Napa County Grand Jury
2024-2025
From the annual report
The consolidated year-end volume. The individual investigations it contains are listed separately below.
📑 Year-End Report
The full consolidated volume; individual reports are listed below.
Individual reports (10)
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Findings & Recommendations
6 findings
F1:
Bond financing is the primary source of funding for addressing the capital needs of the Napa Valley Unified School District.
F2:
The NVUSD website is complex to navigate making it difficult to find bond financial data and reports.
F3:
Charging NVUSD employee salaries against bond funds, while permissible in limited circumstances, may reduce public trust by contradicting public pledges and bond ballot language that states, “no funds for administrators”.
F4:
NVUSD does not adequately inform the general public that the Citizen Bond Oversight Committees play critical roles in satisfying California’s Proposition 39 (2000), which requires school boards to establish independent oversight committees and conduct annual financial and performance audits until all bond funds have been spent.
F5:
NVUSD’s Citizen Bond Oversight Committees lack thorough and independent training on the roles, scope of work, relationship with school district personnel, and authority of its members.
F6:
The creation and execution of NVUSD’s 2016-2025 Facilities Master Plan had only limited public participation. NVUSD Policy 7110: Facilities Master Plan is found at the NVUSD Policies website, https://simbli.eboardsolutions.com/Policy/PolicyListing.aspx?S=36030213. Education Code § 17070.54. 43 | P a g e COMMENDATION The 2024-25 Napa County Civil Grand Jury commends the volunteer members of the NVUSD Bond Oversight Committees for their monitoring spending of Measure H and Measure A2 bond funds.
Additional Recommendations
6
Not linked to specific findings.
R1:
NVUSD should maintain an ongoing campaign using multiple media outlets and distribution tools to inform stakeholders and the general public on the details and progress of the projects associated with bond fund allocations, and do so by September 30, 2025.
R2:
Narrow bond measure election results strongly suggest that NVUSD should build community trust by proactively distributing information and updates to inform the general public on how bond funds are being allocated and used, and do so by September 30, 2025.
R3:
NVUSD should continue its current practice to refrain from using bond funds for any district salaries, operating expenses or other administrative activities.
R4:
NVUSD should inform the general public about the role of bond oversight committees and actively encourage stakeholder groups, especially community members and parents of students, to participate on such committees, effective no later than 90 days after the publication of this 2024-2025 Napa County Civil Grand Jury report.
R5:
NVUSD should arrange for independent training of Citizen Bond Oversight Committees, starting with the new Measure B committee, and do so by September 30, 2025.
R6:
NVUSD should implement fully its existing facilities planning policy by establishing a Facilities Advisory Committee consisting of staff, parents/guardians, and business, local government, and other community representatives, and do so before a new Facilities Master Plan is created and no later than June 30, 2026.
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Findings & Recommendations
8 findings
F1:
The Pope Valley Union Elementary School District failed to provide a safe learning environment and requisite education for its students.
F2:
The PVUESD Board of Trustees (School Board) failed to deliver the necessary oversight and direction for PVUESD operations and academic performance. At this time, the School Board appears to be focused on addressing past deficiencies and committed to providing the necessary oversight and direction to improve PVUESD operations and academic performance.
F3:
Prior school superintendents/principals failed to ensure student safety, address academic instruction and student performance gaps, or manage the school and staff effectively.
F4:
The Superintendent/Principal, who held the position during this Civil Grand Jury investigation, implemented policies and procedures to stabilize and build sustainable long-term operations, enforce student safety protocols, and improve academic instruction and student performance.
F5:
While the Civil Grand Jury investigation found no evidence of discrimination or unequal treatment by the school administration against Hispanic or Spanish-speaking families, the past lack of bilingual support revealed communication gaps, leaving Spanish-speaking parents and English Second Language learners feeling isolated and disconnected.
F6:
Inadequate communication by district and school management following the trial and conviction of a former school employee for student sexual abuse left parents feeling disconnected and frustrated.
F7:
School bus transportation service was found to be inadequate to serve the district, with persistent equipment problems undermining reliability.
F8:
The school community is divided, with one group of parents and teachers supporting changes in the school and another favoring a return to prior practices and personnel. 62 | P a g e
Additional Recommendations
6
Not linked to specific findings.
R1:
The School Board develop and implement a long-term strategy for the school district, prioritizing policies and procedures to ensure academic performance and operational effectiveness, and do so by the start of the 2025-2026 academic year.
R2:
The School Board ensure that school leadership possesses the necessary qualifications and experience to effectively prioritize student safety and educational excellence and do so by the start of the 2025-2026 academic year.
R3:
The Superintendent/Principal continue the ongoing improvement process at Pope Valley Union Elementary School and ensure that changes instituted continue should school management change and do so by the 2025-2026 academic year.
R4:
Regular updates by the School Board and Superintendent/Principal to inform the public, rebuild trust, promote inclusivity, and improve transparency in decision-making to strengthen the relationship between the school and the community, and do so by the start of the 2025-2026 academic year.
R5:
The Board of Trustees and Superintendent/Principal develop and execute a permanent solution to provide safe and reliable transportation for students by the start of the 2025-2026 academic year.
R6:
The Board of Trustees and the Superintendent/Principal use the various resources, training, and support opportunities available through the Napa County Office of Education (NCOE), Fiscal Crisis and Management Assistance Team (FCMAT), California School Board Association (CSBA) and other educational and leadership resources and implement plans by the start of 2025-2026 academic year.
Findings & Recommendations
5 findings
F1:
Pre-application review meetings are optional and come with a fee, which may discourage applicants from using this, reported as helpful, resource.
Related Recommendations (1)
R1:
The Napa County Board of Supervisors make pre-application meetings mandatory, eliminate upfront costs, and fold costs into the full permit fee for those who proceed, and to do so by July 2026.
F2:
The County’s 80% cost recovery fee model creates added burdens for applicants, with more challenges expected with the planned shift to 100% cost recovery.
Related Recommendations (1)
R2:
The Napa County Board of Supervisors implement a structured fee system based on project complexity whenever possible to ensure fairness and greater transparency, and to do so by July 2026.
F3:
The winery database is outdated and inaccurate, limiting its usefulness as a reliable permitting resource
Related Recommendations (1)
R3:
The Napa County Board of Supervisors update and maintain the winery database as the authoritative and trusted reference for permits in the County, and to do so by July 2027.
F4:
There is no process in place for conducting random audits to ensure winery permit compliance in the County.
Related Recommendations (1)
R4:
The Napa County Board of Supervisors establish a funded audit program to monitor winery compliance, and to do so by July 2026.
F5:
The Napa County Planning, Building & Environmental Services Department faces structural inefficiencies, including a high supervisor-to-staff ratio and a lack of effective management structure.
Related Recommendations (1)
R5:
The Napa County Board of Supervisors evaluate alternative management structures for the Napa County Planning, Building & Environmental Services Department to establish a flatter, more effective organization, and to do so by July 2026 .
Findings & Recommendations
12 findings
F1:
Napa County’s 2024 General Election was safe, secure, and performed with integrity.
F2:
The 2024 election procedures were followed in accordance with the law.
F3:
No eligible vote cast in the prescribed manner was found to be uncounted.
F4:
The Napa County election computer systems were secure.
F5:
The Voter Registration Database was maintained accurately.
F6:
The confidentiality of a voter’s ballot was maintained and protected throughout the entire election process.
F7:
The legally required manual audit of the election was secure and accurate.
F8:
The election process was transparent, and observers were welcomed and encouraged to witness the activity.
F9:
The Napa County Elections Division’s office workspace was inadequate and warrants improvement.
Related Recommendations (1)
R1:
The Napa County Board of Supervisors examine the need to upgrade the Napa Elections Office to ensure adequate office workspace for future elections. This examination should include collaboration with and input from the Napa County Elections Division staff, and should occur within 60 days, with a report of recommendations released in 45 days.
F10:
Napa County Elections Division website is lacking information and organization to assist voters and the community in an easy-to-understand format.
Related Recommendations (1)
R2:
The Napa County Elections Division review its website for modernization and standards to help the organization of information. The Elections website should include the public reports required by the state. Recommendation for a review and generation of areas of improvement of the website be within 60 days and implementation of changes within 180 days from the identification of the areas of improvement.
F11:
Napa County Elections Division did not maintain its own social media accounts as required by the Napa County Social Media Use Policy, leading to personnel utilizing personal accounts for county business.
Related Recommendations (1)
R3:
The Napa County Elections Division set up and maintain its own social media accounts to distribute voter information, and staff should refrain from using personal 13 accounts to communicate official county business. Both of these recommendations should be implemented within 90 days.
F12:
Napa County Elections Division outreach failed to use effective strategies to target soon-to-be-of-age eligible voters.
Related Recommendations (1)
R4:
The Napa County Elections Division examine its outreach program directed to those coming of age to vote. This outreach should be added to the next iteration of the Napa County Election Administration Plan (EAP). Materials should be readily available and circulated within 30 days.
Findings & Recommendations
8 findings
F1:
The Pope Valley Union Elementary School District failed to provide a safe learning environment and requisite education for its students.
Related Recommendations (1)
R1:
The School Board develop and implement a long-term strategy for the school district, prioritizing policies and procedures to ensure academic performance and operational effectiveness, and do so by the start of the 2025-2026 academic year.
