homeless personnel. There were 80 homeless job candidates who attended and 20 candidates were hired. The experience of outreach like this in the past has shown it takes multiple contacts, as many as fifteen or twenty and up to a year in some cases, to motivate the chronically homeless, (persons homeless for a year or more), to demonstrate a willingness to enter the support system. Indications are that this new updated outreach process will encourage the chronically homeless to begin their pathway back to community life. The most recent homeless affected by economic condition are more willing and prepared to accept help from the various programs, once they learn that assistance is available. Avoid Homelessness: A5, pertaining to individuals, has $5.5 million budgeted in FY2017-18 and $11 million in FY2018-19. This new program is available to individuals who are about to be evicted because of their inability to pay rent or because of building demolition. Another initiative added to LAHSA budget is A1, pertaining to families, which provides $3 million in FY2017-18 and $6 million in FY2018-19 for preventing families from becoming homeless. LAHSA contracts out to those service providers qualified to negotiate with landlords, property owners of apartments or motels with vacancies, to accept rent support payments from government agencies. A similar program has been available through HUD to assist a family in paying for housing while they re-establish their ability to be self-supporting. Most individuals and families experiencing difficulty meeting rental obligations are not aware of the support available. Word must reach those in areas where developers are demolishing old housing so individuals and families can receive financial support to find temporary or permanent housing near their job or receive training for jobs available near where they live if they are required to move. Rapid Re-Housing (RRH): B3 of $57 million in FY2017-18 and $73 million in FY2018-19. This initiative is being expanded in LAHSA and has a budget increase. HUD has also put more financial support in their program initiative called “Housing First” to encourage a faster path to permanent housing. Rapid Re-Housing is a model to more quickly place families experiencing homelessness into permanent housing. Now rent and housing assistance, with case 164 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT management services is provided concurrently with moving into temporary or permanent housing depending on what is available. Coordinated Entry System (CES): LAHSA’s budget is $26 million in FY2017-18 expanding further to $35.5 million in FY2018-19. CES is sometimes called the “match.com” of homeless services. The (CES) now streamlines the process of finding housing for those who are homeless. The process is to house the most vulnerable people first. CES has a process for categorizing various populations: 1- Adult-headed households (non-veteran). This is further defined as individuals age 25 and older or non-veteran families with children under 18 with head of household age 25 and older. This also includes non-veteran youth-headed households defined as Transition Age Youth (TAY), that are individuals aged 18-25; unaccompanied minor age 18 or younger 2- non-veteran or families with children when adult head of household is age 18-25 3- Households with Veterans. This is further defined as individuals age 18 or older, or families with children under 18 and adult head of household age 18 or older. The handling of services provided varies if homelessness is chronic, (over 1 year), or recent, under 1 year. All categories defined above are assigned a case worker to assist in the pathway steps needed to reach permanent housing. If there is a mental or physical disability that is determined permanent there are specialized services and perhaps specific housing support needs that can be provided. If the category is determined to have a pathway to independent housing, either self-supporting or continued financial support needed, the pathway to permanent housing is coordinated by the assigned case worker who provides follow-up support services. LAHSA now has a Lead CES Agency in each of the 8 County SPA regions. Emergency Shelters: Measure H initiative E8 has provided LAHSA an increase in funding of $56 million in FY2017-18, plus $69.9 million in FY2018-19. There are various shelter systems and emergency shelters provided to meet specific needs. The HEARTH Act of 2009, (Homeless Emergency Assistance and Rapid Transition to Housing) revised the McKinney-Vento Homeless Act put into effect in 1987. The HUD Emergency Grant System was revised to Emergency Solutions Base Grants. The changes were to improve the number of all shelter categories, by increasing funding needed for assistance in shelters, temporary assistance to prevent becoming homeless. FEMA funds emergency shelters to provide: A Temporary Winter shelters open only during expected periods of inclement weather B Permanent emergency shelter open year round providing temporary stays up to 3 months C Adult shelter for specific emergencies such as female abuse with specific stay limits D Short term stabilization shelter while seeking permanent supportive housing There are many small temporary shelters operating throughout the County. Fifteen are operating in Long Beach alone. The County has prepared a complete winter shelter list for all 8 SPA with instructions where to check in for transportation and leave personal belongings. They are transported back to pick up belongings. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 165 6 Mobile Hygiene and Safe Parking. As a result of successful pilot programs on hygiene and safe parking programs the following support services are now being established. LAHSA has issued an RFP for safe overnight parking with security and hygiene facilities for those experiencing homelessness that own a properly registered car and have a current driver’s license. These locations have outreach personnel to assist the individual or family to begin the necessary steps on the pathway back to normal community life. There is a pilot program in the City of Los Angeles skid row area which has three trailers to house up to sixty people in a parking lot on Alameda and Arcadia Streets. The site serves only as a crisis way station. Other trailers serve as a shower and laundry station with restrooms. Another trailer serves as a location for caseworkers to offer assistance to homeless individuals and to give them encouragement. The following notice provides details for the Safe Parking process. Access Centers: E14 has $5 million budget for FY 2017-18 and $19 million for FY 2018-19. Drop-in centers have the potential to facilitate engagement of homeless into treatment and back into the mainstream. Access Centers in local communities can offer specific services or recreational activities to families and individuals with their own specific mission. These centers are funded by local nonprofit support groups and can make proposals to LAHSA for specific requirements LAHSA has identified in their area of service. LAHSA is now having 166 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT outreach personnel staff and operate an information center in SPA 4 to guide those looking for shelter, food and hygiene services. Drop in day centers are provided where adults and youth can get off the street for a safe haven. In some areas homeless have sought the public libraries to read the local papers or other items of interest in a safe environment. Any area available should be used to inform both the city residents as well as homeless where the locations are where they can obtain assistance. Exhibit 9 is a sample of handouts explaining SPA4’s new programs staffed by volunteers. Exhibit 9 HOMELESS HELP DESK We are here to assist you in locating Emergency Housing with Food & Hygiene Services 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 167 8 Crisis Bridge: B7 Budget of $13 million for FY 2017-18 and $25.3 million for FY 2018-19. This is a shelter support system providing temporary full housing support for 90 to 180 days while clients are waiting for permanent housing. This was part of the HUD Support Program to provide partial or full rent support to individuals and families to re-enter community life. LAHSA has additional funding under the Measure H Initiative, B7, to provide a safe supportive 24-hour residence to individuals or families while they are assisted as quickly as possible into permanent housing. Sometimes the program is referred to as reserved crisis housing. The client must be referred by a CES Housing Matcher or CES Housing Navigation. Clients must have a priority score which is coordinated by the local CoC. Disability support. This necessary assistance has been provided through various Federal Government programs. The VA has expanded the technology in assisting wounded veterans in entering normal life in their community. Other agencies and hospitals have large private funding to address this need. LAHSA Measure H initiative program does not participate in this service but has awareness of the available service so those needing support can be properly directed. Medical Support. This necessary assistance like disability support is not part of the increased funding of the Measure H initiative program but is a very necessary part of assisting homeless individuals to get the necessary psychiatric and medical support needed. Those operating with Outreach Programs must be familiar with the local services available to guide a homeless person needing medical help. There is a large percent of those in homeless situations because of psychiatric or other medical needs. Drug and Alcohol Rehab program may qualify for Measure H funding if tied to one of the various shelter programs that are funded through LAHSA support services. There are residential rehab programs. There are various programs listed on both the County Department of Health Services (DHS) and the County Department of Mental Health (DMH). Transition Housing. Programs are now structured to reach permanent supportive housing as quickly as possible. Halfway House is also another term used. The normal length varies from 6 months to 2 years. In some cases, residents are required to pay up to 30% of their monthly income toward the monthly rent cost. Any emergency shelter housing that allows their clients to stay beyond 6 months is also classified in this category. The funding is supported by HUD Housing First program. Measure H funds are also provided through DPSS and DCFS plus HACoLA. Job Training. This is one of the final steps to develop the ability for homeless individuals to support themselves in permanent housing. The importance of this step is critical for a person to move off the welfare rolls into full independent support and self-esteem in the community. Unfortunately, HUD has withdrawn funding support for this step in their focus on housing first to rapidly move a person or family into permanent housing with financial support from the federal government. Without proper job training the person will continue to need government subsidies. There are various Job Training programs with nonprofit firms that are quite effective. An example of job seeking assistance in Long Beach is a nonprofit firm that coordinates a program in Long Beach. An office is maintained in the Long Beach Multi Service facility to 168 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT coordinate closely with case workers to learn when a client may be ready for job training. The job trainer provides a 2-week continuous training and motivation program to assist individuals to try entering the job market. Once the trainer believes they are ready, another person on the job support team, teaches resume writing and trains in computer use for writing of resume. Then they arrange for interviews for positions which the person may be qualified. The normal step is to begin with part time employment so that person can take specific training courses for the job and get accustomed to the requirements of being a proper employee. Housing subsidy is provided until the person becomes self-sufficient. Permanent self-supportive housing. This is the final goal; however, medical or physical disabilities may require continued government support. Under specific programs of continuous support, the financial support program varies from three to five years with residents required to pay 30% of their income and subsidized housing is provided by federal programs. In some cases, supportive housing is needed because of age, disability, substance abuse, mental illness. Separate programs serve all these needs and require continued case worker support. Some may have a short path and may immediately move into permanent housing with temporary financial support with the Housing First HUD program. The longer a person is homeless the longer the path needed to bring them into participation in local community life.
F6:
The physical environment of an animal shelter is a key ingredient in the effect on the animals, the public looking to adopt, and the staff that cares for the animals. Design is important in helping to reduce the animal population in shelters. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 131 The Cat Adoption Area at Palmdale Why Can’t a Dog Be Just a Dog? A study done by researchers in Florida found that “self-identified experts (shelter staff, trainers, veterinarians and others) correctly identified a prominent breed only 27 percent of the time.20 Random breeding results in a population of mixed breed dogs, creating a wide range of behavioral predispositions. For that reason, the ASPCA believes it is important to evaluate and treat each dog, no matter its breed, as an individual. The only apparent conflict with the breed- neutral approach could be a liability issue with certain breeds such as Doberman pinschers, pit bulls, mastiffs, etc. Pet liability insurance is available to protect pet owners, if necessary. If a dog is designated as one of these “insurance restricted” breeds, a DNA test by a veterinarian may be able to counter that designation.21
F7:
Attempts at breed identification on shelter cage cards have resulted in lower adoption rates for all dogs,22 not just for the controversial issue regarding pit bulls. Less than 3% of shelter dogs are purebred23therefore the majority of dogs in shelters are mixed breed. Studies indicate that guessing the parentage of these dogs has consistently been incorrect.24 20 Finch, Liz, “A Rose by Any Other Name”, Best Friends magazine, March/April, 2018, pp. 28-32. Study by Maddie’s Shelter Medicine Program, University of Florida, Gainesville . Ibid. Wynne, Dr. Clive, PhD, animal behaviorist, “Do Dogs Think?”, lecture at Amnnenberg PetSpace, Los Angeles, 1/20/2018 23 Ibid. Ibid. 132 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Mixed Breed Kennel Identification Card - The breed designation is often a guess by shelter personnel. Most dogs are mixed breed and studies have shown that not identifying a specific breed increases adoption rates.25 Meet and Greet at the Shelters The confining nature of the shelter fails to provide the opportunity for animals to become more relaxed and able to exhibit calm friendly behavior, which affects their adoptability. In each case, the simple use of treats by staff and volunteers can train a shelter dog to behave in a more welcoming manner to those approaching the cages. It is also important to help socialize them. For volunteers and shelter staff to spend time in a more pleasant and less threatening environment improves the chances of an adoption.26
F8:
Behaviorists have identified three areas to increase adoptability in dogs: 1) The concept of play and selection of a toy which demonstrates a dog’s willingness to interact with potential adoptees. 2) Exhibiting a closeness or bond with the potential adopter, where the dog chooses to remain next to the adopter when in outdoor areas. 3) The interest a dog will show when a potential adopter approaches the animal. Ibid. Ibid. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 133 Play Yard where potential adopters get acquainted - Setting aside an area for potential adoptees to interact with a shelter animal improves their chances for adoption. Behaviorists have been able to better socialize these animals when they are not kept in the cages all day and night. Shelter Staff It is unfair to demonize a shelter or employee because of the unrealistic goal of “No Kill”, which is actually considered to be a kill ratio of 10% or less. Many individuals and groups seeking to protect all animals go as far as death threats and harassment on social media; actions which are inappropriate and counterproductive. Shelters play a critical role in helping residents kennel their animals during a disaster. As an example, when members of this CGJ inspected the DAS East Valley shelter, it was a week after the Creek fire. These city workers helped shelter dogs, cats, horses and livestock during the emergency.
F9:
People who operate these shelters have proven to be caring individuals and seek alternatives to euthanasia whenever possible. 134 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Examining the Animal Management Software DAS and DACC still use the same aging computer system, Chameleon Beach Software. It was one of the first software products in the marketplace designed for animal-related operations, and according to their website27 it has been on the market for three decades. Both DAS and DACC maintain their own separate databases and the systems are therefore isolated from each other. DAS and DACC have similar complaints concerning the state of their technology, which may negatively impact the overall effectiveness of their “no kill” efforts. This CGJ has been told that there is a “Wish List” to update the software: to make it more agile, responsive and provide better information sooner, to improve collections, shelter operations, and to help management decisions. Though each user’s individual change request for a new updated module may not survive the cost/benefit analysis that normally must justify the expenditure, the 15-20 year old system is inadequate and needs to be upgraded or replaced. A robust, well designed, modern implementation of information systems for both the city and the county for their animal services is an infrastructure investment that is warranted to reduce the number of animals euthanized. Not only could it provide managers with the information to manage shelters and more effectively allocate resources but also provide professionals in the field with good data to find new techniques and policies for animal control. In 2016, the County Auditor- Controller completed a review of DACC’s revenue and collections operations.28 Findings included careless entering of revenue collections by field officers, manual receipts not reconciled to Chameleon, control logs not maintained, receipts not accounted for, lax supervisory reviews of daily manual receipts, etc. Other instances occurred in the billing/cashier department, e.g. unlocked cash drawers, mailboxes that receive payments were not secured and these payments were not noted and not reconciled into Chameleon, cashier’s personal items being kept in cash drawers and signed credit card receipts not secured but left out in the open on the employee’s desk. Recommendations at the time were to address all of these issues. In a discussion with a County senior official, we were told that the Department continues to deal with issues of improper and erroneous collections received and that some areas in the Department were not utilizing the available “modules” in Chameleon to alleviate the problem.
F10:
Lost licensing revenue is, in part, the result of both an inadequate computerized management system, weak controls, and uneven compliance to procedures.29 Licensing The first dog licenses were sold in Los Angeles City in 1872 and cost $1.50 for males and $3.00 for females. By the turn of the century, inspectors were going door to door collecting the now hefty sum of a $2.00 license fee and levying fines on any unlicensed animals. Much revenue was brought into the city, though drastic action was taken to eliminate the strays. It is estimated that over those several years, about 5,000 dogs were collected and approximately 4,000 were destroyed.30 27 https://chameleonbeach.com/products/chameleon 28 County of Los Angeles Department of Auditor-Controller, Revenue and Collections Review, 2/1/2016 29 Meeting with senior official at LA City Animal Services 30 Supra, see note 5 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 135 In 2003, the Los Angeles County Department of Auditor-Controller reviewed the Department’s procedures and practices for collecting animal license fees and penalties.31 At that time, the County used a contractor to mail approximately 300,000 renewal notices and collected $7.9 million annually. That review addressed some shortcomings with the management reporting systems and made recommendations. The addressed shortcomings were especially related to license billing and collections. The report made recommendations, but the CGJ found some areas of implementation still lacking e.g., the Chameleon system was to be replaced because it failed to provide adequate reports to management. Most billing and collection monitoring was only being used to address renewals due annually, but there was no feasible way to identify and monitor new pet owners whose pets were not yet licensed. Unfortunately, the Downey shelter still used a paper monitoring system. We also were told compliance varies by locale as well, e.g., North Los Angeles County is less compliant with licensing, spaying and neutering requirements, etc. than the South County.32 In 2014, DAS was directed to expand its licensing through veterinarian notifications.33 The results of their routine follow ups on non-responses have not been effective in generating revenue or creating a comprehensive database for collections and records on the animal population.
F11:
The City believes that less than 30% of dogs and significantly fewer cats are currently licensed. Rabies Vaccination Reporting The Los Angeles County code, specifically Title 10.20.25034, mandates veterinarians to report rabies vaccinations to the proper jurisdictional agency’s Director. The City of Los Angeles has a similar statute in Los Angeles Municipal Code 53.53.35
F12:
The Los Angeles City and Los Angeles County veterinary industry is required to forward notice of all rabies vaccinations to the Director of local Animal Control Services and the Director of DACC respectively; this is not being done. A Disconnect The initially stated reason for non-compliance by vets and their staff was ignorance of the law. We were told by the veterinary offices we surveyed that they were required to report only instances of dog bites or communicable diseases and that rabies vaccination information and certificates were given only to the pet owner, who would then be responsible for obtaining the pet’s license. One veterinarian told us that many owners would protest any reporting of rabies vaccination information to the appropriate agency, mainly to avoid “being on the books” and thus being responsible for the cost of a license and yearly renewals. If a veterinarian insisted on 31 Los Angeles County Auditor- Controller, Animal License Fee Collection Review, 2003 32 Meeting with senior official at DACC 33 Memo from Brenda Barnette to City Council, c/o Office of the City Clerk, dated 8/13/14. Council File: 14-0600-S7 34 Los Angeles County Code §10.20.250 covering the unincorporated territory, plus 47 contracted cities minus those cities that may have their own regulations. Los Angeles Municipal Code, Chapter 5, Article 3, Section 53.53 136 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT reporting, the client might move on to a veterinarian who would be less willing to comply with the law and therefore, a customer would be lost.
F13:
A random sampling of 5 private veterinarians in downtown Los Angeles, 2 in the Los Angeles County Area, and a phone conversation with a California veterinary advocacy organization found that the percentage of veterinarians complying with this mandate was zero. Benefits of Compliance with Rabies Vaccination Reporting The CGJ found both DAS and DACC services such as licensing, rabies vaccination reporting, revenue collection, policy implementation and compliance with regulations need improvement. This would address two constraints against better animal service operations: lack of funding and understaffing. Compliance would allow for easy follow up of services: licensing, micro-chipping, spay and neutering of animals four months or older, and even allowing veterinarians to complete license applications. In fact, a city ordinance authorizes veterinarians to sell licenses.37 The issue of jurisdictions between City and County animal services can easily be resolved by contacting the enforcement agency. If the DACC and DAS identified unlicensed dogs and their owners by cross-checking the data on the canine vaccination reports, this would be an opportunity for increased revenue. The County would now have a record of these owners. The statistics being reported now appear to be coming mostly from veterinarians employed by or contracted to shelters.
F14:
If the existing Chameleon data system, which the County launched 15 years ago and the City 20 years ago, was able to process the data from private Los Angeles veterinarians, the licensing and oversight of animal care and control would be considerably improved. It would also enable necessary follow-up for issues of population control with spay and neuter programs and increase the Return to Owner (RTO) statistics of pets because more pets would be micro-chipped. Cat Euthanasia “From our perspective, the cat has everything figured out. Our role really is managing their ability to reproduce.” - John Cicirelli, Director of San Jose Animal Care and Services The life of the feral cat is full of risks that impact their lives and their euthanasia rate has remained high. In Los Angeles County, it approaches 60%.38 These numbers are on the rise and require active participation from all community partners; government, non-profit coalitions, and the public. A program for licensing cats may present an opportunity to help control the 36Phone survey taken by CGJ, March, 2018 37 Los Angeles Municipal Code 53.15.4 (Title and Section Amended by Ord. No. 18.882, Eff. 10/31/11) 38 “End of Year Message”, Los Angeles Department of Animal Control, informational booklet 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 137 increasing number of cats being euthanized. The City of Los Angeles licenses cats only on a voluntary basis. An overwhelming animal control burden has fallen on local governments to implement measures to control free roaming cat populations. This has a significant impact on public and animal health, due to the various diseases which are transmittable between animals and from animals to people.
F15:
There is a higher euthanasia rate among cats compared with dogs. Only Los Angeles County has begun the mandatory process of licensing cats.39 TNR is Halted in the City of Los Angeles Trap Neuter Release (TNR) is a program advocated by those seeking to reduce cat populations through the neutering and spaying of feral or community cats. “In 2008 … a lawsuit was filed against the City of Los Angeles demanding that it refrain from implementing TNR until a review of environmental implications could be completed.”40 This was followed in 2010 by an injunction filed against the City over its TNR program. This injunction has tied the hands of DAS and many other organizations from the practice to release spayed and neutered cats back to their prior environment. Our interviews with shelter personnel seem to indicate that all other shelters are waiting for the resolution of the injunction. Feral and Community Cats Area - Shelters have few options other than euthanasia in dealing with feral, stray or unsocialized cats. The TNR conflict arises over the issues of animal welfare, public health and the impact on the indigenous species (birds, reptiles, other mammals, etc.). This injunctive climate has limited all 39 Los Angeles County Code §10.20.030 40 The Urban Wildlands Group, Inc. v. City of Los Angeles, et al 138 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT animal control agencies from efforts to reduce the feral and community cat population for fear of legal action. City and County shelters are given no effective option other than to euthanize the increasing “stray” cat population in the community. It is essential to resolve this issue and allow for the gradual reduction of this portion of the feline population thru the Trap Neuter “Return” Program and help eliminate the need to kill otherwise healthy cats. Although a controversial issue, veterinarian Dr. Julie Levy was optimistic of its success in a city like Los Angeles. Her 2003 study “found that a long-term TNR program, coupled with aggressive adoption, can help reduce stray and feral cat populations. However, TNR can fail as people begin abandoning unsterilized cats in the colonies.”41 Though her study took place at the University of Florida, she noted, “Southern California is a lot like Florida in that both share a mild climate that facilitates successful cat reproduction, sensitive wildlife areas, rapid human population growth and development and a growing public commitment to environmental protection and animal welfare.”42 Community cats may be cared for by an individual who licenses and accepts responsibility for the cats and acts as a caretaker for the colony. People for the Ethical Treatment of Animals (PETA), has suggested establishing a Return program that would require a cat habitat which would contain the cat population and provide for routine immunization, care and feeding. Los Angeles County Department of Public Health (LACDPH) needs to be more involved in addressing this and other public health issues.
F16:
An existing injunction against DAS’ Trap, Neuter, and Release program would require an expensive ($1,300,000) Environmental Impact Report be completed by the City of Los Angeles, $400,000 of which still remains to be funded before the injunction can be lifted.43 41 Fox, Hayley, “Cat Fight”, LA Weekly, April 3-9, 2015, 42 Ibid. p.14 43 Interview with City senior manager 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 139 The Euthanasia Room with disposal barrel for cats at a County shelter - In every shelter there is a euthanasia room, the final stop for animals that are not claimed, adopted, or fostered. Hiring and Staffing “We are committed to the belief that no one organization…can achieve the goal of saving the lives of healthy and treatable animals alone, that we need one another, and that the only solution is to work together.” -“Guiding Principles”, The Asilomar Accords County shelters are understaffed and the problem seems to be exacerbated by the long hiring process, sometimes as long as six months. Sworn field officers are vetted almost as comprehensively as police officers and there appears to be no consistent process of certification. This hiring delay is consistent with most County Departments and there does not appear to be any plan to initiate a fast-track system to fill vacancies when they occur. This CGJ were told a training module is in development in the County.44 City shelters fare no better as they are losing 2-3 employees each month due to termination, transfers or retirement. They would need 20-30 new hires per year just to maintain current levels of operation with more hires needed for optimum operation.45
F17:
The County’s hiring process needs to be addressed. It is typically slow in filling vacancies and seems unable to streamline the process, to maintain a continuous flow of needed trained employees. Interview with senior County manager 45 Interview with City Animal Services middle manager 140 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Shelter Animals and Juvenile Probation Camps A popular and effective program at the Challenger Probation Camp allowed the youth there to “intern” at the adjacent County animal shelter in Lancaster. Juveniles worked with animals which helped to improve the behavior of both. The probationers learned the responsibilities of caring for a dependent animal and the animals became socialized and better prepared for adoption. Unfortunately, the program was abruptly canceled for reasons unclear. However, the CGJ found that management at the Camp Scott facility for girls indicated they might be open to a similar program.46
F18:
It is important that there be opportunities for initial and ongoing training and the development of internships. Contract Cities – “The Past” “DACC’s operating Budget is not fully offset by contract city revenue and general fund allocation.”47 DACC provides various animal control services for its 47 contract cities. The contracts with each city note the specific types of services that DACC will provide, the rates to be charged, and at the end of each month, DACC sends an invoice. The Auditor-Controller Review of 2014 noted that in the majority of cases (84%), services to the cities were rendered before contracts were signed and in 16% of contracts, signatures were not dated causing an inability to determine “if the contracts were fully executed timely” (sic). The review also noted problems with billing errors, no documentation of supervisory review, and “insufficient supporting documentation in calculating the quantities of services provided to the contract cities based on Chameleon reports.”
F19:
The County has indicated that there is a deficit in the amount collected from contract cities and the cost for providing services. Phone interview with camp manager 47 Interview with Senior DACC official 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 141 Contract Cities – “The Future” Although now apparently corrected, there were no initial charges for medical services (including intake evaluations) and DACC anticipated an average holding period of five days, later determined to be ten days, thereby doubling that cost. A reevaluation by DACC of Los Angeles County’s current contracts with contract cities identified the problem and they are now more realistically allocating costs for services. DACC’s expected result will be an additional $10 million/per year, after a gradual yearly increase during the next six years. Although this benefits the contract cities, it prolongs a significant deficit for the County. CGJ’s investigation noted that there are still problems in the County receiving the optimum amount of revenue from some of these contract cities for services rendered. This matter is to be addressed by the County in the near future. These contracts are pending renewal for 2018.
F20:
As a result of prior miscalculation of costs, there will be an increase to the Contract over the next 6 years. Communication Breakdown The CGJ tried unsuccessfully to access low cost spaying and neutering services for the public, specifically the County contracted service, SPAY4LA. This is a fully equipped mobile spay and neuter clinic that serves certain areas of LA County, e.g., Bell, Cudahy, Inglewood and 44 other contracted cities. In March, the CGJ attempted to call their listed phone number (1-888-772- 9452), and a recording led us to another number (1-800-772-9452) which was called and which led back to the first number. We reported this problem to County senior management and the phone tree system has since been changed. Unfortunately, the system now leads residents to City animal services or to County animal services in Long Beach. The latter number may be a costly call for the low-income residents for whom this service was intended. A message was left at the Long Beach number but so far, there has been no response. The concern is that even when the public is prepared to do the right thing, like spaying and neutering their pets to help decrease the euthanasia rate, they cannot rely on a system which goes “round and round” in an endless loop. Furthermore, even when the matter is supposedly corrected, there is no timely response to a resident’s message. This may be a single instance of a “glitch”, however, we fear the inefficiency of communications between governments, non-profit coalitions, and the public may be more symptomatic. We asked City and County if they share information and meet regularly to compare best practices. They do not seem to communicate enough for the benefit of both agencies and the public.
F21:
The public wants to talk with a person, or be able to leave a message and have timely follow up. If a telephone number fails to connect with the services desired, people will hang up and not take needed action. 142 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT
Additional Recommendations
9
Not linked to specific findings.
R1:
(A1) New initiative for homeless prevention for families -LAHSA new budget $3 million
R2:
(A5) New initiative for homeless prevention for individuals-LAHSA new budget $5.5 million
R3:
(B3) Expansion of rapid re-housing program - LAHSA budget increase $57 million
R4:
(B7) Expand “Interim Bridge/Bridge Housing”- LAHSA budget increase $13 million
R5:
(E6) Expansion of LA Countywide Outreach Program - LAHSA budget increase $19 million
R6:
(E7) Improve Coordinated Entry system for Homeless - LAHSA budget increase $26 million
R7:
(E8) Enhance Emergency/Winter Shelter Program - LAHSA budget increase $56 million
R8:
(E14) Improve Transition Age Youth (TAY) services, age 18 through 24 - LAHSA budget increase $5 million The CGJ investigation identified potential improvements that can be made to LAHSA’s implementation of Measure H. The public needs to be informed of the causes and workable solutions for homelessness. The community’s “quality of life” must be taken into consideration and is the primary responsibility of each community’s key elected and appointed officials throughout the County. Addressing the needs of the homeless in a humane way is also the responsibility of City leadership and residents in every community. This investigation will provide a more detailed explanation for residents, neighborhood organizations and elected and appointed officials so they can better understand why they should participate in a viable solution which includes a quality of life for all. 148 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT
R15-20:
year old system is inadequate and needs to be upgraded or replaced. A robust, well designed, modern implementation of information systems for both the city and the county for their animal services is an infrastructure investment that is warranted to reduce the number of animals euthanized. Not only could it provide managers with the information to manage shelters and more effectively allocate resources but also provide professionals in the field with good data to find new techniques and policies for animal control. In 2016, the County Auditor- Controller completed a review of DACC’s revenue and collections operations.28 Findings included careless entering of revenue collections by field officers, manual receipts not reconciled to Chameleon, control logs not maintained, receipts not accounted for, lax supervisory reviews of daily manual receipts, etc. Other instances occurred in the billing/cashier department, e.g. unlocked cash drawers, mailboxes that receive payments were not secured and these payments were not noted and not reconciled into Chameleon, cashier’s personal items being kept in cash drawers and signed credit card receipts not secured but left out in the open on the employee’s desk. Recommendations at the time were to address all of these issues. In a discussion with a County senior official, we were told that the Department continues to deal with issues of improper and erroneous collections received and that some areas in the Department were not utilizing the available “modules” in Chameleon to alleviate the problem. Finding 10: Lost licensing revenue is, in part, the result of both an inadequate computerized management system, weak controls, and uneven compliance to procedures.29 Licensing The first dog licenses were sold in Los Angeles City in 1872 and cost $1.50 for males and $3.00 for females. By the turn of the century, inspectors were going door to door collecting the now hefty sum of a $2.00 license fee and levying fines on any unlicensed animals. Much revenue was brought into the city, though drastic action was taken to eliminate the strays. It is estimated that over those several years, about 5,000 dogs were collected and approximately 4,000 were destroyed.30 27 https://chameleonbeach.com/products/chameleon 28 County of Los Angeles Department of Auditor-Controller, Revenue and Collections Review, 2/1/2016 29 Meeting with senior official at LA City Animal Services 30 Supra, see note 5 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 135
Findings & Recommendations
21 findings
F1:
The Creation and growth of LAHSA and MHIA in Implementation of Measure H Program toward intended goals has progressed in a logical and efficient manner. In 2012 County and city leaders realized significant increases in funds and personnel would be needed to find a solution to the increasing needs caused by the rapid increase in the homeless count. LAHSA was formed as a joint authority by the County and City Los Angeles in 1993 as a result of a lawsuit settlement to coordinate the homeless needs within the County. At that time, there were three cities, Glendale, Pasadena and Long Beach that had previously established organized homeless support services within their jurisdictions. These cities were given the option of continuing to receive funding directly from HUD. Because these cities operate independently, they were able to rapidly implement HUD suggestions in 2012. The result was a continuous reduction in the homeless counts. These three cities, Glendale, Pasadena and Long Beach, have independent HUD coordination and not through LAHSA administration. They have independent Continuum of Care, (LACoC), providing and monitoring homeless service contracts with local nonprofit firms. Because LAHSA was required to coordinate with all other stakeholders and obtain voter approval within the County, homelessness in 84 smaller cities and the City of Los Angles did not receive the level of support needed to address the increasing homeless count. One of HUD’s revised recommendations in 2012 was to establish a new data entry system that would focus more on the progress of individuals, not the service providers. The prior data entry system used a data system control based on services performed by each participating service provider. Another recommendation by HUD was to revise the Coordinated Entry System (CES) to be more community centered in order to enable each homeless caseworker to have access to the services provided in the areas served from a CES location. In 2014 a new Executive Director was hired for LAHSA to begin the necessary restructuring for a massive increase in funding to improve homeless support responsibilities. Also in 2015, Los Angeles County established a new Strategic Authority to plan for what would become the Measure H program. The BOS asked a county employee with 10 years serving the County homeless support needs, to act as Director of the new authority. Exhibit 6 on the following page lists 21 initiatives approved for funding availability projected by MHIA for the FY2017-18, 2018-19, and 2019-20. Eight initiatives designated for LAHSA administrative responsibility are noted with asterisks in the Agency/Department column. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 159 Exhibit 6 160 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT
F2:
Increasing LAHSA staff with qualified personnel has been and continues to be a challenge. Over a three-year period beginning in FY2014-15, LAHSA’s staffing budget increased over 280%, requiring staff to increase from 94 full time equivalent positions (FTE) to 360 FTE positions in FY2017-18. Exhibit 7 shows where additional positions have been added: Exhibit 7: LAHSA Staffing by Department DEPARTMENT FY14/15 FY15/16 FY16/17 FY17/18 Executive 4 4 6 HR/Administrative 2 5 7 Finance 27 47 58 Communications 1 3 3 IT/HMIS 16.5 10 12 Policy & Systems 15.5 30 62 Procurment and performance 32 74 54 Data Management 39 Access & Engagement 35 72 117 Total Full Time Equivalent Staff 94 133 245 358 As part of implementing these staffing increases, LAHSA retained a consultant to assist the agency in examining its organizational structure. LAHSA restructured it’s organization to include the creation of a Policy and System Department and a Procurement and Performance Management Department. The Policy and Systems Department focuses on developing County- wide policies applicable to its service providers related to delivering homeless services. This department is responsible for increasing LAHSA’s role as a systems change agent. The restructuring also resulted in the creation of the Procurement and Performance Management Department section which consolidated multiple functions to create one organizational unit focused solely on developing and managing service provider contracts. As of the time of the CGJ interviews, there were approximately 83 employee vacancies yet to be filled ranging from executive staff positions down to line staff. This hiring challenge is exemplified by the fact that two critical executive staff positions for Chief Program Officer and Chief Financial Officer remain unfilled. LAHSA’s struggle to fill its vacant positions was attributed to two different reasons. First, low unemployment within the region has made hiring quality staff more difficult, especially at the lower levels within the organization. Second, the demand for staff with homeless service sector experience is very high in the region in light of the fact that many County agencies and community-based organizations are also attempting to find qualified staff in response to Measure H funding. Competing for staff in this environment was reported as especially challenging as LAHSA’s salaries do not seem to be as competitive as some of the large County agencies seeking the same talent. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 161 LAHSA’s hiring process has adopted a two-phased approach. Phase I is focused on filling its most critical positions such as executive staff and managers. To help in this area, LAHSA retained a recruiting firm to assist the agency in filling the CPO and CFO positions. Phase II is focused on supervisorial positions, administrative positions and line staff. LAHSA has been conducting job fairs and continues to post for jobs on its job board. Staffing will likely continue to be an issue in the short-term, but LAHSA officials indicated they believe its efforts will result in the agency being reasonably staffed by the end of this fiscal year, June 30, 2018.