F2:
The PVUESD Board of Trustees (School Board) failed to deliver the necessary oversight and direction for PVUESD operations and academic performance. At this time, the School Board appears to be focused on addressing past deficiencies and committed to providing the necessary oversight and direction to improve PVUESD operations and academic performance.
Related Recommendations (1)
R2:
The School Board ensure that school leadership possesses the necessary qualifications and experience to effectively prioritize student safety and educational excellence and do so by the start of the 2025-2026 academic year.
F3:
Prior school superintendents/principals failed to ensure student safety, address academic instruction and student performance gaps, or manage the school and staff effectively. 14
Related Recommendations (1)
R3:
The Superintendent/Principal continue the ongoing improvement process at Pope Valley Union Elementary School and ensure that changes instituted continue should school management change and do so by the 2025-2026 academic year.
F4:
The Superintendent/Principal, who held the position during this Civil Grand Jury investigation, implemented policies and procedures to stabilize and build sustainable long-term operations, enforce student safety protocols, and improve academic instruction and student performance.
Related Recommendations (1)
R4:
Regular updates by the School Board and Superintendent/Principal to inform the public, rebuild trust, promote inclusivity, and improve transparency in decision-making to strengthen the relationship between the school and the community, and do so by the start of the 2025-2026 academic year.
F5:
While the Civil Grand Jury investigation found no evidence of discrimination or unequal treatment by the school administration against Hispanic or Spanish-speaking families, the past lack of bilingual support revealed communication gaps, leaving Spanish-speaking parents and English Second Language learners feeling isolated and disconnected.
Related Recommendations (1)
R5:
The Board of Trustees and Superintendent/Principal develop and execute a permanent solution to provide safe and reliable transportation for students by the start of the 2025-2026 academic year. 15
F6:
Inadequate communication by district and school management following the trial and conviction of a former school employee for student sexual abuse left parents feeling disconnected and frustrated.
Related Recommendations (1)
R6:
The Board of Trustees and the Superintendent/Principal use the various resources, training, and support opportunities available through the Napa County Office of Education (NCOE), Fiscal Crisis and Management Assistance Team (FCMAT), California School Board Association (CSBA) and other educational and leadership resources and implement plans by the start of 2025-2026 academic year.
F7:
School bus transportation service was found to be inadequate to serve the district, with persistent equipment problems undermining reliability.
F8:
The school community is divided, with one group of parents and teachers supporting changes in the school and another favoring a return to prior practices and personnel.
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Findings & Recommendations
6 findings
F1:
Bond financing is the primary source of funding for addressing the capital needs of the Napa Valley Unified School District.
Related Recommendations (1)
R1:
NVUSD should maintain an ongoing campaign using multiple media outlets and distribution tools to inform stakeholders and the general public on the details and progress of the projects associated with bond fund allocations, and do so by September 30, 2025.
F2:
The NVUSD website is complex to navigate making it difficult to find bond financial data and reports.
Related Recommendations (1)
R2:
Narrow bond measure election results strongly suggest that NVUSD should build community trust by proactively distributing information and updates to inform the general public on how bond funds are being allocated and used, and do so by September 30, 2025.
F3:
Charging NVUSD employee salaries against bond funds, while permissible in limited circumstances, may reduce public trust by contradicting public pledges and bond ballot language that states, “no funds for administrators”.
Related Recommendations (1)
R3:
NVUSD should continue its current practice to refrain from using bond funds for any district salaries, operating expenses or other administrative activities.
F4:
NVUSD does not adequately inform the general public that the Citizen Bond Oversight Committees play critical roles in satisfying California’s Proposition 39 (2000), which requires school boards to establish independent oversight committees and conduct annual financial and performance audits until all bond funds have been spent.
Related Recommendations (1)
R4:
NVUSD should inform the general public about the role of bond oversight committees and actively encourage stakeholder groups, especially community members and parents of students, to participate on such committees, effective no later than 90 days after the publication of this 2024-2025 Napa County Civil Grand Jury report.
F5:
NVUSD’s Citizen Bond Oversight Committees lack thorough and independent training on the roles, scope of work, relationship with school district personnel, and authority of its members.
Related Recommendations (1)
R5:
NVUSD should arrange for independent training of Citizen Bond Oversight Committees, starting with the new Measure B committee, and do so by September 30, 2025.
F6:
The creation and execution of NVUSD’s 2016-2025 Facilities Master Plan had only limited public participation. COMMENDATION The 2024-25 Napa County Civil Grand Jury commends the volunteer members of the NVUSD Bond Oversight Committees for their monitoring spending of Measure H and Measure A2 bond funds. Education Code § 17070.54. 13 | Pa ge
Related Recommendations (1)
R6:
NVUSD should implement fully its existing facilities planning policy by establishing a Facilities Advisory Committee consisting of staff, parents/guardians, and business, local government, and other community representatives, and do so before a new Facilities Master Plan is created and no later than June 30, 2026.
Findings & Recommendations
7 findings
F1:
Although Skyline Academy was scheduled to open at the end of 2023, the Jury’s investigation detected limited organized effort toward the opening, no urgency, and minimal forward progress. The Chief Probation Officer disagrees with the finding. Contrary to this finding, the Skyline Academy opened as a pilot program in Juvenile Hall in January 2024 and has since served seven in-custody youth with enhanced evidence-based programming, prosocial activities, and targeted interventions addressing criminogenic needs. This initiative required a substantial coordinated effort among multiple agencies, community partners, and stakeholders, all working towards a common goal. The project's success necessitated extensive infrastructure work, including approvals, funding allocations, and conceptual designs. Construction in a detention facility demands multiple levels of legal compliance and design review, which naturally take time to work through county and state processes. The preparatory phase involved significant data mining, financial and resource reviews, and reallocation of staffing resources, alongside efforts to recruit for hard-to-fill positions. Recognizing that the heart of every successful program lies in its people, the project emphasized staff involvement. Experts in their respective fields were given the opportunity to contribute through a committee-based approach, ensuring buy-in and long-term sustainability. The pilot program aimed to keep youth local, focusing on their rehabilitative goals, and provided staff and providers the chance to engage with the youth prior to the formal program launch. This approach allowed the youth to have a voice in their own rehabilitation process. The pilot program has been serving seven Napa County youth who would have otherwise been transferred outside of the county, away from their families. The pilot program underscores the commitment to building a culture of support, safety, rehabilitation, and opportunity for the youth. The program continues to develop and is scheduled to formally open by the end of Summer 2024, reflecting a deep commitment to fostering a supportive and rehabilitative environment for youth in need.
F2:
Repeated requests for details on the development of Skyline Academy went unmet, leading the Jury to conclude that no formal project plan is being implemented. The Chief Probation Officer partially disagrees with the finding. All requests for information made directly from the Chief Probation Officer were provided timely, which is the expectation, and all staff will be notified via memo of this standard. The definition or expectations of a formal project plan may be interpreted differently, as the focus was on designing and developing a program that meets the individual needs of youth, creating linkages 88 | P a g e to robust community supports, engaging a variety of stakeholders, organizing construction projects, completing contracts and requests for proposals, creating new logos, increasing youth literacy and educational opportunities through new tablets for youth and career-technical education, painting murals to soften the look of the facility, seeking ways to expand opportunities for youth both inside and outside of the program, increasing mental health services, and creating programming infrastructure that is culturally relevant and in the native language of the youth and their families when possible. The development and implementation of the pilot program involved numerous stakeholders and was structured through the department’s strategic planning initiative, intentionally designed to leverage a committee structure. This collaborative approach ensured that subject matter experts within the department had the authority and ability to contribute to the design, creation, and implementation of the program, resulting in a more innovative and community-focused initiative. The pilot phase was led by a committee of staff and has allowed for valuable learning and adjustments, ensuring that the final program is well-suited to the needs of the youth and families they serve. By fostering a collaborative environment and involving various experts in leadership roles, the program aims to deliver targeted and effective interventions for youth. The formal program documents are being finalized, with full implementation scheduled by the end of Summer 2024, reflecting a steadfast dedication to building a supportive, accountable, and rehabilitative culture for youth.
F3:
The Jury found that normal operations in the Prospect wing of Juvenile Hall (which houses short-term youth) have been resumed following the suspension of Covid restrictions. The Chief Probation Officer agrees with the finding.
F4:
The Jury found that an annual golf tournament held in Napa County has consistently been allowed to not comply with the permit application rules. The County Executive Officer and Planning Building and Environmental Services Director disagree with the finding. The annual golf tournament is not considered a Temporary Event and therefore not subject to the County’s Temporary Events License Permit and related review procedures, and submittal and processing deadlines. The annual golf tournament is reviewed and authorized under a Site Plan Approval, which is governed by the Use Permit for the Resort that has been in place since 1964. The Board of Supervisors agrees with the County Executive Officer and the Planning Building and Environmental Services Director.
F5:
The Napa County permit matrix to be a complex five-page document that is confusing to the average applicant. The County Executive Officer and Planning Building and Environmental Services Director partly disagree with the finding. The permit matrix was intended to be an internal guidance document for staff to facilitate their review of building permit applications. It was not intended for public use and as such was not written in layman’s terms. As part of the goals for the Building Division for fiscal year 24/25 detailed above, Staff will be reviewing the information and content on the web site and preparing enhancements to the available documents that will provide a better understanding of the permitting process. The Board of Supervisors agrees with the County Executive Officer and Planning Building and Environmental Services Director.