F3:
Ensuring programs success within different Service Planning Areas may warrant more flexibility in allocating funding through CES Lead Agencies in Each SPA to maximize effectiveness. LAHSA has separated the County homeless coordination into eight SPA. The 2017 homeless count showed dramatic variations in SPA homeless count. Monitoring activities and contracts by SPA’s is expected to give advanced indications of what increased service and support efforts are needed. LAHSA is now structured to better coordinate the three-fold funding increase. Exhibit 8 shows the homeless counts by cities and the County in total and as percentage of population: The important comparison is the percentage of total residents compared to the homeless count in each of these areas. Future reports should publish data by SPA’s so LAHSA can better adjust service as needs change. Exhibit 8: 2017 Homeless Count 2015 Jan 2017 Jan Long Beach 2345 1863 490,000 .3 of 1% -21% Glendale 208 168 201,000 .1 of 1% -20% Pasadena 632 575 145,000 .4 of 1% -11% LA City 25,686 34,189 3,900,000 .9 of 1% plus 25% LA County 41,174 57,794 9,800,000 .6 of 1% plus 29% Funding strategies for homeless services is complex as the causes for homelessness are varied. An added layer of complexity increases when attempting to create strategies for a region as ethnically, economically and geographically diverse as the County. The funding strategies for Measure H were approved by BOS and included specific dollar amounts for each strategy area. Some initiatives are subcontracted through other agencies. The eight funded initiatives assigned to LAHSA, are then allocated for each of the eight SPA, defined by the County based on the number of homeless within each SPA determined by the most recent homeless count carried out by LAHSA. The twenty-one Initiatives are budgeted for the first three years. Initiatives funded through LAHSA are more flexible than HUD grants. Field interviews indicate that SPA Lead CES agencies should have more flexibility in the subcontracting process. There was recognition that the initial allocation of funds in a consistent and universal manner allowed dollars to flow out to the communities more quickly. However, some service providers noted that the issues facing the homeless are different depending on the community. Needs can 162 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT differ based upon the type of services that have previously been funded in that community, the existing infrastructure, and the unique nature of the population being served. For instance, while some communities may have a greater need for an expansion of Rapid Re-housing, other communities may have a greater need for Subsidized Housing. As the funding process begins to stabilize, it may be appropriate to allow SPAs to request a tailored funding of strategies that more accurately match the needs of their local population.
F4:
LAHSA and MHIA coordination for distribution of the increased funding available from Measure H tax income has gone smoothly in the initial startup period. LAHSA was able to effectively accelerate the implementation process. LAHSA accelerated the activity for processing all necessary RFP’s to firms that were qualified or had applied to qualify for specific services. Also LAHSA prepared a new staff organization structure to meet the increased level of service that was required. LAHSA prioritized training programs needed to train all new personnel in each department. Efficient support coordination is being provided to all the service providers that also had to ramp up staff for increased homeless services. Planning of funds also covers funds available to other agencies from Measure H to meet the needs of other initiatives needed in the pathway out of homelessness supplied by other agencies. LAHSA receives about two-thirds of the Measure H funds on an annual basis. The CGJ learned that MHIA had done a broad outreach to all service providers as they developed the initiatives. That process included a revised adjustment to determine which initiative had priority for increase in funding in the initial years. MHIA has also reached out to all city organizations in the County in an attempt to have all city administrations participate in the program goals development. While all cities have not yet responded, it is expected that based on the responses to date, MHIA and LAHSA will be able to better coordinate the support programs that are now focused in the local needs of the eight SPA’s. LAHSA and MHIA have constant communication on the various initiatives so that variations of funding needs can be identified and made during the ten year program period. The long term results of this new coordination system and increased funding are expected to show positive results once all the planned activities have been implemented. The training programs established by LAHSA are well structured for a smooth operating process with the ability to adjust as new techniques and technology become available. Issuing service contracts over a three-year period allows service providers to properly provide the increased service levels needed to reach a solution to the expanding homelessness problem.
F5:
All steps for which the MHIA and LAHSA plan for coordination must be understood to properly evaluate the effectiveness of the increased funding Measure H provides. Measure H funding is expected to reduce the homeless count in all SPAs. MHIA and LAHSA are attempting to encourage all 88 incorporated cities in the County to be involved in coordinating their city staff with County and local nonprofit groups to better serve and possibly prevent local homelessness rather than just push the problem to others. Each homeless situation has a different cause with different solutions needed to rejoin the local community properly. There are specific paths and services that can be provided to help each individual or family re-join society. The CGJ has listed and described the objective of 13 steps below. Funding for some steps was not provided through LAHSA but is listed to provide a full 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 163 picture of the homeless services available. Those that are funded through LAHSA have the funding amount for the first two years in bold print to indicate the areas needing the most increase in service support. Outreach: E6 initiative allocation is $19 million in 2017-18 and $27 million for 2018- 19. This service is targeted at homeless groups to inform them of local services available for their specific needs. LAHSA maintains some homeless services staff to perform outreach needs as well as funding CES and LACoC for activities of outreach in all SPA’s. Many service providers with private funding perform this function. In addition to increased support to all the CES and LACoC agencies in each SPA, LAHSA now has staff with specific outreach duties. Many of these employees have experienced homelessness so they can more easily relate to various homeless conditions There are ten outreach teams, (two individuals per team), operating countywide. There is an outreach team assigned specifically to each of the eight SPA. There are also nine teams operating with County law enforcement. Another team is focused on Skid Row. LAHSA now hires ex-homeless to work in their outreach program. LAHSA conducted a job fair to increase their outreach staff which was open to homeless personnel. There were 80 homeless job candidates who attended and 20 candidates were hired. The experience of outreach like this in the past has shown it takes multiple contacts, as many as fifteen or twenty and up to a year in some cases, to motivate the chronically homeless, (persons homeless for a year or more), to demonstrate a willingness to enter the support system. Indications are that this new updated outreach process will encourage the chronically homeless to begin their pathway back to community life. The most recent homeless affected by economic condition are more willing and prepared to accept help from the various programs, once they learn that assistance is available. Avoid Homelessness: A5, pertaining to individuals, has $5.5 million budgeted in FY2017-18 and $11 million in FY2018-19. This new program is available to individuals who are about to be evicted because of their inability to pay rent or because of building demolition. Another initiative added to LAHSA budget is A1, pertaining to families, which provides $3 million in FY2017-18 and $6 million in FY2018-19 for preventing families from becoming homeless. LAHSA contracts out to those service providers qualified to negotiate with landlords, property owners of apartments or motels with vacancies, to accept rent support payments from government agencies. A similar program has been available through HUD to assist a family in paying for housing while they re-establish their ability to be self-supporting. Most individuals and families experiencing difficulty meeting rental obligations are not aware of the support available. Word must reach those in areas where developers are demolishing old housing so individuals and families can receive financial support to find temporary or permanent housing near their job or receive training for jobs available near where they live if they are required to move. Rapid Re-Housing (RRH): B3 of $57 million in FY2017-18 and $73 million in FY2018-19. This initiative is being expanded in LAHSA and has a budget increase. HUD has also put more financial support in their program initiative called “Housing First” to encourage a faster path to permanent housing. Rapid Re-Housing is a model to more quickly place families experiencing homelessness into permanent housing. Now rent and housing assistance, with case 164 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT management services is provided concurrently with moving into temporary or permanent housing depending on what is available. Coordinated Entry System (CES): LAHSA’s budget is $26 million in FY2017-18 expanding further to $35.5 million in FY2018-19. CES is sometimes called the “match.com” of homeless services. The (CES) now streamlines the process of finding housing for those who are homeless. The process is to house the most vulnerable people first. CES has a process for categorizing various populations: 1- Adult-headed households (non-veteran). This is further defined as individuals age 25 and older or non-veteran families with children under 18 with head of household age 25 and older. This also includes non-veteran youth-headed households defined as Transition Age Youth (TAY), that are individuals aged 18-25; unaccompanied minor age 18 or younger 2- non-veteran or families with children when adult head of household is age 18-25 3- Households with Veterans. This is further defined as individuals age 18 or older, or families with children under 18 and adult head of household age 18 or older. The handling of services provided varies if homelessness is chronic, (over 1 year), or recent, under 1 year. All categories defined above are assigned a case worker to assist in the pathway steps needed to reach permanent housing. If there is a mental or physical disability that is determined permanent there are specialized services and perhaps specific housing support needs that can be provided. If the category is determined to have a pathway to independent housing, either self-supporting or continued financial support needed, the pathway to permanent housing is coordinated by the assigned case worker who provides follow-up support services. LAHSA now has a Lead CES Agency in each of the 8 County SPA regions. Emergency Shelters: Measure H initiative E8 has provided LAHSA an increase in funding of $56 million in FY2017-18, plus $69.9 million in FY2018-19. There are various shelter systems and emergency shelters provided to meet specific needs. The HEARTH Act of 2009, (Homeless Emergency Assistance and Rapid Transition to Housing) revised the McKinney-Vento Homeless Act put into effect in 1987. The HUD Emergency Grant System was revised to Emergency Solutions Base Grants. The changes were to improve the number of all shelter categories, by increasing funding needed for assistance in shelters, temporary assistance to prevent becoming homeless. FEMA funds emergency shelters to provide: A Temporary Winter shelters open only during expected periods of inclement weather B Permanent emergency shelter open year round providing temporary stays up to 3 months C Adult shelter for specific emergencies such as female abuse with specific stay limits D Short term stabilization shelter while seeking permanent supportive housing There are many small temporary shelters operating throughout the County. Fifteen are operating in Long Beach alone. The County has prepared a complete winter shelter list for all 8 SPA with instructions where to check in for transportation and leave personal belongings. They are transported back to pick up belongings. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 165 6 Mobile Hygiene and Safe Parking. As a result of successful pilot programs on hygiene and safe parking programs the following support services are now being established. LAHSA has issued an RFP for safe overnight parking with security and hygiene facilities for those experiencing homelessness that own a properly registered car and have a current driver’s license. These locations have outreach personnel to assist the individual or family to begin the necessary steps on the pathway back to normal community life. There is a pilot program in the City of Los Angeles skid row area which has three trailers to house up to sixty people in a parking lot on Alameda and Arcadia Streets. The site serves only as a crisis way station. Other trailers serve as a shower and laundry station with restrooms. Another trailer serves as a location for caseworkers to offer assistance to homeless individuals and to give them encouragement. The following notice provides details for the Safe Parking process. Access Centers: E14 has $5 million budget for FY 2017-18 and $19 million for FY 2018-19. Drop-in centers have the potential to facilitate engagement of homeless into treatment and back into the mainstream. Access Centers in local communities can offer specific services or recreational activities to families and individuals with their own specific mission. These centers are funded by local nonprofit support groups and can make proposals to LAHSA for specific requirements LAHSA has identified in their area of service. LAHSA is now having 166 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT outreach personnel staff and operate an information center in SPA 4 to guide those looking for shelter, food and hygiene services. Drop in day centers are provided where adults and youth can get off the street for a safe haven. In some areas homeless have sought the public libraries to read the local papers or other items of interest in a safe environment. Any area available should be used to inform both the city residents as well as homeless where the locations are where they can obtain assistance. Exhibit 9 is a sample of handouts explaining SPA4’s new programs staffed by volunteers. Exhibit 9 HOMELESS HELP DESK We are here to assist you in locating Emergency Housing with Food & Hygiene Services 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 167 8 Crisis Bridge: B7 Budget of $13 million for FY 2017-18 and $25.3 million for FY 2018-19. This is a shelter support system providing temporary full housing support for 90 to 180 days while clients are waiting for permanent housing. This was part of the HUD Support Program to provide partial or full rent support to individuals and families to re-enter community life. LAHSA has additional funding under the Measure H Initiative, B7, to provide a safe supportive 24-hour residence to individuals or families while they are assisted as quickly as possible into permanent housing. Sometimes the program is referred to as reserved crisis housing. The client must be referred by a CES Housing Matcher or CES Housing Navigation. Clients must have a priority score which is coordinated by the local CoC. Disability support. This necessary assistance has been provided through various Federal Government programs. The VA has expanded the technology in assisting wounded veterans in entering normal life in their community. Other agencies and hospitals have large private funding to address this need. LAHSA Measure H initiative program does not participate in this service but has awareness of the available service so those needing support can be properly directed. Medical Support. This necessary assistance like disability support is not part of the increased funding of the Measure H initiative program but is a very necessary part of assisting homeless individuals to get the necessary psychiatric and medical support needed. Those operating with Outreach Programs must be familiar with the local services available to guide a homeless person needing medical help. There is a large percent of those in homeless situations because of psychiatric or other medical needs. Drug and Alcohol Rehab program may qualify for Measure H funding if tied to one of the various shelter programs that are funded through LAHSA support services. There are residential rehab programs. There are various programs listed on both the County Department of Health Services (DHS) and the County Department of Mental Health (DMH). Transition Housing. Programs are now structured to reach permanent supportive housing as quickly as possible. Halfway House is also another term used. The normal length varies from 6 months to 2 years. In some cases, residents are required to pay up to 30% of their monthly income toward the monthly rent cost. Any emergency shelter housing that allows their clients to stay beyond 6 months is also classified in this category. The funding is supported by HUD Housing First program. Measure H funds are also provided through DPSS and DCFS plus HACoLA. Job Training. This is one of the final steps to develop the ability for homeless individuals to support themselves in permanent housing. The importance of this step is critical for a person to move off the welfare rolls into full independent support and self-esteem in the community. Unfortunately, HUD has withdrawn funding support for this step in their focus on housing first to rapidly move a person or family into permanent housing with financial support from the federal government. Without proper job training the person will continue to need government subsidies. There are various Job Training programs with nonprofit firms that are quite effective. An example of job seeking assistance in Long Beach is a nonprofit firm that coordinates a program in Long Beach. An office is maintained in the Long Beach Multi Service facility to 168 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT coordinate closely with case workers to learn when a client may be ready for job training. The job trainer provides a 2-week continuous training and motivation program to assist individuals to try entering the job market. Once the trainer believes they are ready, another person on the job support team, teaches resume writing and trains in computer use for writing of resume. Then they arrange for interviews for positions which the person may be qualified. The normal step is to begin with part time employment so that person can take specific training courses for the job and get accustomed to the requirements of being a proper employee. Housing subsidy is provided until the person becomes self-sufficient. Permanent self-supportive housing. This is the final goal; however, medical or physical disabilities may require continued government support. Under specific programs of continuous support, the financial support program varies from three to five years with residents required to pay 30% of their income and subsidized housing is provided by federal programs. In some cases, supportive housing is needed because of age, disability, substance abuse, mental illness. Separate programs serve all these needs and require continued case worker support. Some may have a short path and may immediately move into permanent housing with temporary financial support with the Housing First HUD program. The longer a person is homeless the longer the path needed to bring them into participation in local community life.
F6:
The physical environment of an animal shelter is a key ingredient in the effect on the animals, the public looking to adopt, and the staff that cares for the animals. Design is important in helping to reduce the animal population in shelters. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 131 The Cat Adoption Area at Palmdale Why Can’t a Dog Be Just a Dog? A study done by researchers in Florida found that “self-identified experts (shelter staff, trainers, veterinarians and others) correctly identified a prominent breed only 27 percent of the time.20 Random breeding results in a population of mixed breed dogs, creating a wide range of behavioral predispositions. For that reason, the ASPCA believes it is important to evaluate and treat each dog, no matter its breed, as an individual. The only apparent conflict with the breed- neutral approach could be a liability issue with certain breeds such as Doberman pinschers, pit bulls, mastiffs, etc. Pet liability insurance is available to protect pet owners, if necessary. If a dog is designated as one of these “insurance restricted” breeds, a DNA test by a veterinarian may be able to counter that designation.21
F7:
Attempts at breed identification on shelter cage cards have resulted in lower adoption rates for all dogs,22 not just for the controversial issue regarding pit bulls. Less than 3% of shelter dogs are purebred23therefore the majority of dogs in shelters are mixed breed. Studies indicate that guessing the parentage of these dogs has consistently been incorrect.24 20 Finch, Liz, “A Rose by Any Other Name”, Best Friends magazine, March/April, 2018, pp. 28-32. Study by Maddie’s Shelter Medicine Program, University of Florida, Gainesville . Ibid. Wynne, Dr. Clive, PhD, animal behaviorist, “Do Dogs Think?”, lecture at Amnnenberg PetSpace, Los Angeles, 1/20/2018 23 Ibid. Ibid. 132 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Mixed Breed Kennel Identification Card - The breed designation is often a guess by shelter personnel. Most dogs are mixed breed and studies have shown that not identifying a specific breed increases adoption rates.25 Meet and Greet at the Shelters The confining nature of the shelter fails to provide the opportunity for animals to become more relaxed and able to exhibit calm friendly behavior, which affects their adoptability. In each case, the simple use of treats by staff and volunteers can train a shelter dog to behave in a more welcoming manner to those approaching the cages. It is also important to help socialize them. For volunteers and shelter staff to spend time in a more pleasant and less threatening environment improves the chances of an adoption.26
F8:
Behaviorists have identified three areas to increase adoptability in dogs: 1) The concept of play and selection of a toy which demonstrates a dog’s willingness to interact with potential adoptees. 2) Exhibiting a closeness or bond with the potential adopter, where the dog chooses to remain next to the adopter when in outdoor areas. 3) The interest a dog will show when a potential adopter approaches the animal. Ibid. Ibid. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 133 Play Yard where potential adopters get acquainted - Setting aside an area for potential adoptees to interact with a shelter animal improves their chances for adoption. Behaviorists have been able to better socialize these animals when they are not kept in the cages all day and night. Shelter Staff It is unfair to demonize a shelter or employee because of the unrealistic goal of “No Kill”, which is actually considered to be a kill ratio of 10% or less. Many individuals and groups seeking to protect all animals go as far as death threats and harassment on social media; actions which are inappropriate and counterproductive. Shelters play a critical role in helping residents kennel their animals during a disaster. As an example, when members of this CGJ inspected the DAS East Valley shelter, it was a week after the Creek fire. These city workers helped shelter dogs, cats, horses and livestock during the emergency.
F9:
People who operate these shelters have proven to be caring individuals and seek alternatives to euthanasia whenever possible. 134 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Examining the Animal Management Software DAS and DACC still use the same aging computer system, Chameleon Beach Software. It was one of the first software products in the marketplace designed for animal-related operations, and according to their website27 it has been on the market for three decades. Both DAS and DACC maintain their own separate databases and the systems are therefore isolated from each other. DAS and DACC have similar complaints concerning the state of their technology, which may negatively impact the overall effectiveness of their “no kill” efforts. This CGJ has been told that there is a “Wish List” to update the software: to make it more agile, responsive and provide better information sooner, to improve collections, shelter operations, and to help management decisions. Though each user’s individual change request for a new updated module may not survive the cost/benefit analysis that normally must justify the expenditure, the 15-20 year old system is inadequate and needs to be upgraded or replaced. A robust, well designed, modern implementation of information systems for both the city and the county for their animal services is an infrastructure investment that is warranted to reduce the number of animals euthanized. Not only could it provide managers with the information to manage shelters and more effectively allocate resources but also provide professionals in the field with good data to find new techniques and policies for animal control. In 2016, the County Auditor- Controller completed a review of DACC’s revenue and collections operations.28 Findings included careless entering of revenue collections by field officers, manual receipts not reconciled to Chameleon, control logs not maintained, receipts not accounted for, lax supervisory reviews of daily manual receipts, etc. Other instances occurred in the billing/cashier department, e.g. unlocked cash drawers, mailboxes that receive payments were not secured and these payments were not noted and not reconciled into Chameleon, cashier’s personal items being kept in cash drawers and signed credit card receipts not secured but left out in the open on the employee’s desk. Recommendations at the time were to address all of these issues. In a discussion with a County senior official, we were told that the Department continues to deal with issues of improper and erroneous collections received and that some areas in the Department were not utilizing the available “modules” in Chameleon to alleviate the problem.
F10:
Lost licensing revenue is, in part, the result of both an inadequate computerized management system, weak controls, and uneven compliance to procedures.29 Licensing The first dog licenses were sold in Los Angeles City in 1872 and cost $1.50 for males and $3.00 for females. By the turn of the century, inspectors were going door to door collecting the now hefty sum of a $2.00 license fee and levying fines on any unlicensed animals. Much revenue was brought into the city, though drastic action was taken to eliminate the strays. It is estimated that over those several years, about 5,000 dogs were collected and approximately 4,000 were destroyed.30 27 https://chameleonbeach.com/products/chameleon 28 County of Los Angeles Department of Auditor-Controller, Revenue and Collections Review, 2/1/2016 29 Meeting with senior official at LA City Animal Services 30 Supra, see note 5 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 135 In 2003, the Los Angeles County Department of Auditor-Controller reviewed the Department’s procedures and practices for collecting animal license fees and penalties.31 At that time, the County used a contractor to mail approximately 300,000 renewal notices and collected $7.9 million annually. That review addressed some shortcomings with the management reporting systems and made recommendations. The addressed shortcomings were especially related to license billing and collections. The report made recommendations, but the CGJ found some areas of implementation still lacking e.g., the Chameleon system was to be replaced because it failed to provide adequate reports to management. Most billing and collection monitoring was only being used to address renewals due annually, but there was no feasible way to identify and monitor new pet owners whose pets were not yet licensed. Unfortunately, the Downey shelter still used a paper monitoring system. We also were told compliance varies by locale as well, e.g., North Los Angeles County is less compliant with licensing, spaying and neutering requirements, etc. than the South County.32 In 2014, DAS was directed to expand its licensing through veterinarian notifications.33 The results of their routine follow ups on non-responses have not been effective in generating revenue or creating a comprehensive database for collections and records on the animal population.
F11:
The City believes that less than 30% of dogs and significantly fewer cats are currently licensed. Rabies Vaccination Reporting The Los Angeles County code, specifically Title 10.20.25034, mandates veterinarians to report rabies vaccinations to the proper jurisdictional agency’s Director. The City of Los Angeles has a similar statute in Los Angeles Municipal Code 53.53.35
F12:
The Los Angeles City and Los Angeles County veterinary industry is required to forward notice of all rabies vaccinations to the Director of local Animal Control Services and the Director of DACC respectively; this is not being done. A Disconnect The initially stated reason for non-compliance by vets and their staff was ignorance of the law. We were told by the veterinary offices we surveyed that they were required to report only instances of dog bites or communicable diseases and that rabies vaccination information and certificates were given only to the pet owner, who would then be responsible for obtaining the pet’s license. One veterinarian told us that many owners would protest any reporting of rabies vaccination information to the appropriate agency, mainly to avoid “being on the books” and thus being responsible for the cost of a license and yearly renewals. If a veterinarian insisted on 31 Los Angeles County Auditor- Controller, Animal License Fee Collection Review, 2003 32 Meeting with senior official at DACC 33 Memo from Brenda Barnette to City Council, c/o Office of the City Clerk, dated 8/13/14. Council File: 14-0600-S7 34 Los Angeles County Code §10.20.250 covering the unincorporated territory, plus 47 contracted cities minus those cities that may have their own regulations. Los Angeles Municipal Code, Chapter 5, Article 3, Section 53.53 136 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT reporting, the client might move on to a veterinarian who would be less willing to comply with the law and therefore, a customer would be lost.
F13:
A random sampling of 5 private veterinarians in downtown Los Angeles, 2 in the Los Angeles County Area, and a phone conversation with a California veterinary advocacy organization found that the percentage of veterinarians complying with this mandate was zero. Benefits of Compliance with Rabies Vaccination Reporting The CGJ found both DAS and DACC services such as licensing, rabies vaccination reporting, revenue collection, policy implementation and compliance with regulations need improvement. This would address two constraints against better animal service operations: lack of funding and understaffing. Compliance would allow for easy follow up of services: licensing, micro-chipping, spay and neutering of animals four months or older, and even allowing veterinarians to complete license applications. In fact, a city ordinance authorizes veterinarians to sell licenses.37 The issue of jurisdictions between City and County animal services can easily be resolved by contacting the enforcement agency. If the DACC and DAS identified unlicensed dogs and their owners by cross-checking the data on the canine vaccination reports, this would be an opportunity for increased revenue. The County would now have a record of these owners. The statistics being reported now appear to be coming mostly from veterinarians employed by or contracted to shelters.
F14:
If the existing Chameleon data system, which the County launched 15 years ago and the City 20 years ago, was able to process the data from private Los Angeles veterinarians, the licensing and oversight of animal care and control would be considerably improved. It would also enable necessary follow-up for issues of population control with spay and neuter programs and increase the Return to Owner (RTO) statistics of pets because more pets would be micro-chipped. Cat Euthanasia “From our perspective, the cat has everything figured out. Our role really is managing their ability to reproduce.” - John Cicirelli, Director of San Jose Animal Care and Services The life of the feral cat is full of risks that impact their lives and their euthanasia rate has remained high. In Los Angeles County, it approaches 60%.38 These numbers are on the rise and require active participation from all community partners; government, non-profit coalitions, and the public. A program for licensing cats may present an opportunity to help control the 36Phone survey taken by CGJ, March, 2018 37 Los Angeles Municipal Code 53.15.4 (Title and Section Amended by Ord. No. 18.882, Eff. 10/31/11) 38 “End of Year Message”, Los Angeles Department of Animal Control, informational booklet 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 137 increasing number of cats being euthanized. The City of Los Angeles licenses cats only on a voluntary basis. An overwhelming animal control burden has fallen on local governments to implement measures to control free roaming cat populations. This has a significant impact on public and animal health, due to the various diseases which are transmittable between animals and from animals to people.
F15:
There is a higher euthanasia rate among cats compared with dogs. Only Los Angeles County has begun the mandatory process of licensing cats.39 TNR is Halted in the City of Los Angeles Trap Neuter Release (TNR) is a program advocated by those seeking to reduce cat populations through the neutering and spaying of feral or community cats. “In 2008 … a lawsuit was filed against the City of Los Angeles demanding that it refrain from implementing TNR until a review of environmental implications could be completed.”40 This was followed in 2010 by an injunction filed against the City over its TNR program. This injunction has tied the hands of DAS and many other organizations from the practice to release spayed and neutered cats back to their prior environment. Our interviews with shelter personnel seem to indicate that all other shelters are waiting for the resolution of the injunction. Feral and Community Cats Area - Shelters have few options other than euthanasia in dealing with feral, stray or unsocialized cats. The TNR conflict arises over the issues of animal welfare, public health and the impact on the indigenous species (birds, reptiles, other mammals, etc.). This injunctive climate has limited all 39 Los Angeles County Code §10.20.030 40 The Urban Wildlands Group, Inc. v. City of Los Angeles, et al 138 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT animal control agencies from efforts to reduce the feral and community cat population for fear of legal action. City and County shelters are given no effective option other than to euthanize the increasing “stray” cat population in the community. It is essential to resolve this issue and allow for the gradual reduction of this portion of the feline population thru the Trap Neuter “Return” Program and help eliminate the need to kill otherwise healthy cats. Although a controversial issue, veterinarian Dr. Julie Levy was optimistic of its success in a city like Los Angeles. Her 2003 study “found that a long-term TNR program, coupled with aggressive adoption, can help reduce stray and feral cat populations. However, TNR can fail as people begin abandoning unsterilized cats in the colonies.”41 Though her study took place at the University of Florida, she noted, “Southern California is a lot like Florida in that both share a mild climate that facilitates successful cat reproduction, sensitive wildlife areas, rapid human population growth and development and a growing public commitment to environmental protection and animal welfare.”42 Community cats may be cared for by an individual who licenses and accepts responsibility for the cats and acts as a caretaker for the colony. People for the Ethical Treatment of Animals (PETA), has suggested establishing a Return program that would require a cat habitat which would contain the cat population and provide for routine immunization, care and feeding. Los Angeles County Department of Public Health (LACDPH) needs to be more involved in addressing this and other public health issues.
F16:
An existing injunction against DAS’ Trap, Neuter, and Release program would require an expensive ($1,300,000) Environmental Impact Report be completed by the City of Los Angeles, $400,000 of which still remains to be funded before the injunction can be lifted.43 41 Fox, Hayley, “Cat Fight”, LA Weekly, April 3-9, 2015, 42 Ibid. p.14 43 Interview with City senior manager 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 139 The Euthanasia Room with disposal barrel for cats at a County shelter - In every shelter there is a euthanasia room, the final stop for animals that are not claimed, adopted, or fostered. Hiring and Staffing “We are committed to the belief that no one organization…can achieve the goal of saving the lives of healthy and treatable animals alone, that we need one another, and that the only solution is to work together.” -“Guiding Principles”, The Asilomar Accords County shelters are understaffed and the problem seems to be exacerbated by the long hiring process, sometimes as long as six months. Sworn field officers are vetted almost as comprehensively as police officers and there appears to be no consistent process of certification. This hiring delay is consistent with most County Departments and there does not appear to be any plan to initiate a fast-track system to fill vacancies when they occur. This CGJ were told a training module is in development in the County.44 City shelters fare no better as they are losing 2-3 employees each month due to termination, transfers or retirement. They would need 20-30 new hires per year just to maintain current levels of operation with more hires needed for optimum operation.45
F17:
The County’s hiring process needs to be addressed. It is typically slow in filling vacancies and seems unable to streamline the process, to maintain a continuous flow of needed trained employees. Interview with senior County manager 45 Interview with City Animal Services middle manager 140 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Shelter Animals and Juvenile Probation Camps A popular and effective program at the Challenger Probation Camp allowed the youth there to “intern” at the adjacent County animal shelter in Lancaster. Juveniles worked with animals which helped to improve the behavior of both. The probationers learned the responsibilities of caring for a dependent animal and the animals became socialized and better prepared for adoption. Unfortunately, the program was abruptly canceled for reasons unclear. However, the CGJ found that management at the Camp Scott facility for girls indicated they might be open to a similar program.46
F18:
It is important that there be opportunities for initial and ongoing training and the development of internships. Contract Cities – “The Past” “DACC’s operating Budget is not fully offset by contract city revenue and general fund allocation.”47 DACC provides various animal control services for its 47 contract cities. The contracts with each city note the specific types of services that DACC will provide, the rates to be charged, and at the end of each month, DACC sends an invoice. The Auditor-Controller Review of 2014 noted that in the majority of cases (84%), services to the cities were rendered before contracts were signed and in 16% of contracts, signatures were not dated causing an inability to determine “if the contracts were fully executed timely” (sic). The review also noted problems with billing errors, no documentation of supervisory review, and “insufficient supporting documentation in calculating the quantities of services provided to the contract cities based on Chameleon reports.”
F19:
The County has indicated that there is a deficit in the amount collected from contract cities and the cost for providing services. Phone interview with camp manager 47 Interview with Senior DACC official 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 141 Contract Cities – “The Future” Although now apparently corrected, there were no initial charges for medical services (including intake evaluations) and DACC anticipated an average holding period of five days, later determined to be ten days, thereby doubling that cost. A reevaluation by DACC of Los Angeles County’s current contracts with contract cities identified the problem and they are now more realistically allocating costs for services. DACC’s expected result will be an additional $10 million/per year, after a gradual yearly increase during the next six years. Although this benefits the contract cities, it prolongs a significant deficit for the County. CGJ’s investigation noted that there are still problems in the County receiving the optimum amount of revenue from some of these contract cities for services rendered. This matter is to be addressed by the County in the near future. These contracts are pending renewal for 2018.
F20:
As a result of prior miscalculation of costs, there will be an increase to the Contract over the next 6 years. Communication Breakdown The CGJ tried unsuccessfully to access low cost spaying and neutering services for the public, specifically the County contracted service, SPAY4LA. This is a fully equipped mobile spay and neuter clinic that serves certain areas of LA County, e.g., Bell, Cudahy, Inglewood and 44 other contracted cities. In March, the CGJ attempted to call their listed phone number (1-888-772- 9452), and a recording led us to another number (1-800-772-9452) which was called and which led back to the first number. We reported this problem to County senior management and the phone tree system has since been changed. Unfortunately, the system now leads residents to City animal services or to County animal services in Long Beach. The latter number may be a costly call for the low-income residents for whom this service was intended. A message was left at the Long Beach number but so far, there has been no response. The concern is that even when the public is prepared to do the right thing, like spaying and neutering their pets to help decrease the euthanasia rate, they cannot rely on a system which goes “round and round” in an endless loop. Furthermore, even when the matter is supposedly corrected, there is no timely response to a resident’s message. This may be a single instance of a “glitch”, however, we fear the inefficiency of communications between governments, non-profit coalitions, and the public may be more symptomatic. We asked City and County if they share information and meet regularly to compare best practices. They do not seem to communicate enough for the benefit of both agencies and the public.
F21:
The public wants to talk with a person, or be able to leave a message and have timely follow up. If a telephone number fails to connect with the services desired, people will hang up and not take needed action. 142 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT
Additional Recommendations
9
Not linked to specific findings.