F6:
The PBES is currently without a formal process for customers to provide feedback, either in person or on the website. The County Executive Officer and Planning Building and Environmental Services Director partially disagree with the finding. Staff has conducted one-on-one meetings and group discussions with industry professionals and builders regarding the permitting process this past year in order to obtain feedback regarding our online digital permitting process. This approach not only provided us feedback on the process of permitting it also gives the building staff an educational opportunity to discuss 92 | P a g e particular permitting requirements and develop productive relationships with the design and building construction community. The Building Division intends to expand upon these efforts to conduct surveys of the permitting process which will be sent out to applicants who have used the system in the past year. The Board of Supervisors agrees with the County Executive Officer and Planning Building and Environmental Services Director.
F7:
The PBES does not assign specific field inspectors for entire projects leading to potential conflicting opinions about required corrective actions. The County Executive Officer and Planning Building and Environmental Services Director partially disagree with the finding. Building inspectors are assigned to a mapped district. Every effort is made to have the same inspector conduct inspections for the same project; however, individual inspectors may be unavailable. As such, rather than delay the progress of construction, other inspectors may be called upon to provide a timely inspection. Additionally, workload in one area may be greater, so two inspectors may be needed to cover the demand for that district. With that said, the inspectors strive for consistency and are all trained on the California Building Code. With regard to inspections related to correction notices, on occasion an inspector may not be available for a follow-up inspection, and a different inspector may be assigned to conduct the inspection. The inspector will typically focus solely on the items the prior inspector noted and confirm those they have been corrected. If they see additional items that the prior inspector may have inadvertently overlooked, they are advised to honor the prior inspector's corrections unless they observe a life safety violation. The Board of Supervisors agrees with the County Executive Officer and Planning Building and Environmental Services Director.
Additional Recommendations
9
Not linked to specific findings.
R1:
By October 1, 2024, the Board of Supervisors direct the Napa County Probation Officer to develop and implement a detailed project plan for the Skyline Academy. The plan should formalize the project scope, be updated monthly, and provide a timeline, steps toward completion, assigned tasks, progress towards goals, available resources, and a budget. The Chief Probation Officer: This recommendation will not be implemented, because it is not warranted. The Skyline Academy is scheduled to formally open by the end of Summer 2024, making this level of detailed project planning for implementation unnecessary. The program has been in a pilot phase since January 2024. The need for this program arose, in part, from the rapid passage of Senate Bill 823, which realigned the Division of Juvenile Justice population in California from the state to the local level. This historic change required a complete redesign of how serious and violent youth were handled statewide. Napa County did not open a Secure Track Program, which is designed for youth who would have otherwise been sent to the state Division of Juvenile Justice. Napa 89 | P a g e County prioritizes the rehabilitation of youth while holding them accountable for their behaviors with the goal of rehabilitation prior to adulthood. Consequently, the County has not sent many youths to the state for care and could not sustain opening a Secure Track Program.
R2:
By October 1, 2024, the Board of Supervisors direct the Napa County Probation Officer to identify a project manager to be accountable for the timely and successful completion of Skyline Academy. The Chief Probation Officer: The recommendation has been implemented. The Napa County Probation Department recruited and hired a Chief Deputy Probation Officer to oversee Juvenile Hall, who also serves as the project manager for the program. Additional support includes the Assistant Chief Probation Officer and the Chief Deputy overseeing the Juvenile Division to ensure the program operates as intended both during the pilot phase and the formal operations phase. The Board of Supervisors agree with the Chief Probation Officer. 90 | P a g e NAPA COUNTY BUILDING DEPARTMENT: THE GOOD, THE BAD, AND THE CONFUSING Report Date: 5/1/2024 Response Date County Executive Officer: 8/6/2024 (97 days) Response Date Fire Administrator: 8/6/2024 (97 days) Response Date PBES Director: 8/6/2024 (97 days) Response Date County Fire Marshal: 8/6/2024 (97 days)
R3:
The Jury recommends that PBES immediately require compliance with the 60 (50) day rule for all applicants of temporary events license permits. The recommendation has not yet been implemented.
R4:
By December 31, 2024, the Jury recommends that PBES initiate a comprehensive review of existing policies and procedures regarding temporary events license permits to ensure future compliance and accountability. The recommendation has not yet been implemented. Please see response to Recommendation 3. The Board of Supervisors agrees with the Director of the Department of Planning, Building and Environmental Services.
R5:
By December 31, 2024, the Jury recommends that PBES modify the existing internal matrix into a format understandable by applicants. Director of the Department of Planning, Building and Environmental Services: The recommendation has not yet been implemented.
R6:
By September 30, 2024, the Jury recommends that PBES develop a customer feedback option, in person and online, as part of the application process. PBES should retain these records for potential performance improvement and evaluation purposes. Director of the Department of Planning, Building and Environmental Services: The recommendation has not yet been implemented.
R7:
The Jury recommends that, whenever possible PBES send the same inspector to conduct follow-up inspections. Director of the Department of Planning, Building and Environmental Services: The recommendation has been implemented. Inspectors are currently assigned districts (as noted in the Finding 7 response) corresponding to areas in which they are responsible for inspections. Staff strives to have the same inspector out for the same project; however, inspectors are sometimes unavailable due to personal leave, like time off, sickness, or needing to care for a loved one. Other inspectors may need to fill in to fulfill a timely inspection. Additionally, workload in one area may be greater, so two inspectors may be needed to cover the demand for that district. On occasion, an inspector may not be available for a follow up inspection that they provided a correction notice on. A different inspector may conduct the inspection. The inspector will typically only be looking at what the prior inspector noted and just confirms those items are corrected. If they see additional items that the prior inspector missed, they are advised to honor the prior inspector's corrections unless they observe a life safety violation. In these rare occasions, the inspector then uses their judgement when requiring additional corrections while considering the safety of the building and its occupants. The Board of Supervisors agrees with the Director of the Department of Planning, Building and Environmental Services.
R8:
The Jury recommends that PBES immediately establish a protocol for resolving conflicting code interpretations by different inspectors on the same project. Director of the Department of Planning, Building and Environmental Services: The recommendation has not yet been implemented.
R9:
By December 31, 2024, the Jury recommends that PBES provide mobile compatible electronic devices for each field inspector capable of reviewing plans and prior inspection notes. Director of the Department of Planning, Building and Environmental Services: The recommendation has not yet been implemented. In the fall of 2023, a single iPad was issued to the inspection team to allow preliminary testing of a mobile tablet device in the field. Based on the feedback received, the testing was expanded to include the purchase and issuance of two additional tablets to the inspection staff. Subsequently, two more tablets have been requested, bringing the total number up to five (5). This will enable each of our inspectors the ability to result inspections, view previous inspection results and comments, and access digital plans while conducting their inspections in the field. It is important to note that iPads and other remote electronic devices are limited by the wireless network coverage throughout the County. The hills and valleys in the County result in some areas lacking cell coverage, preventing the devices from communicating with the permitting software at the County offices. Despite these challenges, it has been proven that an iPad or similar device is useful in most parts of the County. We will have the 5 iPads implemented by September 30, 2024. The Board of Supervisors agrees with the Director of the Department of Planning, Building and Environmental Services.
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Findings & Recommendations
9 findings
F1:
The Jury found that gang activity and gang association in Napa County are on the rise. The City of Napa agrees with the finding. The District Attorney and Sheriff agree with this finding.
F2:
The Jury found that due to the employment demographics in Napa County, increasing numbers of children are left unsupervised. This situation was exacerbated by the Covid Pandemic. The City of Napa agrees with the finding. The District Attorney and the Sheriff agree in part with this finding but would be interested in looking into more evidence to in support of this finding, or learning if it is California-wide, or unique to Napa County.
F3:
The Jury found current gang activity and recruitment is more apparent in middle school and even younger ages. The City of Napa agrees with the finding. The District Attorney and Sheriff agree with this finding.
F4:
The Jury found that despite it having been proved to be successful, vocational curriculum has been eliminated within the NVUSD. The City of Napa agrees with the finding. The District Attorney and Sheriff agree with this finding. NVUSD disagrees with this finding. NVUSD has not eliminated its vocational curriculum. NVUSD’s vocational curriculum offerings have been relabeled as Career Technical Education or “CTE,” and as described in more detail below, NVUSD has extensive offerings for students at all of NVUSD’s high schools.
F5:
The Jury found that Napa County has little to no after school activities for teens and preteens. There is a need for organized free programs, including sports and other after school activities. 125 | P a g e The City of Napa disagrees partially with the finding. While the City of Napa agrees that additional programs would be beneficial to the community, we disagree that there are little to no programs available. Programs are available, as discovered by the members of the Grand Jury, however not all families are aware of the programs or may experience barriers to participating in the programming. For example, some programs may require a guardian or parent to pick up the child at a specific time. The District Attorney and Sheriff agree in part, that more free and affordable programs would be good for the community. We disagree, however, with the description of "little to no" after school activities. In addition to the affordable programs for teens and pre-teens offered by the various Parks and Recreation departments of the various cities in Napa County, the Napa Valley Boys and Girls Club and the Boys and Girls Club of St. Helena and Calistoga offer a variety of after school programs for affordable fees that are largely subsidized by both government grants and local philanthropy. Napa County also offers a variety of youth sports including soccer (all levels), rugby, lacrosse, football, baseball, among others. The various youth sports organizations vary in pricing but most offer scholarships and financial aid with the assistance of local philanthropy. The Napa Sheriff's Activities League (SAL) also offers a variety of free sports programs including Boxing, Baseball skills, Judo, and Wrestling. SAL also has an after-school fitness center in East Napa. The SAL programs are free of charge. Besides SAL Boxing, there are four additional boxing clubs in Napa that are fee based, but affordable. The local mental health non- profit, Mentis, also offers "Napa Valley Teens Connect", which offers mental health, empowerment, wellness programs at various NVUSD school sites. The School District disagrees with this finding in part. While the School District agrees that more after-school activities are needed throughout the County, as described in more detail below, the School District offers a number of organized free programs, including sports and other after- school activities at every single school in the School District.