R1:
(A1) New initiative for homeless prevention for families -LAHSA new budget $3 million
R2:
(A5) New initiative for homeless prevention for individuals-LAHSA new budget $5.5 million
R3:
(B3) Expansion of rapid re-housing program - LAHSA budget increase $57 million
R4:
(B7) Expand “Interim Bridge/Bridge Housing”- LAHSA budget increase $13 million
R5:
(E6) Expansion of LA Countywide Outreach Program - LAHSA budget increase $19 million
R6:
(E7) Improve Coordinated Entry system for Homeless - LAHSA budget increase $26 million
R7:
(E8) Enhance Emergency/Winter Shelter Program - LAHSA budget increase $56 million
R8:
(E14) Improve Transition Age Youth (TAY) services, age 18 through 24 - LAHSA budget increase $5 million The CGJ investigation identified potential improvements that can be made to LAHSA’s implementation of Measure H. The public needs to be informed of the causes and workable solutions for homelessness. The community’s “quality of life” must be taken into consideration and is the primary responsibility of each community’s key elected and appointed officials throughout the County. Addressing the needs of the homeless in a humane way is also the responsibility of City leadership and residents in every community. This investigation will provide a more detailed explanation for residents, neighborhood organizations and elected and appointed officials so they can better understand why they should participate in a viable solution which includes a quality of life for all. 148 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT
R15-20:
year old system is inadequate and needs to be upgraded or replaced. A robust, well designed, modern implementation of information systems for both the city and the county for their animal services is an infrastructure investment that is warranted to reduce the number of animals euthanized. Not only could it provide managers with the information to manage shelters and more effectively allocate resources but also provide professionals in the field with good data to find new techniques and policies for animal control. In 2016, the County Auditor- Controller completed a review of DACC’s revenue and collections operations.28 Findings included careless entering of revenue collections by field officers, manual receipts not reconciled to Chameleon, control logs not maintained, receipts not accounted for, lax supervisory reviews of daily manual receipts, etc. Other instances occurred in the billing/cashier department, e.g. unlocked cash drawers, mailboxes that receive payments were not secured and these payments were not noted and not reconciled into Chameleon, cashier’s personal items being kept in cash drawers and signed credit card receipts not secured but left out in the open on the employee’s desk. Recommendations at the time were to address all of these issues. In a discussion with a County senior official, we were told that the Department continues to deal with issues of improper and erroneous collections received and that some areas in the Department were not utilizing the available “modules” in Chameleon to alleviate the problem. Finding 10: Lost licensing revenue is, in part, the result of both an inadequate computerized management system, weak controls, and uneven compliance to procedures.29 Licensing The first dog licenses were sold in Los Angeles City in 1872 and cost $1.50 for males and $3.00 for females. By the turn of the century, inspectors were going door to door collecting the now hefty sum of a $2.00 license fee and levying fines on any unlicensed animals. Much revenue was brought into the city, though drastic action was taken to eliminate the strays. It is estimated that over those several years, about 5,000 dogs were collected and approximately 4,000 were destroyed.30 27 https://chameleonbeach.com/products/chameleon 28 County of Los Angeles Department of Auditor-Controller, Revenue and Collections Review, 2/1/2016 29 Meeting with senior official at LA City Animal Services 30 Supra, see note 5 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 135
Findings & Recommendations
8 findings
F8:
Permanent Supportive Housing provides all support services within a campus setting. Century Housing Villages at Cabrillo is a 27 acre community of living quarters for veterans plus other individuals and families within this Long Beach community. Long Beach obtained this unused property previously used by the Navy for this project. Property title was transferred to Long Beach in 1991 with the understanding that part of the property would be transferred to Century Housing for a development to assist the homeless. The property was acquired by Century Housing in 2000 to be developed into a model public-private partnership. Information is available on the web at www.centuryhousing.org. Century Housing describes themselves as a mission-driven lender, financing multi-family housing throughout` California with acquisition, construction, and permanent housing loans. Century is a California-based private, nonprofit lender and developer building affordable housing targeting low and moderate income wage earners. Century Housing has financed more than 25,000 affordable homes throughout California. In 1989 Century Housing was restructured to become a lender to provide a more efficient development process and to maximize leveraging opportunities with public and private lending sources. The portion of the Long Beach property that passed to Century Housing has been developed in stages to provide housing for homeless persons, including emergency shelters, transitional housing, a substance abuse recovery program operated by the U.S. Department of Veterans Affairs, and permanent supportive housing for households with family members who are disabled. Services are provided by 20 public and private health and employment readiness organizations. In 2016 the property housed over 1,000 previously homeless men, women and children, over half of whom are veterans. More information is available for those interested in private/public partnership involving military or government owned property in the County. To increase capacity for homeless housing at Villages at Cabrillo a new multifamily apartment unit was opened February 2018. There is a Metro Long Beach bus stop within the Village to accommodate transportation throughout Long Beach. The following Exhibits 12 and 13 provide information and photos of Villages at Cabrillo that may be of interest to City Mayors and Mangers, within the County, who may be considering establishing homeless programs in their city. 176 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 12 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 177 Exhibit 13 178 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT B. The Grant Making Process A fundamental role of LAHSA is to serve as a “public foundation” for addressing homeless issues in the County. While LAHSA does provide some direct services through its outreach function, it’s primary function is to provide grant funding to community-based organizations that provide the actual services to the homeless population.
F9:
The Grant Making process has improved since the passage of Measure H, but smaller community-based organizations still face challenges in qualifying and applying for funding. Request for Statement of Qualifications Process To fulfill its role as a grantor of funding for homeless services, LAHSA has created a two-step process for soliciting community-based organizations to request funding. The first step is the Request for Statement of Qualifications (RFSQ) process, for the purpose of the RFSQ is to require community-based organizations to “pre-qualify” to bid for program funding under Measure H. The pre-qualification process does not apply to service providers who have existing contracts with LAHSA. The idea behind the RFSQ was to separate the threshold review process that was previously contained within the prior procurement processes thereby allowing agencies who are qualified to submit bids without having to repeat having to be qualified for each new procurement. The RFSQ is the tool used by LASHA to evaluate if submitting agency applicants “possess established threshold levels of 1) Financial Stability, 2) Organizational Experience, Administrative and Fiscal Capacity, 3) Organizational Capacity, and 4) Organizational Experience providing Supportive Services / Housing to homeless persons.” Once qualified, an applicant is recertified on an annual basis, but does not go through the RFSQ process again. Service providers were generally positive about the new RFSQ process, although most of those interviewed had previously done work with LAHSA and did not have to go through the process. Service providers liked the ability to avoid being disqualified from a project based on procedural issues that could be easily rectified, but would then require them to wait an entire year to re-bid on the project. Agencies were also complementary on the assistance offered to them in working through pre-qualification issues. The RFSQ also has the benefit of streamlining the Request for Proposal process by allowing staff to focus solely on the programmatic request and not have to evaluate or re-evaluate an organization’s administrative qualifications to perform the contract. Request for Proposal Process In order to fund the eight Initiatives designated by the County for implementation, LAHSA undergoes a Request for Proposal (RFP) process. The RFP’s are developed by individual strategy and request proposals for community-based organizations to provide services within SPAs. The RFPs define the nature of the services to be provided and the amount of funding dedicated to provide those services within the SPA. The entire process can take six months or longer depending on the scope and complexity of the funding strategy. For example, for the Capital Costs for Crisis and Bridge Housing RFP (Initiative 8), the RFP was officially released in December of 2017 with proposals due in March 2018, approvals in April 2018 with a contract start date of July 2018. Proposers were provided opportunities to attend a proposer’s conference where the RFP and scope of work are reviewed in detail and go through a question and answer period to allow for further clarifications, if necessary. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 179 Service providers were generally positive about the RFP process. The primary concern expressed by multiple service providers was that the contracting process, following the award, often took longer than anticipated which made efforts to staff-up or acquire new space to meet the new demands of the contract risky. At least two service providers indicated that they were uncomfortable making financial commitments in preparation for contract implementation until they had a signed agreement. Another concern raised by service providers was that despite an improved RFSQ and RFP process, it can still be difficult for smaller service providers to qualify and bid for funding for projects. This is not an uncommon problem for grant making organizations and LAHSA has taken the following steps to try and make the process more viable for small to medium-sized agencies: • LAHSA provides support to agencies in the preparation for the RFSQ process such as working with agencies to identify different means to demonstrate fiscal stability. • LAHSA works with agencies to provide training to new staff and opportunities for some capacity building funding are available as well. • LAHSA agreed to lower its administrative cost ratio to 8% to allow agencies to raise their administrative ratio to 12%. This is a significant help to smaller and medium sized agencies where they do not necessarily have large economies of scale to help keep administrative costs at or below the traditional 10%. • LAHSA is working to offer three-year funding commitments, instead of the traditional one year, which give organizations a longer planning and implementation horizon and a greater level of confidence that investments in staffing, equipment and space are warranted. The procurement process, however, is still time consuming and requires a level of administrative and fiscal sophistication that some smaller nonprofits are not capable of meeting. In public grant making there is a delicate balance between safeguarding public funds by ensuring that organizations have the administrative, financial and programmatic capacity to carry out the desired scope of work and the desire to fund agencies deeply embedded within the community which may have a unique ability to reach the target population. C. Performance Monitoring and Support of Community-Based Providers Since the passage of Measure H, LAHSA has restructured its organization and developed new capacity building initiatives to improve its ability to monitor grantee compliance and improve the ability of their grantees to provide effective services.
F10:
LAHSA has developed a comprehensive fiscal and programmatic monitoring program of its service providers. As a pass-through funding entity, a critical function of LAHSA is to provide oversight and administration of contracts. LAHSA’s Fiscal Department is responsible for ensuring that its grantees comply with contractual requirements, including all federal, state and local regulations. The Compliance and Monitoring group performs routine site visits to grantee service providers to ensure that the fiscal and programmatic obligations of Measure H are being fulfilled. Annually, each grantee service provider is appraised using a Fiscal and Programmatic Risk Assessment Matrix to provide an objective evaluation of risk. Grantee service providers that are determined to be “high risk” are subject to annual site visits and monitoring. “Low” and 180 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT “Medium” risk providers are subject to bi-annual visits at LAHSA’s discretion. The following is an overview of the two types of Risk Assessments performed by the Compliance and Monitoring Group: • Fiscal Risk Assessment – The fiscal risk assessment involves an analysis of seven key risk factors. An agency’s performance is ranked using these factors which include: date of the last monitoring visit, timely submission of LAHSA reports, agency staffing capacity, quality and completeness of submitted reports, records retention practices, financial stability analysis and potentially other factors to be determined by the auditor on a case by case basis. • Programmatic Risk Assessment – The programmatic risk assessment is based upon an analysis of seven risk factors. Similar to the fiscal risk assessment, the risk factors are evaluated and the grantees risk level is ranked using the following categories: date of the last monitoring visit, documentation management standards, achievement of performance targets, staffing capacity to ensure programs are administered effectively, facility benchmarks and the existence of grievances or other problems that may have arisen over the course of the contract. The LAHSA agreements with service providers set forth the standards for determining compliance. All compliance audits are scheduled at least thirty days in advance. A list of documents to be reviewed is provided and an internal control questionnaire is to be filled out by the agency. Sample size standards have been set and the list of requested fiscal transactions to be reviewed is sent to the agency prior to the site visit. The fiscal audits are conducted in compliance with Office of Management and Budget A-110, A-122, A-133 and Generally Accepted Accounting Principles. At the conclusion of an audit, a preliminary report is prepared and provided to the agency for review in an exit conference. LAHSA staff then prepare a final Monitoring Report specifying the nature and scope of the review as well as any findings, recommendations and/or corrective actions to be taken by the agency. The grantee agency has thirty days from the final monitoring letter to respond to the report. If corrective actions are required, an agency must reply with its proposed corrective actions which are to be reviewed and responded to by the Monitoring and Compliance officer of LAHSA. Based on the nature of the corrective actions, a subsequent site visit may be scheduled to review the agency’s progress in achieving compliance. All previous findings are reviewed in the subsequent audit.
F11:
LAHSA has recently restructured its performance and contract management function and, while it is too early to provide a comprehensive assessment, some minor improvements may be warranted. In addition to formal risk assessments, each grantee service provider is assigned a representative from LAHSA’s Finance Department and the Performance Department. The responsibility of the Finance Department is to respond to questions related to invoicing and budgets. The Performance Department performs the day-to-day contract management function. The LAHSA assigned Performance Manager typically meets with a grantee service provider monthly. During those meetings, the manager reviews the grantee agency’s progress towards the achievement of key outcomes and helps determine whether there are any administrative and/or programmatic issues that need to be addressed. During the course of the year, if a Performance Manager determines that a service provider is having difficulty in any area of programmatic compliance, 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 181 they may take steps to implement corrective action on the part of the agency to avoid a potential finding in the annual compliance review. Overall, the structure of evaluating compliance is well designed. In interviews with service providers, an issue was raised by multiple providers. These providers were, at times, confused as to the role of the Performance Manager, particularly as it relates to the administration of the program budget. Where budget modifications are requested, grantee agencies submit those requests to the Finance Department and not the Performance Manager. It is important for the service providers to have a single point of contact for contract management. More importantly, the function of evaluating a budget modification should be a “program” issue in that the modification should be evaluated based on the impact the modification will have on the ability of the agency to provide efficient and effective services. This should, at least initially, be the role of the Performance Manager who is more familiar with the grantee agency’s programs and can better assess the need for a budget modification.
F12:
Some service providers are challenged to find qualified staff to implement their programs. The increase in program funding throughout the County for homeless services has created a significant demand on staff with experience in addressing issues for the homeless. One LAHSA staff person estimated that approximately 1,200 additional positions County-wide will be required within the homeless service sector to meet funding and program expectations. This demand has negatively impacted service providers who are struggling to address staffing needs and may not have the budget to fund salaries at the level of their public sector counterparts. Multiple service providers report losing experienced staff to LAHSA, County Department of Health Services, County Department of Public Social Services and other public agencies. Smaller- and medium-sized agencies even report losing staff to larger agencies. LAHSA has taken steps to assist agencies in addressing their staffing needs by holding job fairs where service providers can attend. The results of these job fairs, as reported by the service providers, has been mixed. The feedback suggests that while there has been some ability to recruit entry-level staff at these job fairs, identifying more experienced staff with the ability to have an immediate impact has been difficult.
F13:
LAHSA’s implementation of a County-wide training academy has the ability to impact the effectiveness and productivity of its service providers. The expansion of staff by service providers comes with the additional burden of hiring and training new staff. While none of the service providers indicated that they will be unable to meet new program funding and demands, the challenge to hire, train and retain quality staff is a significant concern moving forward. In order to help grantee service providers, in 2017 LAHSA entered into an agreement with Homeless Health Care Los Angeles to develop and implement a centralized training academy for LAHSA’s service providers. The objective of the trainings is to provide staff development opportunities for grantee service providers focused on three categories of staff: entry-level staff, mid-level direct service staff and supervisory staff. Implementation of the Training Academy began at the end of 2017 and should be fully operational by the middle of 2018. The Training Academy will offer three different types of formal training. Each curriculum offered includes 35 hours of training and participating staff receive a Certificate of Completion 182 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT upon graduation. The curricula focus is on implementing evidence-based practices for addressing the needs of the homeless population including training on practices such as trauma, informed care, cultural humility, housing first, harm reduction, motivational interviewing and critical time intervention. The curricula also addresses different strategies for working with diverse populations including the chronically homeless, families, transitional age youth, LGBTQ, persons with disabilities, domestic violence survivors, human trafficking survivors, the aging and elderly, incarceration and re-entry, and veterans. The following is a brief overview of the three curricula being offered in the next calendar year. Each of the training programs will be held multiple times and are expected to be provided regionally to assure that representatives from each SPA will be able to attend: • Curriculum I: Care Coordination and System Navigation – This training is intended for entry-level staff and staff with limited professional experience in working with the homeless population. This training will occur over a period of one-week with seven-hour classes each day. The focus of the classes will be on making staff familiar with the most current evidence-based practices in the field and will include topics on: the landscape of homelessness, evidence-based practices, boundaries and ethics, housing programs and the core functions of case management. • Curriculum II: Applied Care Coordination and Systems Navigation – This curriculum will be designed for direct service staff who have previous experience in working with the homeless population. This training will be less focused on lecture-time and more interactive with scenario-based training and exercises that can be done in the field between training sessions. Topics will be more focused on detailed evidence-based practices. Examples of topics may include HIPAA requirements, addressing physical and mental health issues including substance abuse and overdose prevention as well as more program focused knowledge related to housing and retention and case management. • Curriculum III: Supervisory Training for Homeless Service Providers – This course will be focused on staff transitioning into to supervisorial roles within their organizations. The course will be divided into three sections: leading people, managing work, and developing self and others. The objective is to prepare the trainees to assume new roles within their organizations managing others. All of the foregoing trainings will be provided by Homeless Health Care Los Angeles. In addition to the Training Academy, LAHSA will occasionally provide their own training focused on particular policies or practices developed by LAHSA. While the service providers interviewed were mostly positive about the Training Academy, a few interviewees expressed concern that the practical approaches advocated in the Training Academy may not represent the same approach taken by all service providers. Some of the larger service providers indicated that they already provide many of the types of training being done by the Training Academy and may not be as interested in sending their staff to programs that require a 35 hour commitment. Some suggested that they would be more likely to send staff to individual training sessions dedicated to topics relevant to their existing services if those were made available instead of extended formal trainings. Despite the foregoing concerns, the implementation of the Training Academy has the ability to have a positive, long-term impact on the homeless service sector within the County. The ability to offer service providers a “boot camp” for staff not previously experienced in the homeless 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 183 service sector will assist agencies who are struggling to find experienced staff and do not have the resources to provide their own training. Moreover, the more in-depth classes have the potential to provide a more consistent and evidence-based approach to providing certain types of services within the County.
F14:
LAHSA’s capacity building efforts are designed to be tailored based on the needs of individual service providers. In addition to providing training, LAHSA is committed to further assist service providers by offering a capacity building program. Capacity building is the process of strengthening the ability of service providers to perform their key administrative and programmatic functions. Measure H assigned funding to LAHSA to institute a capacity building program and LAHSA has leveraged that funding by partnering with United Way to assist in the development and implementation. In November of 2017, LAHSA released a Request for Bids (RFB) to request capacity building consulting services from the pool of consultants in the following categories: • Operational Management -- which includes financial management, IT services, HR, contract management, facilities management, policies and procedures, internal controls, risk management, communications and fundraising. • Leadership – including board composition & governance, organizational structure, succession planning, strategic planning and community engagement. • Program Administration – including data reporting, program evaluation and collaboration with partners. The goal of the RFB is to develop a pool of consultants that will be used on an as-needed basis to assist service providers. The basic structure of the capacity building program is two-fold. The first step in the program provides agencies up to $8,000 to conduct a needs assessment. The needs assessment is then used to evaluate what type of assistance the agency could use to improve the efficiency and/or effectiveness in providing homeless services. Based on the assessment, the grantee agencies may request capacity building assistance of up to $40,000 per project from LAHSA. For FY 2017/2018, LAHSA has allocated $2.8 million in capacity building funding with the hope of serving at least 50 service providers. Future budgets for capacity building will be $3 million annually.