F6:
The Jury found that gang activity is supported by illegal money-making opportunities which can be attractive to underprivileged youth. The City of Napa agrees with the finding. The District Attorney and Sheriff agree with this finding.
F7:
The Jury found that coordination and communication among law enforcement, educators, and local service providers is not effective. The City of Napa disagrees partially with the finding. The city supports additional efforts and recommendations to improve coordination and communication between partner agencies, however information that impacts the safety of the children is freely shared between public safety and academic organizations. Napa Police Department Youth Services/Student Resource Officers (SROs) and Napa Valley Unified School District are in regular communication. Leadership of these organizations also meet quarterly. 126 | P a g e The District Attorney and Sheriff partially disagrees with this finding. We support efforts to expand coordination and communication to share information and intelligence through relationships, phone calls, and virtual and in=person meetings. The Napa County law enforcement community, and particularly the members of this community involved in juvenile crime prevention and enforcement, is small. Napa Police Department's Youth Services Bureau (YSB), the various School Resource Officers (SROs) from all agencies, juvenile probation officers, prosecutors, and many of the service providers are in frequent communication already. Their meetings and relationships are such that they can discuss or call one another with any questions or information as needed.
F8:
The Jury found that data on gang membership and activity is limited and ineffective at gang intervention and prevention. The City of Napa agrees with the finding. The District Attorney and Sheriff agree that the data is limited, and that this limitation can hinder gang intervention and prevention.
F9:
The Jury found that some state legislation and propositions passed by the voters are hindering law enforcement’s ability to interdict gang crime and, in doing so, improve gangs’ ability to make money, which attracts more gang members. The City of Napa agrees with the finding. The District Attorney and Sheriff Office agree with this finding.
Additional Recommendations
10
Not linked to specific findings.
R1:
By December 31, 2024, Napa Valley Unified School District and Napa County Office of Education will implement programs that focus on elementary and middle schools with gang prevention and parental education programs. The School District already offers a wide range of curricular and community resources to students and their families to educate, intervene, and support students so that they make good choices in their lives, resist the allure of gangs, and are able to focus on their future goals, including college and vocational careers. The following summarizes existing programs, partnerships and parental education programs that were offered in 2023-2024 and which will continue in 2024-2025. We are always open to additional opportunities and partnerships with not only the Napa County Office of Education but other community organizations and groups.
R2:
By the fall of 2025, Napa Valley Unified School District and Napa County Office of Education restore free high school vocational curriculums (CTE- Career and Technology Education) and partner with local industries to align their course offerings with labor market needs. As mentioned above, vocational curriculum, which has been relabeled Career Technical Education or “CTE,” has not been eliminated within the School District. We support Career Technical Education in all five high schools, and all CTE programs include 131 | P a g e industry-aligned classes and programs. CTE course offerings available at district high schools from the 2023-2024 school year include the following: 1. American Canyon High School Business, Culinary Arts and Hospitality, Education, Sports Medicine, Sustainable Construction 2. Napa High School Engineering and Robotics, Manufacturing and Product Development, Medical Science, Sustainable Construction 3. New Technology High School Digital Design 4. Valley Oak High School Design, Visual and Media Art 5. Vintage High School Agriscience, Animal Science, Business, Culinary Arts and Hospitality, Multimedia Production, Printing and Graphics, Woodworking
R3:
By the fall of 2025, Napa Valley Unified School District and Napa County Office of Education, to maximize OTS (out of school time), partner with non-profit stakeholders to provide enriching experiences that provide lasting developmental benefits. Napa Valley Unified School District (NVUSD) Besides the myriad academic, co-curricular, and social-emotional in-school experiences our certificated and classified staff members provide our students every day of the school year, our District provides students with significant OTS activities. These programs provide a safe environment for students to learn and play until 6:00 pm. We have maximized our ELOP funding, particularly with respect to elementary students, to ensure that they have a safe, engaging, and welcoming environment in which they can play and learn after-school and during vacation breaks between school sessions. Moreover, as described above, we have many 134 | P a g e existing partnerships with a variety of nonprofit and community organizations that help support both our students and our families. Among the many skills that are supported in the OTS programs, some of them include: 1. Elementary students learn how to socialize, regulate their emotions, make friends, and engage in healthy physical activity. 2. Middle school students learn about developing positive relationships (e.g., navigating friendships, healthy boundaries), responsible technology use; they also have recreational opportunities and homework tutoring is available. 3. All students have more specialized interventions and OTS programs and supports that can be tailored to them on a case-by-case basis. These programs are outlined in more detail below. Elementary School After-School Programs 1. Expanded Learning Opportunities Program (“ELOP”): The State provides funding for after-school, intersession, and summer enrichment programs for TK-6 graders. In 2023- 2024, the School District was able to utilize ELOP funding to develop: a. Expanded TK to all elementary schools in the district. In 2021, we had only 7 TK classrooms; in the 2024-2025 school year, we will have 19 TK classrooms. b. Expanded childcare, after-school programs, & enrichment opportunities: The District collaborates with numerous community organizations and over 2,500 TK- 6th grade students enroll in these programs. Our families benefit from our partnerships with NVUSD Childcare, Boys and Girls Club, and Cool School. Parents know that their students have a welcoming place where their students can learn, have fun, and be safe when not in school. These programs provide free access for qualifying families in grades TK-6, often serving our most vulnerable populations. Middle School After-School Programs 1. Community Partnerships: All middle school students have access to expanded learning through Boys and Girls Club or ACE Excel (NCOE). Academic intervention and enrichment are embedded in the after-school program at the middle school level. 2. Expanded Athletic Programming: Beginning in 2022-2023, our middle schools offered two competitive 6th grade sports and seven competitive sports for 7th and 8th grades. The district continued to offer a full range of competitive sports at the middle school level. High School Intervention and After-School Programs NVUSD partners with Boys and Girls Club of Napa Valley to provide after-school programming to high school students. The partnership in 2023-2024 increased after-school services to high school students from 69 students to 114 students. During this time, high school students are receiving academic supports and career-aligned learning to help them succeed and thrive so that they can have the full complement of life choices they deserve. Finally, we are always open to additional opportunities and partnerships community organizations, nonprofits, and other individuals and groups that can help our students. 135 | P a g e Napa County Office of Education (NCOE) As mentioned in response to Recommendation 1, the Napa County Office of Education partners with all school districts to provide Out of School time expanded learning programming (before, after; and intersession). NCOE provides programming to TK-8th grade students directly operating the COOL School and ACE programs at 10 school sites in Napa County. We partner with the Boys and Girls Club of Napa to support programming at 5 additional sites in Napa. We also partner with the Boys and Girls Club of Calistoga/ St Helena to provide programming at 5 Up Valley sites. Expanded Learning programs are offered until 6PM each day and are available to all students, regardless of family income level. Additionally, 30 days of intersession programming (during school breaks) are available and open from 8AM-6PM. Our programs offer a balance of academic intervention and enrichment plus physical activities throughout the regular school year and summer. We pride ourselves on delivering engaging programming that supports student growth by following the 12 after school quality standards. There are numerous organized sports programs operated by groups outside the school system that include soccer, baseball, and tennis, among others. An issue with expanding these programs, or even keeping them alive, is the lack of available land for suitable fields. While the school districts may have suitable property, there are issues of safety, liability, school district priority, and supervision that make the districts reluctant to open them to outside groups after school, on weekends and in the summer. Purchasing land in Napa County is prohibitively expensive, and there is often resistance by nearby residents of any identified property to the additional noise, traffic, and litter that turning empty fields into sports arenas for children may bring. We hope that by gathering all relevant parties to a meeting on September 5 we can develop a plan to overcome the resistance. Additional opportunities for engagement in afterschool activities might take place in the public libraries, which may be able to offer programs that will bring more children to organized activities, and businesses may be willing to offer additional internships, job shadows, or employment opportunities in the service of reducing the allure of gangs.