F15:
Local communities need to recognize the urgent need to build new permanent supportive housing rather than burdening surrounding communities with their homeless population. The Long Beach Villages at Cabrillo is an impressive example of permanent supportive housing in a large multi support campus that in 2016 was housing over 1000 homeless families and individuals. The campus offers a complete range of homeless services provided by many nonprofit agencies that work on a collaborative basis. The campus includes versions of permanent supportive housing for specialized needs. The facilities include innovative incentives to help the former homeless to socialize in a normal community setting. For those businesses and homeowners’ associations throughout the County interested in learning more about how their city, businesses, and community associations can improve their community “quality of life” may want to request a tour of the Villages at Cabrillo facility to learn about 184 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT positive steps that help the homeless recover while also preventing the blight of homeless encampments in their neighborhoods. Exhibit 14 shows a photo sampling of the results of a positive community approach contrasted with what happens when the homeless situation is ignored. There is a new “EVERYONE IN” coalition to support the needs of the homeless in their own community. For more information, those interested can refer to LAHSA web site and look up various articles to learn how others are seeking solutions to homelessness issues in their own communities. Below is a summary of an article about a rally at Echo Park on March 9, 2018. “A coalition termed “EVERYONE IN” for homeless support was held at Echo Park on March 9, 2018. It was sponsored by the United Way of Greater Los Angeles and LAHSA. In attendance were many homeless service providers from all areas of LA County as well as leaders of various cities, business and community associations. Also attending were interested individual residents and businesses to learn how each could participate in providing assistance to homeless families and individuals in their pathway out of their homeless status. They learned what assistance was needed to reach supportive permanent housing, which also improves the quality of life for the residents and businesses. Financial support is being expanded dramatically through the Measure H program provided by the County. The goal of EVERYONE IN is to eliminate homelessness in the County within 10 years.” Support Services are being expanded dramatically through the Measure H program which has a goal to eliminate homelessness in the County within the next 10 years. Cities have been offered funds from the County to study the homeless problem in their own communities to determine how they can participate in the solution. Information on how local community associations of residents and businesses can participate in this “EVERYONE IN” coalition can be obtained by checking the LAHSA’s website at http//www.lahsa.org. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 185
Findings & Recommendations
8 findings
F8:
Permanent Supportive Housing provides all support services within a campus setting. Century Housing Villages at Cabrillo is a 27 acre community of living quarters for veterans plus other individuals and families within this Long Beach community. Long Beach obtained this unused property previously used by the Navy for this project. Property title was transferred to Long Beach in 1991 with the understanding that part of the property would be transferred to Century Housing for a development to assist the homeless. The property was acquired by Century Housing in 2000 to be developed into a model public-private partnership. Information is available on the web at www.centuryhousing.org. Century Housing describes themselves as a mission-driven lender, financing multi-family housing throughout` California with acquisition, construction, and permanent housing loans. Century is a California-based private, nonprofit lender and developer building affordable housing targeting low and moderate income wage earners. Century Housing has financed more than 25,000 affordable homes throughout California. In 1989 Century Housing was restructured to become a lender to provide a more efficient development process and to maximize leveraging opportunities with public and private lending sources. The portion of the Long Beach property that passed to Century Housing has been developed in stages to provide housing for homeless persons, including emergency shelters, transitional housing, a substance abuse recovery program operated by the U.S. Department of Veterans Affairs, and permanent supportive housing for households with family members who are disabled. Services are provided by 20 public and private health and employment readiness organizations. In 2016 the property housed over 1,000 previously homeless men, women and children, over half of whom are veterans. More information is available for those interested in private/public partnership involving military or government owned property in the County. To increase capacity for homeless housing at Villages at Cabrillo a new multifamily apartment unit was opened February 2018. There is a Metro Long Beach bus stop within the Village to accommodate transportation throughout Long Beach. The following Exhibits 12 and 13 provide information and photos of Villages at Cabrillo that may be of interest to City Mayors and Mangers, within the County, who may be considering establishing homeless programs in their city. 176 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 12 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 177 Exhibit 13 178 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT B. The Grant Making Process A fundamental role of LAHSA is to serve as a “public foundation” for addressing homeless issues in the County. While LAHSA does provide some direct services through its outreach function, it’s primary function is to provide grant funding to community-based organizations that provide the actual services to the homeless population.
F9:
The Grant Making process has improved since the passage of Measure H, but smaller community-based organizations still face challenges in qualifying and applying for funding. Request for Statement of Qualifications Process To fulfill its role as a grantor of funding for homeless services, LAHSA has created a two-step process for soliciting community-based organizations to request funding. The first step is the Request for Statement of Qualifications (RFSQ) process, for the purpose of the RFSQ is to require community-based organizations to “pre-qualify” to bid for program funding under Measure H. The pre-qualification process does not apply to service providers who have existing contracts with LAHSA. The idea behind the RFSQ was to separate the threshold review process that was previously contained within the prior procurement processes thereby allowing agencies who are qualified to submit bids without having to repeat having to be qualified for each new procurement. The RFSQ is the tool used by LASHA to evaluate if submitting agency applicants “possess established threshold levels of 1) Financial Stability, 2) Organizational Experience, Administrative and Fiscal Capacity, 3) Organizational Capacity, and 4) Organizational Experience providing Supportive Services / Housing to homeless persons.” Once qualified, an applicant is recertified on an annual basis, but does not go through the RFSQ process again. Service providers were generally positive about the new RFSQ process, although most of those interviewed had previously done work with LAHSA and did not have to go through the process. Service providers liked the ability to avoid being disqualified from a project based on procedural issues that could be easily rectified, but would then require them to wait an entire year to re-bid on the project. Agencies were also complementary on the assistance offered to them in working through pre-qualification issues. The RFSQ also has the benefit of streamlining the Request for Proposal process by allowing staff to focus solely on the programmatic request and not have to evaluate or re-evaluate an organization’s administrative qualifications to perform the contract. Request for Proposal Process In order to fund the eight Initiatives designated by the County for implementation, LAHSA undergoes a Request for Proposal (RFP) process. The RFP’s are developed by individual strategy and request proposals for community-based organizations to provide services within SPAs. The RFPs define the nature of the services to be provided and the amount of funding dedicated to provide those services within the SPA. The entire process can take six months or longer depending on the scope and complexity of the funding strategy. For example, for the Capital Costs for Crisis and Bridge Housing RFP (Initiative 8), the RFP was officially released in December of 2017 with proposals due in March 2018, approvals in April 2018 with a contract start date of July 2018. Proposers were provided opportunities to attend a proposer’s conference where the RFP and scope of work are reviewed in detail and go through a question and answer period to allow for further clarifications, if necessary. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 179 Service providers were generally positive about the RFP process. The primary concern expressed by multiple service providers was that the contracting process, following the award, often took longer than anticipated which made efforts to staff-up or acquire new space to meet the new demands of the contract risky. At least two service providers indicated that they were uncomfortable making financial commitments in preparation for contract implementation until they had a signed agreement. Another concern raised by service providers was that despite an improved RFSQ and RFP process, it can still be difficult for smaller service providers to qualify and bid for funding for projects. This is not an uncommon problem for grant making organizations and LAHSA has taken the following steps to try and make the process more viable for small to medium-sized agencies: • LAHSA provides support to agencies in the preparation for the RFSQ process such as working with agencies to identify different means to demonstrate fiscal stability. • LAHSA works with agencies to provide training to new staff and opportunities for some capacity building funding are available as well. • LAHSA agreed to lower its administrative cost ratio to 8% to allow agencies to raise their administrative ratio to 12%. This is a significant help to smaller and medium sized agencies where they do not necessarily have large economies of scale to help keep administrative costs at or below the traditional 10%. • LAHSA is working to offer three-year funding commitments, instead of the traditional one year, which give organizations a longer planning and implementation horizon and a greater level of confidence that investments in staffing, equipment and space are warranted. The procurement process, however, is still time consuming and requires a level of administrative and fiscal sophistication that some smaller nonprofits are not capable of meeting. In public grant making there is a delicate balance between safeguarding public funds by ensuring that organizations have the administrative, financial and programmatic capacity to carry out the desired scope of work and the desire to fund agencies deeply embedded within the community which may have a unique ability to reach the target population. C. Performance Monitoring and Support of Community-Based Providers Since the passage of Measure H, LAHSA has restructured its organization and developed new capacity building initiatives to improve its ability to monitor grantee compliance and improve the ability of their grantees to provide effective services.
F10:
LAHSA has developed a comprehensive fiscal and programmatic monitoring program of its service providers. As a pass-through funding entity, a critical function of LAHSA is to provide oversight and administration of contracts. LAHSA’s Fiscal Department is responsible for ensuring that its grantees comply with contractual requirements, including all federal, state and local regulations. The Compliance and Monitoring group performs routine site visits to grantee service providers to ensure that the fiscal and programmatic obligations of Measure H are being fulfilled. Annually, each grantee service provider is appraised using a Fiscal and Programmatic Risk Assessment Matrix to provide an objective evaluation of risk. Grantee service providers that are determined to be “high risk” are subject to annual site visits and monitoring. “Low” and 180 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT “Medium” risk providers are subject to bi-annual visits at LAHSA’s discretion. The following is an overview of the two types of Risk Assessments performed by the Compliance and Monitoring Group: • Fiscal Risk Assessment – The fiscal risk assessment involves an analysis of seven key risk factors. An agency’s performance is ranked using these factors which include: date of the last monitoring visit, timely submission of LAHSA reports, agency staffing capacity, quality and completeness of submitted reports, records retention practices, financial stability analysis and potentially other factors to be determined by the auditor on a case by case basis. • Programmatic Risk Assessment – The programmatic risk assessment is based upon an analysis of seven risk factors. Similar to the fiscal risk assessment, the risk factors are evaluated and the grantees risk level is ranked using the following categories: date of the last monitoring visit, documentation management standards, achievement of performance targets, staffing capacity to ensure programs are administered effectively, facility benchmarks and the existence of grievances or other problems that may have arisen over the course of the contract. The LAHSA agreements with service providers set forth the standards for determining compliance. All compliance audits are scheduled at least thirty days in advance. A list of documents to be reviewed is provided and an internal control questionnaire is to be filled out by the agency. Sample size standards have been set and the list of requested fiscal transactions to be reviewed is sent to the agency prior to the site visit. The fiscal audits are conducted in compliance with Office of Management and Budget A-110, A-122, A-133 and Generally Accepted Accounting Principles. At the conclusion of an audit, a preliminary report is prepared and provided to the agency for review in an exit conference. LAHSA staff then prepare a final Monitoring Report specifying the nature and scope of the review as well as any findings, recommendations and/or corrective actions to be taken by the agency. The grantee agency has thirty days from the final monitoring letter to respond to the report. If corrective actions are required, an agency must reply with its proposed corrective actions which are to be reviewed and responded to by the Monitoring and Compliance officer of LAHSA. Based on the nature of the corrective actions, a subsequent site visit may be scheduled to review the agency’s progress in achieving compliance. All previous findings are reviewed in the subsequent audit.
F11:
LAHSA has recently restructured its performance and contract management function and, while it is too early to provide a comprehensive assessment, some minor improvements may be warranted. In addition to formal risk assessments, each grantee service provider is assigned a representative from LAHSA’s Finance Department and the Performance Department. The responsibility of the Finance Department is to respond to questions related to invoicing and budgets. The Performance Department performs the day-to-day contract management function. The LAHSA assigned Performance Manager typically meets with a grantee service provider monthly. During those meetings, the manager reviews the grantee agency’s progress towards the achievement of key outcomes and helps determine whether there are any administrative and/or programmatic issues that need to be addressed. During the course of the year, if a Performance Manager determines that a service provider is having difficulty in any area of programmatic compliance, 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 181 they may take steps to implement corrective action on the part of the agency to avoid a potential finding in the annual compliance review. Overall, the structure of evaluating compliance is well designed. In interviews with service providers, an issue was raised by multiple providers. These providers were, at times, confused as to the role of the Performance Manager, particularly as it relates to the administration of the program budget. Where budget modifications are requested, grantee agencies submit those requests to the Finance Department and not the Performance Manager. It is important for the service providers to have a single point of contact for contract management. More importantly, the function of evaluating a budget modification should be a “program” issue in that the modification should be evaluated based on the impact the modification will have on the ability of the agency to provide efficient and effective services. This should, at least initially, be the role of the Performance Manager who is more familiar with the grantee agency’s programs and can better assess the need for a budget modification.
F12:
Some service providers are challenged to find qualified staff to implement their programs. The increase in program funding throughout the County for homeless services has created a significant demand on staff with experience in addressing issues for the homeless. One LAHSA staff person estimated that approximately 1,200 additional positions County-wide will be required within the homeless service sector to meet funding and program expectations. This demand has negatively impacted service providers who are struggling to address staffing needs and may not have the budget to fund salaries at the level of their public sector counterparts. Multiple service providers report losing experienced staff to LAHSA, County Department of Health Services, County Department of Public Social Services and other public agencies. Smaller- and medium-sized agencies even report losing staff to larger agencies. LAHSA has taken steps to assist agencies in addressing their staffing needs by holding job fairs where service providers can attend. The results of these job fairs, as reported by the service providers, has been mixed. The feedback suggests that while there has been some ability to recruit entry-level staff at these job fairs, identifying more experienced staff with the ability to have an immediate impact has been difficult.
F13:
LAHSA’s implementation of a County-wide training academy has the ability to impact the effectiveness and productivity of its service providers. The expansion of staff by service providers comes with the additional burden of hiring and training new staff. While none of the service providers indicated that they will be unable to meet new program funding and demands, the challenge to hire, train and retain quality staff is a significant concern moving forward. In order to help grantee service providers, in 2017 LAHSA entered into an agreement with Homeless Health Care Los Angeles to develop and implement a centralized training academy for LAHSA’s service providers. The objective of the trainings is to provide staff development opportunities for grantee service providers focused on three categories of staff: entry-level staff, mid-level direct service staff and supervisory staff. Implementation of the Training Academy began at the end of 2017 and should be fully operational by the middle of 2018. The Training Academy will offer three different types of formal training. Each curriculum offered includes 35 hours of training and participating staff receive a Certificate of Completion 182 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT upon graduation. The curricula focus is on implementing evidence-based practices for addressing the needs of the homeless population including training on practices such as trauma, informed care, cultural humility, housing first, harm reduction, motivational interviewing and critical time intervention. The curricula also addresses different strategies for working with diverse populations including the chronically homeless, families, transitional age youth, LGBTQ, persons with disabilities, domestic violence survivors, human trafficking survivors, the aging and elderly, incarceration and re-entry, and veterans. The following is a brief overview of the three curricula being offered in the next calendar year. Each of the training programs will be held multiple times and are expected to be provided regionally to assure that representatives from each SPA will be able to attend: • Curriculum I: Care Coordination and System Navigation – This training is intended for entry-level staff and staff with limited professional experience in working with the homeless population. This training will occur over a period of one-week with seven-hour classes each day. The focus of the classes will be on making staff familiar with the most current evidence-based practices in the field and will include topics on: the landscape of homelessness, evidence-based practices, boundaries and ethics, housing programs and the core functions of case management. • Curriculum II: Applied Care Coordination and Systems Navigation – This curriculum will be designed for direct service staff who have previous experience in working with the homeless population. This training will be less focused on lecture-time and more interactive with scenario-based training and exercises that can be done in the field between training sessions. Topics will be more focused on detailed evidence-based practices. Examples of topics may include HIPAA requirements, addressing physical and mental health issues including substance abuse and overdose prevention as well as more program focused knowledge related to housing and retention and case management. • Curriculum III: Supervisory Training for Homeless Service Providers – This course will be focused on staff transitioning into to supervisorial roles within their organizations. The course will be divided into three sections: leading people, managing work, and developing self and others. The objective is to prepare the trainees to assume new roles within their organizations managing others. All of the foregoing trainings will be provided by Homeless Health Care Los Angeles. In addition to the Training Academy, LAHSA will occasionally provide their own training focused on particular policies or practices developed by LAHSA. While the service providers interviewed were mostly positive about the Training Academy, a few interviewees expressed concern that the practical approaches advocated in the Training Academy may not represent the same approach taken by all service providers. Some of the larger service providers indicated that they already provide many of the types of training being done by the Training Academy and may not be as interested in sending their staff to programs that require a 35 hour commitment. Some suggested that they would be more likely to send staff to individual training sessions dedicated to topics relevant to their existing services if those were made available instead of extended formal trainings. Despite the foregoing concerns, the implementation of the Training Academy has the ability to have a positive, long-term impact on the homeless service sector within the County. The ability to offer service providers a “boot camp” for staff not previously experienced in the homeless 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 183 service sector will assist agencies who are struggling to find experienced staff and do not have the resources to provide their own training. Moreover, the more in-depth classes have the potential to provide a more consistent and evidence-based approach to providing certain types of services within the County.
F14:
LAHSA’s capacity building efforts are designed to be tailored based on the needs of individual service providers. In addition to providing training, LAHSA is committed to further assist service providers by offering a capacity building program. Capacity building is the process of strengthening the ability of service providers to perform their key administrative and programmatic functions. Measure H assigned funding to LAHSA to institute a capacity building program and LAHSA has leveraged that funding by partnering with United Way to assist in the development and implementation. In November of 2017, LAHSA released a Request for Bids (RFB) to request capacity building consulting services from the pool of consultants in the following categories: • Operational Management -- which includes financial management, IT services, HR, contract management, facilities management, policies and procedures, internal controls, risk management, communications and fundraising. • Leadership – including board composition & governance, organizational structure, succession planning, strategic planning and community engagement. • Program Administration – including data reporting, program evaluation and collaboration with partners. The goal of the RFB is to develop a pool of consultants that will be used on an as-needed basis to assist service providers. The basic structure of the capacity building program is two-fold. The first step in the program provides agencies up to $8,000 to conduct a needs assessment. The needs assessment is then used to evaluate what type of assistance the agency could use to improve the efficiency and/or effectiveness in providing homeless services. Based on the assessment, the grantee agencies may request capacity building assistance of up to $40,000 per project from LAHSA. For FY 2017/2018, LAHSA has allocated $2.8 million in capacity building funding with the hope of serving at least 50 service providers. Future budgets for capacity building will be $3 million annually.
F15:
Local communities need to recognize the urgent need to build new permanent supportive housing rather than burdening surrounding communities with their homeless population. The Long Beach Villages at Cabrillo is an impressive example of permanent supportive housing in a large multi support campus that in 2016 was housing over 1000 homeless families and individuals. The campus offers a complete range of homeless services provided by many nonprofit agencies that work on a collaborative basis. The campus includes versions of permanent supportive housing for specialized needs. The facilities include innovative incentives to help the former homeless to socialize in a normal community setting. For those businesses and homeowners’ associations throughout the County interested in learning more about how their city, businesses, and community associations can improve their community “quality of life” may want to request a tour of the Villages at Cabrillo facility to learn about 184 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT positive steps that help the homeless recover while also preventing the blight of homeless encampments in their neighborhoods. Exhibit 14 shows a photo sampling of the results of a positive community approach contrasted with what happens when the homeless situation is ignored. There is a new “EVERYONE IN” coalition to support the needs of the homeless in their own community. For more information, those interested can refer to LAHSA web site and look up various articles to learn how others are seeking solutions to homelessness issues in their own communities. Below is a summary of an article about a rally at Echo Park on March 9, 2018. “A coalition termed “EVERYONE IN” for homeless support was held at Echo Park on March 9, 2018. It was sponsored by the United Way of Greater Los Angeles and LAHSA. In attendance were many homeless service providers from all areas of LA County as well as leaders of various cities, business and community associations. Also attending were interested individual residents and businesses to learn how each could participate in providing assistance to homeless families and individuals in their pathway out of their homeless status. They learned what assistance was needed to reach supportive permanent housing, which also improves the quality of life for the residents and businesses. Financial support is being expanded dramatically through the Measure H program provided by the County. The goal of EVERYONE IN is to eliminate homelessness in the County within 10 years.” Support Services are being expanded dramatically through the Measure H program which has a goal to eliminate homelessness in the County within the next 10 years. Cities have been offered funds from the County to study the homeless problem in their own communities to determine how they can participate in the solution. Information on how local community associations of residents and businesses can participate in this “EVERYONE IN” coalition can be obtained by checking the LAHSA’s website at http//www.lahsa.org. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 185
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F1:
Accreditation. The Los Angeles County Coroner should be accredited. Accreditation demonstrates compliance with acceptable professional standards and performance criteria providing assurance of competence in carrying out medicolegal death investigations. There are two nationally recognized organizations that set accepted standards for accreditation, The NAME11 and The International Association of Coroners and Medical Examiners (IAC&ME)12. NAME is a national professional organization representing physicians, investigators and administrators, who are active in medicolegal death investigations. The IAC&ME is a similar, but an international organization. Both organizations have standards that are accepted as national accreditation standards by multiple medicolegal professional associations. Accreditation is given at two levels: Full Accreditation is given to those organizations that have no major deficiencies and less than fifteen minor deficiencies and is granted for five years. Provisional Accreditation is given with less than five major and less than twenty-five minor deficiencies and is granted for a twelve month period. There is an expectation of significant improvement during that time that can result in another twelve-month extension. The primary reason for DME-C’s downgrade from Full to Provisional Status was its difficulty in recruiting and retaining personnel, especially forensic pathologists, investigators, and criminalists/forensic toxicologists. Inadequate numbers of personnel have resulted in excessive overtime, employee redeployment, and employee burnout. Most importantly, the overall effect has been rapidly growing backlogs in final autopsy reports that have resulted in failure to meet the accreditation standard of 90% final autopsy reports completed in 90 days or less. Another requirement by NAME is that 90% of autopsies and external examinations are to be performed within 72 hours from the time: 1. the medical examiners’ jurisdiction is accepted 2. the coroner’s authorization is granted 3. or the receipt of an externally referred decedent The inability to attain the above requirements, threatens the DME-C’s ability to achieve Full Accreditation status, when they are re-evaluated by NAME in 2020. The NAME Inspection and Accreditation Program has the purpose of improving the quality of the forensic/medicolegal investigation of deaths. NAME’s accreditation applies to forensic death investigations. It does not apply to individual forensic practitioners. Accreditation issues may also be associated with the condition of their facilities. Facilities are only a part of the accreditation evaluation and NAME does not accredit facilities alone. The accreditation standards emphasize policies and procedures, not the professional work product. The accreditation standards represent minimum standards for an adequate medicolegal death investigation system, not guidelines. NAME accreditation is an endorsement by NAME that the system or office provides an adequate environment, in which a medical examiner/forensic pathologist may practice his or her profession and provides reasonable assurances that the office or system well serves its jurisdiction. NAME accreditation is not a guarantee of proper 11 https://netforum.avectra.com/eweb/DynamicPage.aspx?Site=NAME&WebCode=AboutNA... 1/8/2018 12 IAC&ME https://www.theiacme.com 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 193 medicolegal death investigations or forensic pathology diagnoses. It is the goal of NAME that application of these accreditation standards will aid materially in developing and maintaining a high caliber of forensic medicolegal death investigations for the communities and jurisdictions they serve. Discussion of DME-C Organization Presented below are significant divisions or units within the DME-C organizational structure. The Operations Bureau and Call Center The Operations Bureau represents the largest segment of the DME-C13. This bureau consists of the disaster community services, decedent services, coroner investigation, identification, notification services, background coordinator, Sudden Infant Death Syndrome Program and Peace Officers Standards and Training (POST),14 and The Special Operations Response Team (SORT),15 which provides response in the event of any mass fatality or high explosive incident. The Public Information Officer also falls under this bureau. This Bureau is responsible for the 24-hour a day, 7 day a week operations of many direct services provided by the department.16 The Bureau oversees the Investigations and Forensic Services Divisions.
F2:
The Los Angeles County Coroner should implement a better case management system. The Operation Bureau’s Call Center receives all incoming calls which include emergency calls, non-emergency calls and dispatches all outgoing calls utilizing a case assignment screen. The present version utilizes the Case Management Enterprise CME2.2 (a 1997 version). This system is antiquated and its operational area is challenged when processing all such calls through their Case Management System (CMS). The system crashes giving a ‘run-time-error’ message which obviously interrupts the normal flow of work placing all work productivity at a complete standstill. As calls come in, case numbers are assigned manually and recorded on paper logs until the system comes back up. When this system (CMS) goes down, it does not have a ‘save’ or backup data entry function or capability. When the system comes back up the user/operator must input the records into the CMS system effectively handling the same record twice. The CMS has a limited search function, only the name or date field can be searched. In both cases it can only match the exact match. For example, Jon Smith would not yield options for John Smith. The term “case management system” also refers to two computer applications. First, an application called CMS which has been in place for over 15 years, is not secure and cannot be changed or upgraded. Second, ECFS (Electronic Case Filing System) is a more recently developed application that is being used for object tracking (autopsy specimens and evidence) and document storage. These two systems are separate and synchronized daily. An Information Technology (IT) manager has been hired and this should prove helpful improving the functionality of the present system. DME-C Organization chart 14 Peace officers’ (POST) Training Manual 15 Ibid 16 DME-C Senior Staff Report 194 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT
F3:
or the receipt of an externally referred decedent The inability to attain the above requirements, threatens the DME-C’s ability to achieve Full Accreditation status, when they are re-evaluated by NAME in 2020. The NAME Inspection and Accreditation Program has the purpose of improving the quality of the forensic/medicolegal investigation of deaths. NAME’s accreditation applies to forensic death investigations. It does not apply to individual forensic practitioners. Accreditation issues may also be associated with the condition of their facilities. Facilities are only a part of the accreditation evaluation and NAME does not accredit facilities alone. The accreditation standards emphasize policies and procedures, not the professional work product. The accreditation standards represent minimum standards for an adequate medicolegal death investigation system, not guidelines. NAME accreditation is an endorsement by NAME that the system or office provides an adequate environment, in which a medical examiner/forensic pathologist may practice his or her profession and provides reasonable assurances that the office or system well serves its jurisdiction. NAME accreditation is not a guarantee of proper 11 https://netforum.avectra.com/eweb/DynamicPage.aspx?Site=NAME&WebCode=AboutNA... 1/8/2018 12 IAC&ME https://www.theiacme.com 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 193 medicolegal death investigations or forensic pathology diagnoses. It is the goal of NAME that application of these accreditation standards will aid materially in developing and maintaining a high caliber of forensic medicolegal death investigations for the communities and jurisdictions they serve. Discussion of DME-C Organization Presented below are significant divisions or units within the DME-C organizational structure. The Operations Bureau and Call Center The Operations Bureau represents the largest segment of the DME-C13. This bureau consists of the disaster community services, decedent services, coroner investigation, identification, notification services, background coordinator, Sudden Infant Death Syndrome Program and Peace Officers Standards and Training (POST),14 and The Special Operations Response Team (SORT),15 which provides response in the event of any mass fatality or high explosive incident. The Public Information Officer also falls under this bureau. This Bureau is responsible for the 24-hour a day, 7 day a week operations of many direct services provided by the department.16 The Bureau oversees the Investigations and Forensic Services Divisions. Finding 2: The Los Angeles County Coroner should implement a better case management system. The Operation Bureau’s Call Center receives all incoming calls which include emergency calls, non-emergency calls and dispatches all outgoing calls utilizing a case assignment screen. The present version utilizes the Case Management Enterprise CME2.2 (a 1997 version). This system is antiquated and its operational area is challenged when processing all such calls through their Case Management System (CMS). The system crashes giving a ‘run-time-error’ message which obviously interrupts the normal flow of work placing all work productivity at a complete standstill. As calls come in, case numbers are assigned manually and recorded on paper logs until the system comes back up. When this system (CMS) goes down, it does not have a ‘save’ or backup data entry function or capability. When the system comes back up the user/operator must input the records into the CMS system effectively handling the same record twice. The CMS has a limited search function, only the name or date field can be searched. In both cases it can only match the exact match. For example, Jon Smith would not yield options for John Smith. The term “case management system” also refers to two computer applications. First, an application called CMS which has been in place for over 15 years, is not secure and cannot be changed or upgraded. Second, ECFS (Electronic Case Filing System) is a more recently developed application that is being used for object tracking (autopsy specimens and evidence) and document storage. These two systems are separate and synchronized daily. An Information Technology (IT) manager has been hired and this should prove helpful improving the functionality of the present system. DME-C Organization chart 14 Peace officers’ (POST) Training Manual 15 Ibid 16 DME-C Senior Staff Report 194 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT
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F1:
Accreditation. The Los Angeles County Coroner should be accredited. Accreditation demonstrates compliance with acceptable professional standards and performance criteria providing assurance of competence in carrying out medicolegal death investigations. There are two nationally recognized organizations that set accepted standards for accreditation, The NAME11 and The International Association of Coroners and Medical Examiners (IAC&ME)12. NAME is a national professional organization representing physicians, investigators and administrators, who are active in medicolegal death investigations. The IAC&ME is a similar, but an international organization. Both organizations have standards that are accepted as national accreditation standards by multiple medicolegal professional associations. Accreditation is given at two levels: Full Accreditation is given to those organizations that have no major deficiencies and less than fifteen minor deficiencies and is granted for five years. Provisional Accreditation is given with less than five major and less than twenty-five minor deficiencies and is granted for a twelve month period. There is an expectation of significant improvement during that time that can result in another twelve-month extension. The primary reason for DME-C’s downgrade from Full to Provisional Status was its difficulty in recruiting and retaining personnel, especially forensic pathologists, investigators, and criminalists/forensic toxicologists. Inadequate numbers of personnel have resulted in excessive overtime, employee redeployment, and employee burnout. Most importantly, the overall effect has been rapidly growing backlogs in final autopsy reports that have resulted in failure to meet the accreditation standard of 90% final autopsy reports completed in 90 days or less. Another requirement by NAME is that 90% of autopsies and external examinations are to be performed within 72 hours from the time: 1. the medical examiners’ jurisdiction is accepted 2. the coroner’s authorization is granted 3. or the receipt of an externally referred decedent The inability to attain the above requirements, threatens the DME-C’s ability to achieve Full Accreditation status, when they are re-evaluated by NAME in 2020. The NAME Inspection and Accreditation Program has the purpose of improving the quality of the forensic/medicolegal investigation of deaths. NAME’s accreditation applies to forensic death investigations. It does not apply to individual forensic practitioners. Accreditation issues may also be associated with the condition of their facilities. Facilities are only a part of the accreditation evaluation and NAME does not accredit facilities alone. The accreditation standards emphasize policies and procedures, not the professional work product. The accreditation standards represent minimum standards for an adequate medicolegal death investigation system, not guidelines. NAME accreditation is an endorsement by NAME that the system or office provides an adequate environment, in which a medical examiner/forensic pathologist may practice his or her profession and provides reasonable assurances that the office or system well serves its jurisdiction. NAME accreditation is not a guarantee of proper 11 https://netforum.avectra.com/eweb/DynamicPage.aspx?Site=NAME&WebCode=AboutNA... 1/8/2018 12 IAC&ME https://www.theiacme.com 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 193 medicolegal death investigations or forensic pathology diagnoses. It is the goal of NAME that application of these accreditation standards will aid materially in developing and maintaining a high caliber of forensic medicolegal death investigations for the communities and jurisdictions they serve. Discussion of DME-C Organization Presented below are significant divisions or units within the DME-C organizational structure. The Operations Bureau and Call Center The Operations Bureau represents the largest segment of the DME-C13. This bureau consists of the disaster community services, decedent services, coroner investigation, identification, notification services, background coordinator, Sudden Infant Death Syndrome Program and Peace Officers Standards and Training (POST),14 and The Special Operations Response Team (SORT),15 which provides response in the event of any mass fatality or high explosive incident. The Public Information Officer also falls under this bureau. This Bureau is responsible for the 24-hour a day, 7 day a week operations of many direct services provided by the department.16 The Bureau oversees the Investigations and Forensic Services Divisions.