R4:
By December 31, 2024, Napa Valley Unified School District and Napa County Office of Education establish a bi-annual meeting between the Napa Valley Unified School District, Napa County Office of Education and business community organizations such as Rotary, Elks, Moose, Napa Chamber of Commerce, and the Napa County Hispanic Chamber of Commerce to create job opportunities, internships, and training for credits. Napa Valley Unified School District (NVUSD) The Superintendent, administrative team, and NVUSD Board of Education Trustees leverage various opportunities to engage with the local agencies and organizations when possible and as necessary. For example, and most recently, the district engaged in a yearlong process to produce its 15-year strategic vision (Vision 2040) and 2024-2029 action plan where community members, from a variety of local organizations, were invited to participate and provide feedback on its development. In fact, the district gathered approximately 70,000 data points through this yearlong engagement process that informed the development of the vision and plan. The district leverages and appreciates many opportunities such as this one, to proactively engage and 136 | P a g e partner with local agencies and community-based organizations while it aims to continuously improve the school system for all students. In the 2023-2024 school year, the district launched its first industry advisory for the Agriculture Science Innovation Program, where industry experts consult with District personnel to help ensure that we better prepare students for the 21st century workplace. We have approximately 15-20 industry and community partners who advise District staff on current industry standards. Additionally, NVUSD staff established foundational partnerships with economic, workforce and educational partners, such as the Economic Development Division of Napa, Workforce Alliance of the North Bay, Yountville and Napa Chamber of Commerce during the 2023-2024 school year. The Executive Director of the Workforce Alliance of the North Bay is a member of the NVUSD College and Career Readiness Leadership Team that meets monthly. NVUSD will formalize these relationships through the development and launch of the Economic, Employment, Education Collaborative (“E3 Collaborative”). The E3 Collaborative brings industry partners, commerce, workforce, K-14 education together in support of a shared vision to create a talent pipeline in high wage, high demand local and regional industries and support students' career goals. Napa County Office of Education (NCOE) The Napa County Office of Education launched the Napa County Collaborative (NCC), in 2022, a regional partnership composed of K-12 partners, higher education, local government, business and community partners. The committee formed to align career readiness and workforce development with the goal of building a relationship infrastructure for ongoing work together. By braiding our approaches and combining resources we will meet the needs of our region and expand diverse opportunities for students. The NCC meets bi-monthly and hosts a yearly meeting to review CTE pathways and labor market information as well as make suggested changes to curriculum and equipment that meets labor market needs. We will continue to expand this work, incorporating additional community partners and ensuring we are addressing the needs of all students with engaging hands-on opportunities and internships. A new opportunity has become available to introduce middle school students to trade careers such as electrical, plumbing, HVAC, welding, and others. A non-profit established by former State Superintendent of Public Instruction Tom Torlakson will provide field trips to eighth graders, so that they can learn about the opportunities in these careers, including apprenticeships, while they are studying to learn the trade so that they leave after completing their studies with a certification AND a bank account, instead of debt accrued during 4 or more years of college. This is an attractive option for many students and families, and an option they may not be aware of. We piloted this program in the spring by taking 7th and 8th graders from Howell Mountain and Pope Valley to the electrical apprenticeship program in Napa. The students were very excited about being there, and they left with a great deal of information about the program and the salaries earned by certified electricians! The directors of these apprenticeship programs have offered to speak to parent groups so that parents understand the economics of being certified in a trade, so that the parents don't automatically discourage their children who express interest in these career fields. 137 | P a g e We appreciate this recommendation, as it will bring in employers of small businesses, who may not have been involved when we try to develop internships. This will open up a greater variety of career areas as well.
R5:
By September 30, 2024, the Napa County Board of Supervisors and Napa City Council identify financial resources to support community efforts to help families in need. Napa City Council This recommendation requires further analysis during the City's annual budget process. The recommendation is not clear on which programs named in the Grandy Jury report require additional financial support from the City of Napa. Additionally, the City's budget is adopted on a fiscal year (July 1-June 30) basis. Requests for expanded or new programming would be best identified through the established budget process which will begin again in early 2025 with adoption of the fiscal year 2025-26 budget by the City Council in June 2025. The City of Napa can be immediately supportive of existing programs through additional communication via the Youth Services Bureau of the Napa Police Department, the School Resource Officers (SROs), Napa Police Department's Special Enforcement Unit (SEU), Homeless Intervention Coordinator, and the City of Napa's various social media platforms.
R6:
K12 SWP Preliminary Awards for more details). The funding will help us upgrade CTE pathways, integrate technology, provide relevant support for underserved populations, and facilitate student transitions to Napa Valley College in Agricultural and Natural Resource Pathways and Agricultural Science. We will upgrade three existing CTE pathways: Agriscience, Culinary & Hospitality, and Animal Science, as well as help us explore the addition of one new pathway: AgTech. This revitalization of our CTE Pathways will include upgrading curriculum and aligning innovative technology; targeting recruitment, counselor and scheduling support for CTE Pathway completion; increasing continuation to post-secondary education pathways with our partnership with Napa Valley College; and increasing CTE teacher capacity through externships and professional 132 | P a g e development. Given Napa County’s agricultural industry, the district is very excited about its ability to pursue this grant and expand its CTE offerings for students.
R7:
By December 31, 2024, the Napa Valley Unified School District and the Napa County Office of Education strengthen the current stakeholder task force (law enforcement and schools) including non-profits which specialize in gang prevention and intervention and local industries. Napa Valley Unified School District (NVUSD) The School District is aware of the recent decision by the City of Santa Rosa to relaunch its gang crimes team in 2023 to curb street violence and understands from recent incidents in our own community, as well as from the conclusions of this Report, that gang violence is on the rise in our county. However, the district believes that the strengthening of the Gang Violence Task Force, which was initiated in the early to mid-2000’s, is best served by law enforcement, not the schools. While we are happy to participate in the work of the task force, as a school district, our primary objective is not to resurrect or “strengthen” a gang task force, but to educate children. Below, we have listed the existing partnerships that we have with law enforcement and other community groups to address safety concerns and gang prevention in our schools. 140 | P a g e Collaborative Partnerships with Law Enforcement Agencies & Community Groups The district has extensive collaborative partnerships with law enforcement agencies across the county, including with the Napa County Sheriff Department, American Canyon Police Department, City of Napa Police Department, the Napa County Probation Department as well as with the District’s School Resource Officers, the Napa County Office of Education, mental health advocates and experts, school counselors, and social workers. NVUSD hosts School Law which is a monthly meeting between NVUSD Student Services Staff and NPD and ACPD to support ongoing communication and partnership. In addition, the district consults with numerous other community experts in an effort to address key issues facing our students and to provide additional resources and support for them. Some of those key partnerships include: 1. FOCUS Program: The district participates in the Focusing on Children Under Stress (“FOCUS”) Program, led by the Napa County Office of Education, which supports children who may have experienced trauma, including being victims or witnesses of violence such as gang-related incidents. This program enhances communication between law enforcement and other first responders, schools, and community-based organizations (“CBOs”). Law enforcement and other first responders initiate notifications that are sent to designated school officials and include only the name and school of the student, without disclosing specific details of the incident. This process enables the monitoring of any potential effects on the student and ensures that appropriate support is provided as needed. 2. Tip Line: The district also collaborates with law enforcement to manage the anonymous tip texting line, Tip 411. This service allows students and others to confidentially report suspicious activities, such as bullying, gang related acts such as planned fights, graffiti tagging, or bringing weapons on school grounds. Additionally, the district utilizes a digital footprint program to evaluate and address students who may pose a threat to themselves or others, ensuring that any incident is handled with utmost seriousness. District Coordinator of Safety & Emergency Services The School District has appointed a full-time Coordinator of Safety & Emergency Services, who will actively collaborate with law enforcement and first responders to develop comprehensive emergency response protocols and safety measures to ensure school security. The Coordinator is working closely with the Superintendent and leadership to establish a district-wide incident command team, which will provide support to individual school incident command teams during emergencies and crises and facilitate internal communication within the District. Additionally, the Coordinator will oversee the support and implementation of comprehensive school safety plans, conduct safety assessments, and provide training and support to ensure preparedness. These efforts also include participation in a county-wide initiative aimed at strengthening support and response relationships among all six school districts, law enforcement, and first responders, fostering a robust countywide collaboration. Further efforts led by the Coordinator will involve the establishment of school multidisciplinary teams to conduct behavioral threat assessments. Behavioral threat assessments are evaluations designed to identify individuals who may pose a threat of violence and to intervene 141 | P a g e with appropriate resources to prevent such violence. To ensure these assessments are unbiased, the teams will comprise individuals with diverse backgrounds and expertise across various disciplines. The goal of these assessments is to detect when an individual may be on a path towards violence and to guide them onto a new, positive path by providing necessary support and resources, ultimately preventing violence in schools. Napa County Office of Education (NCOE) NCOE has created or is connected to several programs and coalitions that focus on prevention and intervention, but we agree with the recommendation and the need to expand and focus our efforts. To address school climate and safety, NCOE created a network called Napa Connection and Resilience to Empower Students ("CARES") that unites non-profits, Local Education Agencies ("LEAs"), and Community-Based Organizations ("CBOs") to address the needs of Napa's youth through holistic, wraparound services. This initiative facilitates effective communication between the school districts and multiple agencies, resulting in streamlined and increased access to services for youth and their families. By providing individualized support through an intensive case management approach, Napa CARES enhances early intervention and violence prevention. This is achieved by offering youth and families facing challenges comprehensive services tailored to their unique situations. NCOE has also brought the FOCUS Program to Napa County after seeing it's success in other areas of the state. The Focusing On Children Under Stress ("FOCUS") Program supports children who may have experienced trauma, including being victims or witnesses of violence such as gang-related incidents. This program enhances communication between law enforcement and other first responders, schools, and community-based organizations ("CBOs"). Law enforcement and other first responders initiate notifications that are sent to designated school officials and include only the name and school of the student, without disclosing specific details of the incident. This process enables the monitoring of any potential effects on the student and ensures that appropriate support is provided as needed, while maintaining student and family confidentiality. Additionally, the CATALYST Coalition was formed in 2005 as an answer to the higher- than- average youth substance use rates in Napa County. CATALYST focuses on reducing and preventing underage alcohol, marijuana and tobacco use in Napa County with the collective strengths, expertise, and engagement of our broad collaborative of interested community members. Community members meet and collaborate on ways to prevent youth substance use in Napa County, including activities for Take Down Tobacco, Red Ribbon Week, Alcohol Awareness Month, student wellness fairs, Social Host Awareness campaigns, substance use treatment, counseling, parent support group and much more. We also partner closely with the UpValley Family Centers to do this work, as well as the Napa Opioid Safety Coalition to inform parents and students about the dangers of even casual drug use. As our work continues to evolve, we have developed two spin-off coalitions-Open Doors and Napa CARES. While focused on student wellness efforts, these groups are creating access to student and family support. 142 | P a g e Napa County Office of education also has connections to several other groups who may be able to support these efforts. Although not directly related to gang involvement, a newly formed group called Pro-Inclusion Napa, whose aim is to reduce hate, is interested in becoming part of our task force. They have had students develop posters to counter the hate messages that have been seen around the county, and these posters were displayed in City Hall from July 2 through August 8th. Perhaps we can redirect some students to join the "Kindness" gang, and work with students in our elementary and middle schools to develop anti-hate campaigns.
R8:
By September 30, 2024, the City of Napa Police Department create a succession plan for the Community Service Officer role in the Juvenile Diversion Program, including program expansion. City of Napa This recommendation will not be implemented because it is not reasonable. The City of Napa Civil Services Rules govern how vacancies are filled and require a thorough, fair and competitive process, and therefore the City cannot pre-designate a replacement for any classified position. However, the City of Napa appreciates the Grand Jury's recognition of the importance of continuity in the Community Service Officer role in the Juvenile Diversion program and has created methods to document processes and procedures, and ensure that all program staff are knowledgeable about the services provided. Further, the City of Napa and the Police Department are supportive of professional growth for all employees and have expanded access to internal and external development trainings and will continue to do so to allow for multiple staff to seek promotion or transfer into the Juvenile Diversion Program as positions become available.
R9:
By December 31, 2025, the Napa County Sheriff, the City of Napa Police Department, the City of St. Helena Police Department, the City of Calistoga Police Department, the District Attorney’s office and the Napa County Probation Department create an integrated data collection system to improve the efficiency of trend monitoring associated with gangs and gang crimes. City of Napa This recommendation requires further analysis. With the dissolution of the CALGangs data system (AB90 - 2017), each law enforcement agency in Napa County now maintains their own data on criminal behavior in each community. Currently, Napa Sheriff's Office and Napa Police Department share a records management system (Mark43) that allows law enforcement staff to see unrestricted criminal data. These agencies are the larger agencies in our County and account for most of the criminal and gang related activity. Other agencies maintain their own records, but information is also shared among all agencies as needed. By October 1, 2024, the City of Napa Police Department will collaborate with partners at the Napa Sheriff's Office, St. Helena Police Department, Calistoga Police Department, District 143 | P a g e Attorney's Office and Napa County Probation to review current data collection systems and develop a joint recommendation on options for replacement or improvements to assist law enforcement in monitoring gang activity trends. The Police Chief will report outcomes of this collaborative effort to the Napa City Council.
R15-20:
industry and community partners who advise District staff on current industry standards. Additionally, NVUSD staff established foundational partnerships with economic, workforce and educational partners, such as the Economic Development Division of Napa, Workforce Alliance of the North Bay, Yountville and Napa Chamber of Commerce during the 2023-2024 school year. The Executive Director of the Workforce Alliance of the North Bay is a member of the NVUSD College and Career Readiness Leadership Team that meets monthly. NVUSD will formalize these relationships through the development and launch of the Economic, Employment, Education Collaborative (“E3 Collaborative”). The E3 Collaborative brings industry partners, commerce, workforce, K-14 education together in support of a shared vision to create a talent pipeline in high wage, high demand local and regional industries and support students' career goals.
Findings & Recommendations
12 findings
F1:
Since the 2016 Napa County Grand Jury report on county websites, the county has increased its senior communication staff, appointed a webmaster, and implemented improved methods of communicating with citizens for routine, non-emergency notifications. The County Executive Officer (CEO) and Board of Supervisors agree with the finding. The County has taken substantial steps towards enhancing its capabilities and expanding its outreach efforts. The County has implemented several improved methods for routine, non- emergency communications with its residents. The website has been redesigned to be more user-friendly and informative, making it easier for residents to find the information they need. Staff regularly issue news releases to keep the public informed about county activities and initiatives. The social media presence has been significantly expanded, allowing the County to engage with the community in real-time and provide timely updates. Additionally, video storytelling has been embraced to convey important messages and showcase county projects and events in a more dynamic and engaging manner. In addition to producing unique video features highlighting the county, a new monthly countywide newscast was launched in April 2024. This newscast aggregates important county news, programs and services, and engagement opportunities in a format that is digestible, educational, and engaging to the public. These efforts are part of the County’s commitment to ensuring transparent, effective, and accessible communication with all Napa County residents.
F2:
Napa County has made some improvements to provide timely and accurate information to citizens through enhanced website design and performance. The CEO and Board of Supervisors agree with the finding. The ongoing process of digitizing services, evaluating content, and arranging graphics is a continuous endeavor. In addition to standard website maintenance and updates, the County has undertaken several initiatives to improve user experience and access to important information. Key changes include: • Updates to the website’s terminology to make it more intuitive for users to navigate. • Streamlined top-level navigation and the addition of a “How do I?” section. • An expanded Newsroom to share timely, relevant information with residents. • Reorganized content into thematic “buckets” to streamline access to related services. 98 | P a g e • The launch of the ‘Open Napa County’ page under the ‘Government’ section, providing a centralized location for related public search services and enhancing public and staff user experience. Additionally, various services previously only available in paper format have now been digitized. This includes the development and implementation of digital PDF applications in several departments, with more to come. The County launched the airport runway webcam, providing real-time updates to the public, and refreshed the web presence for Health & Human Services (HHSA) behavioral health, the Planning Department, and County Fire, ensuring accurate and up-to-date information. Staff conducted an extensive review to identify outdated COVID-19 documents and incorporated initiatives such as the Affordable Accessory Dwelling Unit and Child Care Facility Forgivable Loan Programs. A version update to the County’s software platform was also completed, ensuring smooth operations and effective communication. Efforts to enhance the County’s program in search engine optimization (SEO) and analytics are ongoing. These efforts aim to expand from countyofnapa.org to include other domains and functions such as readynapacounty.org, napalibrary.org, and livehealthynapacounty.org, as well as social media and other applications. This initiative will develop a program framework and foundation configured to support scalability and county-wide accessible data, ultimately supporting a holistic strategy and user experience. Later this year, Napa County will embark on a comprehensive website redesign, incorporating further design and structural enhancements.
F3:
A sizable portion of Napa County website traffic is via mobile devices. Some website content is not optimized for smaller screened mobile devices. The CEO and Board of Supervisors agree with the finding. More than 50% of the County’s web visitation is via mobile devices. Responsive design has evolved from solely responding to the change in device size to now encompassing a multitude of available data elements that reflect the user’s experience. The evolution of responsive web design in 2024 heralds a new era of adaptability and innovation in web development. Beyond simply fitting content to different screens, responsiveness now includes a holistic approach to design that considers device types, emerging interfaces, user preferences, and accessibility standards. By embracing this evolution, the County can craft digital experiences that transcend boundaries and empower users in an increasingly interconnected world. While most of the county’s website content is optimized for smaller screened mobile devices, some third-party applications are not. The County will coordinate solutions with vendors to ensure that digital services are accessible and user-friendly across all devices. 99 | P a g e
F4:
The county has not published to citizens a county strategic plan which outlines how to facilitate the distribution, efficiency, and quality of public information. The CEO and Board of Supervisors disagree partially with the finding. The Communications team has written a strategic communications plan; however, while it is a public document, it has not been shared with residents as it is an internal working document intended to guide efforts in informing, educating, and engaging citizens in Napa County. The primary purpose of the communications plan is to foster effective communication among the Napa County Board of Supervisors, the residents of Napa County, and the departments and staff of Napa County government. Public access to government and the free flow of information are essential pillars of the democratic process. Therefore, this plan is intended to streamline access and enhance transparency within Napa County Government. In today's service delivery landscape, effective communication plays a vital role in disseminating information, raising awareness about government services and policies, advocating for change, and supporting decision-making processes. Public communication is of utmost importance in empowering the residents of Napa County with knowledge about their expectations from county government. By engaging in dialogue and encouraging meaningful participation, the community can actively contribute to the development and progress of the county. Objectives: 1. Establish a cohesive and effective communication framework for Napa County that fosters collaboration, empowers employees, and ensures consistent messaging and branding. 2. Enhance Napa County's communication efforts to expand its reach, engage the community, and promote transparency through proactive and creative storytelling across various platforms. 3. Establish transparent and open channels of communication with the community of Napa County, fostering engagement, collaboration, and understanding. 4. Enhance internal communications within Napa County by fostering a sense of community, sharing information effectively, and facilitating engagement among employees. 5. Enhance Napa County's emergency response communication by developing comprehensive strategies that facilitate effective information dissemination, preparation, and collaboration during critical situations. 6. Align legislative goals with effective communication strategies to facilitate the development, understanding, and engagement of Napa County's legislative platforms and processes. Residents can see the results of the strategic communications plan through the numerous initiatives and improvements the County has implemented, ensuring transparent, effective, and accessible communication with all Napa County residents.
F5:
Napa County’s overall communication efforts, while focused on “telling Napa County’s story”, is not engaging the community in a two-way conversation which could facilitate citizen engagement. The CEO and Board of Supervisors disagree partially with the finding. 100 | P a g e The County’s social media strategy is intended to actively engage the community, share updates, and encourage dialogue. Staff monitor and respond to comments, messages, and mentions on social media platforms in a timely and professional manner. From strategizing and developing communications to disseminating content, staff seek opportunities to extend the conversation beyond a specific communication. This is achieved by consistently ending messages with a call to action, which may include directing the audience to learn more on a specific platform or website, taking a survey, or providing a number or email to continue the conversation. Additionally, individual board members and staff regularly participate in and host events that promote face-to-face interactions among residents, enabling dialogue and a sense of belonging. The County organizes public forums, town hall meetings, and online feedback platforms to gather community input and address concerns promptly and transparently. The County has actively engaged in and hosted town halls and community events focused on various subjects, including fire/emergency preparedness, Mt. Veeder storm damage and roads updates, PG&E underground electric power lines, road pavement projects, and transportation. Each of these events provides an opportunity for two-way conversation. Staff worked closely with CAL Fire/Napa County Fire and AP Triton, the consultants developing the Fire Master Plan, to engage the community through various communication channels, including hosting a Fire Master Plan Virtual Town Hall. Engaging the community in a two-way conversation is a collaborative effort involving all departments and elected officials, not solely the responsibility of the Communications Department. Staff are committed to fostering an environment where community input is solicited, ensuring a more connected and engaged Napa County.
F6:
Napa County lacks a formally articulated plan to continuously re-evaluate and update its communication strategies adapting to changing digital messaging technologies in order to assure that messaging remains timely, effective, and relevant. The CEO and Board of Supervisors agree with the finding. The communications team pairs the county-wide communication plan with project and departmental plans to re-evaluate and update its communication strategies. This undertaking is completed in tandem with departmental subject matter experts to align with services, staff capacity, and public expectations. 101 | P a g e For example, Napa County has launched a public website chat feature and a live streaming translation tool for Board of Supervisors meetings. The team continues to meet with vendors, participate in forums, and assess current solutions to propose to departments. Each department's specific communication tools fall under its jurisdiction due to unique compliance requirements, staff participation, and business practices. The communication’s team’s strategy involves regular re-evaluation and updates with Napa County IT to stay current with technological advancements and continue to meet the community's needs effectively.
F7:
The switch from Nixle to Everbridge did not go through an RFP or similar evaluation process which has led to disruptions in citizen alert contacts that have not been satisfactorily resolved. The CEO, Board of Supervisors, and Sheriff agree with the finding. Napa County contracted with Nixle in 2014. In 2015, Everbridge acquired Nixle and, along with it, Napa County’s contract. Napa County extended, renewed, and/or amended this contract for several years. Although acquired by Everbridge, the emergency alert platform continued to be named “Nixle.” On October 4, 2022, the Board of Supervisors approved a three-year renewal of the County’s contract with Everbridge; at that time the Board was also informed that subscribers to the Nixle platform would be moved to the Everbridge platform. Because the contract was with Everbridge and that contract was renewed, the change from the Nixle to the Everbridge platform did not require a separate RFP process. At the time of the platform change, Everbridge verbally represented to Napa County that all the subscribers to Napa County messaging in Nixle would seamlessly be moved over to their Everbridge platform without the necessity to re-subscribe. Based on these representations and to maintain the large subscriber base in Nixle (approx. 186,000 subscribers), the County chose to continue the Everbridge contract and not seek other proposals via the traditional RFP process. Problems and inconsistencies related to delivery of messages to original Nixle subscribers after the transition to Everbridge were noticed early on. At the time of the initial transition from Nixle to Everbridge, the County Office of Emergency Services (OES) was housed solely in the CEO’s office. On July 1, 2023, the interim CEO, in his role as Director of Emergency Services, appointed the Sheriff as the Assistant Director of Emergency Services, pursuant to Napa County Ordinance 2.80.060. The OES staff physically moved offices from the downtown Napa administration building to the Napa Sheriff’s Office in south Napa. The OES budget was transitioned into the Sheriff’s Office overall budget, and day-to-day OES oversight and operations were put under the direction of the Sheriff’s Office. In the first meeting between OES and the administration team at the Sheriff’s Office in July of 2023, the Sheriff’s Office prioritized diagnosing the issue with the transition from the Nixle to the 102 | P a g e Everbridge platform. A County Information Technology (IT) expert was assigned to work closely with OES to identify the issue and work towards a solution. The Sheriff also briefed the CEO, Board of Supervisors, and County Counsel. County Counsel sent a demand letter to Everbridge as part of the plan to address the issue, which helped spur a meeting to resolve the problems. Within two weeks of the meeting between Everbridge representatives, IT, and OES staff, the Sheriff’s Office learned that the Nixle platform subscribers were never moved into the Everbridge platform. Instead, Everbridge built a software solution to act as a “bridge” by which messaging in Everbridge would be sent over to the Nixle program and the original Nixle subscribers would then receive the message. The crux of the problem referred to in the Jury’s finding is that the software bridge was not reliable. In August, approximately one month after the issue was identified, Everbridge agreed to do and did a large data migration, moving the subscribers out of Nixle and into Everbridge so that the system would no longer rely on the software “bridge.” OES conducted a test messaging campaign in August of 2023, which included 184,328 subscribers that were part of the large data migration. As part of the test, subscribers were asked to confirm receipt of the message.71 70,417 subscribers confirmed receipt, which is 38.2% of the contacts that the message went out to, representing a relatively large number of responses. Of note, in marketing, the average open rate is somewhere between 15% and 25% and asking someone to take action (i.e. text back to confirm receipt) results in responses ranging from 1.5% to 3%. For SMS campaigns, the open rate is around 65% with a click-through rate of about 20%. The takeaway from the August 2023 test was that more than 10 times what is typically expected of an email marketing campaign and nearly twice of what is expected of a SMS campaign was accomplished after Everbridge completed the data migration. This large response rate gives the County confidence that the data migration was successful. While the August 2023 test campaign was successful and resolved the initial platform transition difficulties, the OES team and Everbridge continue to have regular meetings to improve the system’s capabilities.
F8:
County emergency notifications using the alert technology Everbridge are not reliably reaching all enrolled citizens, and it is unknown exactly how many residents are receiving messages. The Board of Supervisors and the Sheriff agree with the finding. However, the County is interested in understanding the evidence the Jury used to support this finding that not all enrolled citizens are receiving messages after the August 2023 data migration. While there are known examples of this issue from before the large data migration in August of 2023, evidence that the problem continued afterward have not been found. The Nixle system did not have a “confirm receipt” feature similar to Everbridge, making it impossible to 71 One key difference between the two systems is that messaging that solicits a response can be sent in Everbridge while Nixle does not have that capability. 103 | P a g e conduct a comparable test with Nixle. The Board of Supervisors and the Sheriff agree that the Everbridge notification system was not reliable at reaching all enrolled citizens prior to the data migration. It is important to note that no system can guarantee an exact number of subscribers reached for any given communication. Factors such as cell phone coverage, mobile device settings, and whether mobile devices are on or off, without power, etc., can impact message delivery. Due to these factors, Napa County OES, the CEO’s Office, and the Sheriff’s Office have established redundancy systems. These include partnerships with local radio stations, community outreach for emergency broadcast information, Genasys software for evacuations, Hi-Lo Sirens during evacuations, door-to-door notifications in evacuated areas, traditional media outlets, and social media accounts managed by Napa County, Napa Sheriff’s Office, County fire, and municipal partners. While Everbridge certainly damaged trust during the initial transition from the Nixle platform, the current reach and data from both test alerts and real-world alerts indicate that the technology is now working at the same level of reliability as the previous opt-in service.
F9:
The Everbridge emergency notification mobile app for phones and other mobile digital devices is not performing reliably for citizens. The Sheriff, OES, Board of Supervisors, and CEO disagree wholly with the finding. During the investigation to identify why some previous Nixle subscribers were not reliably receiving alerts, the team discovered that the issue was related to the software “bridge” rather than a full data migration solution (as mentioned in the response to Finding 8). The team also learned that there were no reports of failures from users who downloaded and used the Everbridge mobile application. The County does not agree that the system is currently not performing reliably and would be interested in any evidence or examples of subscribers who signed up through Everbridge, or whose subscriber information was part of the large data migration in 2023, not reliably receiving messages at this time. Upon obtaining such information, the County and Everbridge can investigate and correct any ongoing issue.
F10:
The enrollment process for Everbridge is cumbersome and not well understood by the citizenry. The Board of Supervisors and the Sheriff agree with the finding. The enrollment process prior to January 2024 was more cumbersome. However, as part of the continuing efforts between OES and Everbridge to improve the system’s capabilities, beginning in January 2024, residents can now subscribe by simply texting their zip code to 888-777, which enrolls them into the Nixle platform. Everbridge now automatically ports over (data migration, not a software bridge) Nixle subscriber data into the Everbridge system on an hourly basis. 104 | P a g e Before this new solution, residents using this simple subscriber method would only be added to Nixle, and the system would rely on the problematic software “bridge” mentioned in Response to
F11:
Everbridge has not fulfilled all of its contractual obligations with Napa County. The Board of Supervisors and the Sheriff disagree wholly with the finding. The contract executed between Napa County and Everbridge has been reviewed by the County, with assistance from County Counsel, and no breach of contract has been identified at this time. As indicated in Response to Finding 7, the issues caused by the initial transition from the Nixle platform to the Everbridge platform were problematic, but the parties were able to promptly resolve those issues. Should OES be made aware of any concerns or evidence supporting the Jury’s concerns that issues are continuing, OES will promptly work with Everbridge to resolve them. Since July of 2023, the staff at Everbridge has been responsive to the County’s concerns and have worked diligently on addressing the challenges identified by the OES team. We are confident that any ongoing issues will be similarly corrected by Everbridge.
F12:
Napa County’s staff have improved measures to facilitate communication with citizen’s diverse languages and for those having disabilities or special needs. The CEO and Board of Supervisors agree with the finding. Recognizing the diverse community the County serves, staff remain dedicated to ensuring effective communication for all residents. The Office of Emergency Services (OES) continues to prepare a bi-weekly translation schedule for emergency communications, guaranteeing that critical information reaches non-English speaking populations promptly. Additionally, staff have initiated work on creating a comprehensive language access plan. This endeavor involves close collaboration with members of the Board of Supervisors and department heads, with a goal of establishing guidelines and resources that promote inclusivity and accessibility in all county communications. By prioritizing language access, staff strive to enhance engagement and participation among diverse communities throughout Napa County.
Additional Recommendations
10
Not linked to specific findings.
R1:
By December 31, 2024, the Board of Supervisors direct county communications staff to annually implement and publish to county residents an updated strategic communication plan that results in timely and efficient two-way messaging with the public through digital, print, and broadcast media. The recommendation will not be implemented because it is not warranted or reasonable. 105 | P a g e The County Communications team already operates with a comprehensive communication plan that serves as a roadmap for our efforts. This plan is a fluid document, allowing us to tailor our strategies based on the specific message and target audience, new communication technologies, and evolving appetite of how people consume information. Our primary focus is on delivering tangible results that meet the community’s needs, rather than detailing the process. Our approach is dynamic and adaptable, ensuring that we can effectively communicate across various platforms including digital, print, and broadcast media. While we continually refine our strategies to enhance engagement and transparency, we believe that the community is more interested in the outcomes of our communication efforts rather than the intricacies of the plan itself. Our commitment remains to ensure timely, efficient, and effective two-way communication with the public, and we invite residents to experience the results of these efforts through our various communication channels. The Board of Supervisors agrees with the County Executive Officer.
R2:
By September 30, 2024, the Board of Supervisors direct county senior communications staff to meet with all county department heads to assess their communication needs so that they can message effectively and consistently with their target audiences. The recommendation has been implemented. The Deputy CEO - Communications regularly attends department head meetings to stay informed about departmental communication needs. All departments with staff serving in a PIO role are invited to participate in the County Communications Collaborative. For departments without a dedicated PIO, regular outreach is conducted through check-in emails and meetings to identify and support their communication needs. The Board of Supervisors agrees with the County Executive Officer.
R3:
By September 30, 2024, the Board of Supervisors direct county department communications staff to create a monthly review of county social media accounts, websites, and other digital communication channels to assure that information stays current. The recommendation has been implemented. County communications staff regularly reviews and maintains the accuracy of information across social media accounts, websites, and other digital communication channels. We have implemented a process for individual departments to review and provide feedback on a monthly basis, ensuring that all digital communications remain current and effective. The Board of Supervisors agrees with the County Executive Officer. 106 | P a g e
R4:
By September 30, 2024, the Napa County Sheriff direct their communication staff to create a monthly review of their social media accounts, websites, and other digital communication channels to assure that information stays current. The recommendation has not yet been implemented. The Sheriff will implement this recommendation within the timeframe identified by the Jury. The Board of Supervisors agrees with the Sheriff.
R5:
By December 31, 2024, the Board of Supervisors require all county and department websites to offer a live chat feature on each county department website to help citizens get quick answers to their questions and facilitate timely assistance. The recommendation has been implemented. Napa County has implemented a website chat feature on countyofnapa.org, staffed by the Napa County Library reference team. This chat tool supports both the public and county staff in locating services and answering questions. Key features of the website chat tool include: • Staffed by library staff who assist the public similarly to how they handle library reference questions, aiming to connect users to the necessary resources. • Available on every page of the website. • Supports three languages: English, Spanish, and Tagalog. • Accessible seven days a week. When the chat tool is not actively staffed, users can leave a message that will be responded to during business hours. Compatible with both mobile devices and desktops.
R6:
By December 31, 2024, the Board of Supervisors direct county communications staff to develop and make public the metrics and analytics which monitor county efforts to evaluate effective two-way communication strategies with citizens. The recommendation has been implemented.
R7:
By December 31, 2024, the Board of Supervisors have county communications staff ensure that county initiatives and programs are available to all of our citizens, including those who speak languages other than English and those with special needs or disabilities. The recommendation will not be implemented because it is not warranted or is not reasonable. Countywide Communications promotes and encourages accessibility but does not have oversight of all county initiatives and programs. However, we continually seek opportunities to implement more inclusive practices. Some of the areas where we have control and have implemented accessibility measures include: • Website Translation: The County’s website incorporates Google Translate to support multiple languages. • Social Media: We translate social media posts to reach a broader audience. • Board Meetings: We have implemented the Wordly AI language translation platform to offer live Spanish translation at all Board of Supervisors meetings. • ADA Compliance: An ADA page on the website provides information and resources for individuals with special needs or disabilities. • Partnerships: We work with the risk team to provide remediation for any person seeking services with special needs or disabilities. • Procurement: Our procurement language includes requirements for ADA compliance and is in the process of adding language suggesting Spanish as a preferred language. 108 | P a g e
R8:
By December 31, 2024, the Board of Supervisors establish a Napa County Communications Citizen Advisory Board with the goal of providing community input into Napa County communication priorities. The recommendation will not be implemented because it is not warranted or is not reasonable. The communications team is staffed with professionals from diverse backgrounds, bringing over 70 years of combined experience. In 2023, we established the County Communications Collaborative to enhance communication strategies and practices within Napa County. This group meets monthly and includes full-time Public Information Officers (PIOs) and individuals with PIO responsibilities, allowing them to exchange insights, best practices, and innovative approaches in their communication efforts. Additionally, county communications staff participate in the Napa County PIO Network, a collaborative group made up of representatives from various sectors, including: • The county and each of the five jurisdictions • Public safety (fire, police, sheriff) • Education (Napa County Office of Education, Napa Valley Unified School District, Napa Valley College, Pacific Union College) • Transportation (Napa Valley Transportation Authority, CalTrans, California Highway Patrol) • Healthcare (Queen of the Valley, Kaiser, St. Helena Adventist) • Nonprofit organizations (Community Organizations Active in Disaster) • Other entities such as the Veteran’s Home, Napa State Hospital, and PG&E
R9:
By December 31, 2024, the Sheriff’s Department OES prepare and execute updated plans to fix deficiencies in alert notification measures ensuring that accurate and timely emergency information is disseminated to the public and media when needed. This may require assessing alternative emergency notification system providers to resolve ongoing Everbridge deficiencies. This recommendation has been implemented. Since July 2023, Everbridge has been responsive and continues to be responsive in improving the reliability and effectiveness of their platform. As indicated in Response to Finding 7, the most recent contract with Everbridge was a three-year renewal of the previous contract. Everbridge had acquired Nixle in 2015, and the renewed contract contemplated that, during this period, the County’s subscribers would be migrated from the Nixle platform to the Everbridge platform. As the Jury found, however, this transition was not seamless. Beginning in July 2023, the issues were quickly identified and addressed, and now the system appears to be functioning properly. Beginning in the spring 2025, the Sheriff will recommend to the Board of Supervisors to issue a Request for Proposals (RFP) for messaging services beyond October 2025 when the Everbridge contract expires. Everbridge can certainly submit a proposal as part of that process, and other providers will also be invited to submit proposals. The Board of Supervisors agrees with the Sheriff.
R10:
By September 30, 2024, the Sheriff’s Department OES collaborate with Napa County communication staff to address problems with the “Alert Napa County” citizen enrollment process including increased awareness of how to enroll, streamline the enrollment process, and improve citizen’s ability to manage their own alert notification preferences. This recommendation has been implemented. As indicated in Response to Finding 10, beginning in January 2024, residents can now subscribe by simply texting their zip code to 888-777. Additionally, logging into their online 110 | P a g e account allows citizens to opt into the notices that they wish to receive. OES continues to work with Everbridge to ensure the platform functions correctly and is as user-friendly as possible. The Board of Supervisors agrees with the Sheriff.