F2:
The Los Angeles County Coroner should implement a better case management system. The Operation Bureau’s Call Center receives all incoming calls which include emergency calls, non-emergency calls and dispatches all outgoing calls utilizing a case assignment screen. The present version utilizes the Case Management Enterprise CME2.2 (a 1997 version). This system is antiquated and its operational area is challenged when processing all such calls through their Case Management System (CMS). The system crashes giving a ‘run-time-error’ message which obviously interrupts the normal flow of work placing all work productivity at a complete standstill. As calls come in, case numbers are assigned manually and recorded on paper logs until the system comes back up. When this system (CMS) goes down, it does not have a ‘save’ or backup data entry function or capability. When the system comes back up the user/operator must input the records into the CMS system effectively handling the same record twice. The CMS has a limited search function, only the name or date field can be searched. In both cases it can only match the exact match. For example, Jon Smith would not yield options for John Smith. The term “case management system” also refers to two computer applications. First, an application called CMS which has been in place for over 15 years, is not secure and cannot be changed or upgraded. Second, ECFS (Electronic Case Filing System) is a more recently developed application that is being used for object tracking (autopsy specimens and evidence) and document storage. These two systems are separate and synchronized daily. An Information Technology (IT) manager has been hired and this should prove helpful improving the functionality of the present system. DME-C Organization chart 14 Peace officers’ (POST) Training Manual 15 Ibid 16 DME-C Senior Staff Report 194 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT
F3:
or the receipt of an externally referred decedent The inability to attain the above requirements, threatens the DME-C’s ability to achieve Full Accreditation status, when they are re-evaluated by NAME in 2020. The NAME Inspection and Accreditation Program has the purpose of improving the quality of the forensic/medicolegal investigation of deaths. NAME’s accreditation applies to forensic death investigations. It does not apply to individual forensic practitioners. Accreditation issues may also be associated with the condition of their facilities. Facilities are only a part of the accreditation evaluation and NAME does not accredit facilities alone. The accreditation standards emphasize policies and procedures, not the professional work product. The accreditation standards represent minimum standards for an adequate medicolegal death investigation system, not guidelines. NAME accreditation is an endorsement by NAME that the system or office provides an adequate environment, in which a medical examiner/forensic pathologist may practice his or her profession and provides reasonable assurances that the office or system well serves its jurisdiction. NAME accreditation is not a guarantee of proper 11 https://netforum.avectra.com/eweb/DynamicPage.aspx?Site=NAME&WebCode=AboutNA... 1/8/2018 12 IAC&ME https://www.theiacme.com 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 193 medicolegal death investigations or forensic pathology diagnoses. It is the goal of NAME that application of these accreditation standards will aid materially in developing and maintaining a high caliber of forensic medicolegal death investigations for the communities and jurisdictions they serve. Discussion of DME-C Organization Presented below are significant divisions or units within the DME-C organizational structure. The Operations Bureau and Call Center The Operations Bureau represents the largest segment of the DME-C13. This bureau consists of the disaster community services, decedent services, coroner investigation, identification, notification services, background coordinator, Sudden Infant Death Syndrome Program and Peace Officers Standards and Training (POST),14 and The Special Operations Response Team (SORT),15 which provides response in the event of any mass fatality or high explosive incident. The Public Information Officer also falls under this bureau. This Bureau is responsible for the 24-hour a day, 7 day a week operations of many direct services provided by the department.16 The Bureau oversees the Investigations and Forensic Services Divisions. Finding 2: The Los Angeles County Coroner should implement a better case management system. The Operation Bureau’s Call Center receives all incoming calls which include emergency calls, non-emergency calls and dispatches all outgoing calls utilizing a case assignment screen. The present version utilizes the Case Management Enterprise CME2.2 (a 1997 version). This system is antiquated and its operational area is challenged when processing all such calls through their Case Management System (CMS). The system crashes giving a ‘run-time-error’ message which obviously interrupts the normal flow of work placing all work productivity at a complete standstill. As calls come in, case numbers are assigned manually and recorded on paper logs until the system comes back up. When this system (CMS) goes down, it does not have a ‘save’ or backup data entry function or capability. When the system comes back up the user/operator must input the records into the CMS system effectively handling the same record twice. The CMS has a limited search function, only the name or date field can be searched. In both cases it can only match the exact match. For example, Jon Smith would not yield options for John Smith. The term “case management system” also refers to two computer applications. First, an application called CMS which has been in place for over 15 years, is not secure and cannot be changed or upgraded. Second, ECFS (Electronic Case Filing System) is a more recently developed application that is being used for object tracking (autopsy specimens and evidence) and document storage. These two systems are separate and synchronized daily. An Information Technology (IT) manager has been hired and this should prove helpful improving the functionality of the present system. DME-C Organization chart 14 Peace officers’ (POST) Training Manual 15 Ibid 16 DME-C Senior Staff Report 194 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT
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F3:
The Los Angeles County Coroner should have a better staffing of Forensics’ Pathologist, Technologist, Attendants, and mortuary attendants and aids. The Decedent Services Unit (DSU) This section is part of the Investigations Division of the Operations Bureau.19 DSU is largely staffed by Forensic Attendants and is charged with transporting decedents from death scenes and hospitals (that fall under the jurisdiction of the coroner), to the Forensic Sciences Center (FSC). Location type can vary widely from hospitals and residences, to hillsides and burnt out structures. The DSU staff will pick up medical records, x-rays and relevant samples, such as blood and tissue in hospital deaths. They will collect and package property and clothing, as well as, collect and book the evidence. They assist the Coroner Investigator with packaging and movement of the deceased. DSU staff will process incoming cases to include fingerprinting, undressing and documenting height and weight of the deceased. They are responsible for crypt management and releasing decedents, once the Department has concluded its examination. This requires a review of the documentation provided by the mortuary, a confirmation of the legal next of kin and a verification of the deceased being released. DSU staff provides transportation for indigent cases and veteran burials that the Department arranges. The DSU also staffs a twenty-four hours per day operation that receives calls from Los Angeles Police Department, Los Angeles County Sheriff Department, Los Angeles City Fire Department, Los Angeles County Fire Department, Los Angeles County Hospitals, and Mortuaries, within and outside of the Coroner’s jurisdiction. The Decedent Services Unit is responsible for crypt management of human remains prior to release for photograph, x-ray and autopsy. These services include preparation of “Proof of Death” letters to verify that a death is being investigated by the Coroner. As well as “Port of Entry” letters to confirm that a decedent had no communicable disease, which are necessary when a decedent is transferred into the United States after a death has occurred outside of the United States. Department of Medical Examiner-Coroner Personnel County of Los Angeles – Department of Medical Examiner-Coroner Budgeted allocated positions Fiscal Year (FY) 2017-2018 Unit Description Budget/Allocated Vacant Administration 58 5 Operations Bureau – Investigations 78 13 Operations Bureau – Forensic Services 29 2 Forensic Laboratory Services 29 3 Forensic Medicine 28 7 Forensic Medicine – Photo and Support 26 1 TOTAL 248 31 There are extensive processes for vetting new hires of Coroner Investigator Trainees (CITs). The process can take up to a year from the time an individual applies to the time they are hired. DME-C Organization chart 196 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT After hiring, there is a training period for CITs that takes approximately one year. This would equal a total processing time of up to 2 years. In the last Coroner Investigator Trainee (CIT) exam administered in 2017 out of a total of 979 applications, there were a total of 7 candidates hired. The reason for disqualification were, failing the willingness questionnaire, incomplete applications, failure to appear for the exam, failing the written exam, failing the oral exam, and one candidate withdrew. Finally, 163 candidates were added to the certification list. However, of the 163 candidates, only 30 candidates were classified in the primary acceptable bands of the “V” (Veteran) or Band 1. These “bands” represent 5 selection groups the highest being “V” and Bank 1, extending down to Band 4. Usually the “V” Band and Band 1 are the bands from which candidates are selected, with difficulty reaching down into the other Bands to select additional candidates. All 30 were invited to the selection interview. During that time, there were 12 CIT vacancies. Thirteen (13) offers were made and seven (7) candidates mentioned above were hired. The remaining candidates either withdrew (3) or failed the background (3) process.20 This demonstrates the difficulty in recruitment and hiring, especially in the Investigative Division and in Forensic Medicine, which currently have the most important needs. Criminalist positions, such as administrative or other support positions can typically be brought on board within four months depending on the size of the eligible list. With a population of over 10 million people in Los Angeles County, approximately 78,000 to 80,000 residents die each year. The coroner’s office investigates about 20,000 to 22,000 of those deaths. The Coroner’s office received a total of 5418 requests for documents (Proof of Death Letters, Autopsy Reports, and Investigator Reports). This includes calls, mail, e-mail, walk-ins and online. The present DME-C case management system does not have an area in the document request screen (DRS) to note how a request was made, which prevents them from specifying how many calls were received.21 The coroner’s office conducts about 8,500 case examinations each year. There are four levels or types of examinations ranging from an external cursory examination to a full-scale autopsy. 1. Type I – Medical-Legal (performed as prescribed by law) 2. Type II – Clinical or Pathological (particular disease or research) 3. Type III – Anatomical or Academic (med-school anatomy students) 4. Type IV – Virtual or Medical Imaging autopsies. The coroner operates from a single central location in downtown Los Angeles and two small satellite offices located in the Antelope Valley and in San Fernando22 . The enormous size and constant congestion of Los Angeles County require the coroner staff to travel at least 30 to 90 minutes, and sometimes up to three hours, to investigate a scene of death and remove bodies. A body cannot be moved from an accident or crime scene until the coroner arrives and gives permission.23 20 DME-C Senior Staff regarding banding Los Angeles County.gov hiring process for (CIT) 21 DME-C Senior Staff 22 Ibid 23 Ibid 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 197
F4:
There is a strong need to replace the cremation retort and or outsource unclaimed remains. ODA County Morgue The Los Angeles County and University of Southern California Medical Center’s (LAC&USC Medical Center) Office of Decedent Affairs (ODA) is located on the grounds directly across from the Coroners Facility. The ODA processes all deaths that occur at the LAC&USC Medical Center. ODA also is comprised of the county morgue, the crematory, and the Los Angeles County Cemetery (Evergreen Cemetery)24. The ODA Manager reports up the chain of command to the Associate Hospital Administrator, who reports to the Hospital Chief Operations Officer, who reports to the Hospital CEO, who reports to the Director of Department of Health Services (DHS), who reports to the Board of Supervisors (BOS). The LAC+USC is responsible for all unclaimed and indigent deceased that do not come under the Coroner’s jurisdiction. The decedents are picked up by the Morgue staff or brought in by private mortuaries for storage in the County Morgue awaiting final disposition (cremation)25. The morgue itself holds only 43 decedents. Any in excess of this number are stored in refrigerated outdoor containers. The morgue processes all deaths that occur in LAC+USC Medical Center, as well as, indigent and unclaimed persons throughout the County as reported by hospitals, nursing homes, convalescent homes and law enforcement agencies. The remains are taken to the LAC+USC Medical Center by Decedent Affairs Office Mortuary Attendants. If no estate or family is available to assume the responsibility of the deceased, the County takes responsibility for cremating the decedent. The ODA also manages and operates the crematory and receives on average 8 cases daily. The crematory’s single functioning retort can only process 2 decedents per working day or 8 to 10 decedents per week, therefore 60 to 80 percent of decedents are outsourced. The current County Crematory Retorts and Decedent Refrigeration Units are at the end of their useful life26. The ODA does not have reliable options should a natural disaster or mass casualty situation arise. The 911 call flow process is that all law enforcement agencies, nursing and convalescent homes call directly to the Coroner to report a death27. The call is then screened by the coroner to determine name, age, family contact, address and to determine if there is a physician to sign the Death Certificate. If the death does not come under the Coroners jurisdiction, the County Mortuary Attendant is dispatched for pick-up, if no morgue staff is available. If the individual remains unclaimed after thirty days, they are cremated at the county crematory at county expense. Transporting creates an added burden, especially in the north area of the county which is distant to the morgue. 24 https//www.laconservancy.org/locations/evergreen-cemetery 25 Senior Administrator at LAC+USC 26 Ibid 27 Flow chart for DME-C 198 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT
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F3:
The Los Angeles County Coroner should have a better staffing of Forensics’ Pathologist, Technologist, Attendants, and mortuary attendants and aids. The Decedent Services Unit (DSU) This section is part of the Investigations Division of the Operations Bureau.19 DSU is largely staffed by Forensic Attendants and is charged with transporting decedents from death scenes and hospitals (that fall under the jurisdiction of the coroner), to the Forensic Sciences Center (FSC). Location type can vary widely from hospitals and residences, to hillsides and burnt out structures. The DSU staff will pick up medical records, x-rays and relevant samples, such as blood and tissue in hospital deaths. They will collect and package property and clothing, as well as, collect and book the evidence. They assist the Coroner Investigator with packaging and movement of the deceased. DSU staff will process incoming cases to include fingerprinting, undressing and documenting height and weight of the deceased. They are responsible for crypt management and releasing decedents, once the Department has concluded its examination. This requires a review of the documentation provided by the mortuary, a confirmation of the legal next of kin and a verification of the deceased being released. DSU staff provides transportation for indigent cases and veteran burials that the Department arranges. The DSU also staffs a twenty-four hours per day operation that receives calls from Los Angeles Police Department, Los Angeles County Sheriff Department, Los Angeles City Fire Department, Los Angeles County Fire Department, Los Angeles County Hospitals, and Mortuaries, within and outside of the Coroner’s jurisdiction. The Decedent Services Unit is responsible for crypt management of human remains prior to release for photograph, x-ray and autopsy. These services include preparation of “Proof of Death” letters to verify that a death is being investigated by the Coroner. As well as “Port of Entry” letters to confirm that a decedent had no communicable disease, which are necessary when a decedent is transferred into the United States after a death has occurred outside of the United States. Department of Medical Examiner-Coroner Personnel County of Los Angeles – Department of Medical Examiner-Coroner Budgeted allocated positions Fiscal Year (FY) 2017-2018 Unit Description Budget/Allocated Vacant Administration 58 5 Operations Bureau – Investigations 78 13 Operations Bureau – Forensic Services 29 2 Forensic Laboratory Services 29 3 Forensic Medicine 28 7 Forensic Medicine – Photo and Support 26 1 TOTAL 248 31 There are extensive processes for vetting new hires of Coroner Investigator Trainees (CITs). The process can take up to a year from the time an individual applies to the time they are hired. DME-C Organization chart 196 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT After hiring, there is a training period for CITs that takes approximately one year. This would equal a total processing time of up to 2 years. In the last Coroner Investigator Trainee (CIT) exam administered in 2017 out of a total of 979 applications, there were a total of 7 candidates hired. The reason for disqualification were, failing the willingness questionnaire, incomplete applications, failure to appear for the exam, failing the written exam, failing the oral exam, and one candidate withdrew. Finally, 163 candidates were added to the certification list. However, of the 163 candidates, only 30 candidates were classified in the primary acceptable bands of the “V” (Veteran) or Band 1. These “bands” represent 5 selection groups the highest being “V” and Bank 1, extending down to Band 4. Usually the “V” Band and Band 1 are the bands from which candidates are selected, with difficulty reaching down into the other Bands to select additional candidates. All 30 were invited to the selection interview. During that time, there were 12 CIT vacancies. Thirteen (13) offers were made and seven (7) candidates mentioned above were hired. The remaining candidates either withdrew (3) or failed the background (3) process.20 This demonstrates the difficulty in recruitment and hiring, especially in the Investigative Division and in Forensic Medicine, which currently have the most important needs. Criminalist positions, such as administrative or other support positions can typically be brought on board within four months depending on the size of the eligible list. With a population of over 10 million people in Los Angeles County, approximately 78,000 to 80,000 residents die each year. The coroner’s office investigates about 20,000 to 22,000 of those deaths. The Coroner’s office received a total of 5418 requests for documents (Proof of Death Letters, Autopsy Reports, and Investigator Reports). This includes calls, mail, e-mail, walk-ins and online. The present DME-C case management system does not have an area in the document request screen (DRS) to note how a request was made, which prevents them from specifying how many calls were received.21 The coroner’s office conducts about 8,500 case examinations each year. There are four levels or types of examinations ranging from an external cursory examination to a full-scale autopsy. 1. Type I – Medical-Legal (performed as prescribed by law) 2. Type II – Clinical or Pathological (particular disease or research) 3. Type III – Anatomical or Academic (med-school anatomy students) 4. Type IV – Virtual or Medical Imaging autopsies. The coroner operates from a single central location in downtown Los Angeles and two small satellite offices located in the Antelope Valley and in San Fernando22 . The enormous size and constant congestion of Los Angeles County require the coroner staff to travel at least 30 to 90 minutes, and sometimes up to three hours, to investigate a scene of death and remove bodies. A body cannot be moved from an accident or crime scene until the coroner arrives and gives permission.23 20 DME-C Senior Staff regarding banding Los Angeles County.gov hiring process for (CIT) 21 DME-C Senior Staff 22 Ibid 23 Ibid 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 197
F4:
There is a strong need to replace the cremation retort and or outsource unclaimed remains. ODA County Morgue The Los Angeles County and University of Southern California Medical Center’s (LAC&USC Medical Center) Office of Decedent Affairs (ODA) is located on the grounds directly across from the Coroners Facility. The ODA processes all deaths that occur at the LAC&USC Medical Center. ODA also is comprised of the county morgue, the crematory, and the Los Angeles County Cemetery (Evergreen Cemetery)24. The ODA Manager reports up the chain of command to the Associate Hospital Administrator, who reports to the Hospital Chief Operations Officer, who reports to the Hospital CEO, who reports to the Director of Department of Health Services (DHS), who reports to the Board of Supervisors (BOS). The LAC+USC is responsible for all unclaimed and indigent deceased that do not come under the Coroner’s jurisdiction. The decedents are picked up by the Morgue staff or brought in by private mortuaries for storage in the County Morgue awaiting final disposition (cremation)25. The morgue itself holds only 43 decedents. Any in excess of this number are stored in refrigerated outdoor containers. The morgue processes all deaths that occur in LAC+USC Medical Center, as well as, indigent and unclaimed persons throughout the County as reported by hospitals, nursing homes, convalescent homes and law enforcement agencies. The remains are taken to the LAC+USC Medical Center by Decedent Affairs Office Mortuary Attendants. If no estate or family is available to assume the responsibility of the deceased, the County takes responsibility for cremating the decedent. The ODA also manages and operates the crematory and receives on average 8 cases daily. The crematory’s single functioning retort can only process 2 decedents per working day or 8 to 10 decedents per week, therefore 60 to 80 percent of decedents are outsourced. The current County Crematory Retorts and Decedent Refrigeration Units are at the end of their useful life26. The ODA does not have reliable options should a natural disaster or mass casualty situation arise. The 911 call flow process is that all law enforcement agencies, nursing and convalescent homes call directly to the Coroner to report a death27. The call is then screened by the coroner to determine name, age, family contact, address and to determine if there is a physician to sign the Death Certificate. If the death does not come under the Coroners jurisdiction, the County Mortuary Attendant is dispatched for pick-up, if no morgue staff is available. If the individual remains unclaimed after thirty days, they are cremated at the county crematory at county expense. Transporting creates an added burden, especially in the north area of the county which is distant to the morgue. 24 https//www.laconservancy.org/locations/evergreen-cemetery 25 Senior Administrator at LAC+USC 26 Ibid 27 Flow chart for DME-C 198 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT