Score: +1 (3/9/2)
Santa Cruz County Grand Jury • 2002-2003

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Published: June 11, 2002 169 pages Consolidated Report
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Note: Missing finding numbers detected: F2, F10, F41, F42, F45, F48, F50, F57, F60, F64, F70, F72, F76, F81, F83, F84

Findings 73 findings

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Issues on Santa Cruz County public high school campuses; 2. Issues concerning the Santa Cruz County Juvenile Probation Division; 3. Issues facing Santa Cruz County Law Enforcement. This report is in three sections, each of which deals with individual aspects of the problem. The three sections of this report examine: • Santa Cruz County public high schools and the ways that the administrations of these schools deal with juvenile crime (primarily involving drugs) • The Juvenile Probation Division and its interaction with Santa Cruz County high schools and Juvenile Hall • Santa Cruz County law enforcement agencies and their involvement with the County’s high schools and with the Juvenile Probation Division. In brief, the Grand Jury investigation found the following deficiencies in the juvenile justice system: • A serious lack of communication and co-operation between the various entities responsible for juvenile justice in the county • A serious lack of availability of countywide rehabilitation and diversion programs for youthful offenders • A Juvenile Probation Division with an emphasis on statistics rather than on a commitment to help juveniles with their problems. The Grand Jury is recommending a commitment by the Juvenile Probation Division to be pro- active in working with county law enforcement agencies, school authorities and parents to create countywide rehabilitation and diversion programs for juvenile offenders that are second to none. Glossary • Diversion — a program or activity designed to turn juveniles away from illegal or socially unacceptable behavior and to help them avoid having a permanent police record. -2 Substance Abuse in Santa Cruz County High Schools Consequences and Responsibility 2001–2002 Santa Cruz County Grand Jury Report • Felony — A serious crime such as murder, rape, or burglary, punishable by a more stringent sentence than that given for a misdemeanor; an offense punishable by a maximum term of imprisonment of more than one year. • Misdemeanor — A crime, less serious than a felony, which is punishable by fine or imprisonment in a city or county jail rather than in a penitentiary. • Juvenile — a minor up to the age of 18. In some instances, California law allows young people up to the age of 21 to be held in Juvenile Hall. • Juvenile Probation Division — the division of the Probation Department that oversees the supervised release of juvenile offenders. • Informal probation — supervision of a released juvenile offender by someone other than the Juvenile Probation Division. This is often, but not always, the youth’s parents. • Supervised probation — supervision of a released juvenile offender by the Juvenile Probation Division. • SRO — School Resource Officer. A police officer assigned duty at a school campus to provide for the safety of students and staff and to aid in enforcing “zero-tolerance.” • Zero-tolerance — a state mandated policy allowing for no possession, use or sale of illegal substances, alcohol or tobacco products on school grounds. Substance Abuse in Santa Cruz County High Schools -3 Consequences and Responsibility Substance Abuse on Campus Background Santa Cruz County public schools are where the majority of school-age children spend a large amount of their weekday daytime hours. Public schools have the unique responsibility of educating our children while dealing with society’s mores. While striving to educate our children, schools deal with every sort of difficulty, from drug abuse to physical violence. Very often these difficulties hinder the learning process. Administrators, law enforcement officers, and the Juvenile Probation Division need to work together to ensure a safe and sober school environment conducive to learning. Scope The Grand Jury investigated the problem of juvenile substance abuse in the county’s public high schools and the ways school administrators, security staff and School Resource Officers (SROs) handle youthful offenders. Fieldwork • Interviewed administrators and staff at all public high schools: • Aptos High School • Harbor High School • San Lorenzo Valley High School • Santa Cruz High School • Scotts Valley High School • Soquel High School • Watsonville High School • Interviewed school security personnel at all public high schools • Interviewed SROs • Interviewed other law enforcement officers involved with youth • Spoke with concerned parents • Reviewed current data and reports. Findings 1. Studies show that a majority of high school students are either currently using alcohol and/or drugs, or have used these substances in the past. Even as early as 7th grade, 52% of these youngsters have been or currently are using drugs or alcohol. The data cited are from the “Healthy Kids Survey of Santa Cruz County,” a study conducted by the County’s school districts, and include alternative schools, The Ark, Loma Prieta and Renaissance High Schools, but not the County Office of Education Alternative Education schools. The data represent lifetime use. -4 Substance Abuse in Santa Cruz County High Schools Consequences and Responsibility 2001–2002 Santa Cruz County Grand Jury Report Santa Cruz County Youth Survey, 2001 Grade 7 Grade 9 Grade 11 Substance Used Santa Santa Santa Calif. Calif. Calif. Cruz Cruz Cruz Alcohol 29% 25% 57% 50% 73% 70% Been Drunk 11% 10% 33% 24% 53% 45% Inhalants 12% 6% 15% 8% 16% 14% Marijuana 11% 8% 32% 24% 50% 45% Cocaine 7% 4% 9% 9% Methamphetamines 7% 4% 8% 9% Hallucinogens 7% 6% 10% 12% Heroin 4% 2% 4% 3% 2. Heroin use has shown a frightening rise among students at the 9th grade level. By 11th grade, another 4% of students are new heroin users. The 4% of the student population who are heroin users in 9th grade do not stay in regular public schools. By the 11th grade, these students have either dropped out of school, are in alternative schools, are in drug treatment programs or juvenile detention, or are deceased. This represents approximately 8% of the total high school student population who use heroin.
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The Drug Abuse Resistance Education (DARE) program is offered to students from 5th grade through 9th grade. At the time of this report, no such program exists for high school students above the 9th grade.
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Santa Cruz County public high school students receive substance abuse education in a one-semester health class. Substance abuse is only one of many topics covered in this class.
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School officials and law enforcement officers both report that public and parental apathy contribute to a lack of meaningful consequences for substance abuse and juvenile crime incidents. Surveys show Santa Cruz County leads the state in support of medical and recreational marijuana use. Some parents shrug off what they consider to be “minor” drug incidents.
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Due to the rise in school violence, a full time SRO is assigned to each high school campus. These peace officers have to deal with every type of criminal behavior including vandalism, substance abuse, physical violence and weapons on campus. The SRO is ultimately responsible for the physical safety of students and faculty.
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Aptos High School and Scotts Valley High School are the only public high schools with closed campuses. A closed campus restricts students from leaving school grounds during school hours.
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Five of the county’s public high schools have open campuses which allow students to leave and return during the school day.
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An open campus policy presents the opportunity for some students to leave the school grounds to use, buy or sell drugs or alcohol. Substance Abuse in Santa Cruz County High Schools -5 Consequences and Responsibility 10. School officials report 50 to 100 on-campus drug incidents per school year in each of the county’s seven public high schools. The majority of these incidents involve possession of marijuana on campus.
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On or off campus, when apprehended by law enforcement officers for substance abuse, a student is detained, the drugs or alcohol are confiscated, and a report is forwarded to the Juvenile Probation Division for follow-up.
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A youth apprehended for selling drugs on campus is put under arrest and removed from the school campus. The youth is taken to Juvenile Hall for processing, and may or may not be held in custody depending on the risk assessment performed at Juvenile Hall. (See the second section of this report for further details on risk assessment.) 13. A first time drug offense usually results in a three-day suspension by the school district, mandatory community service, or some other supervised activity.
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Law enforcement officials were not included in the development of this system. Currently, a third draft of the Screening Risk Assessment form is being discussed. Law enforcement officials have been asked to participate in this revision. No date has been set for the review and acceptance of this revision.
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Drug testing is not a prerequisite for returning to campus.
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It can take up to three months from the time of an incident until a probation officer meets with the juvenile and his or her parents.
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The SRO can request information from the Juvenile Probation Division regarding specific individuals. The SRO is not provided with a list of students at their schools who are on probation, and is not informed of the disposition of pending cases.
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Many programs that provide care or counseling for youths involved with substance abuse or with the juvenile justice system exist throughout the county. However, a consolidated referral list of these programs has not been developed.
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Except at Soquel High School, teen centers or other supervised gathering points for teens do not exist on school grounds at this time.
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Several agencies provide counseling on campus for a variety of different problems. (See report on Review of Initial Alcohol and Drug Intervention with High School Age Youth.) Conclusions 1. Substance abuse exists on every public high school campus in Santa Cruz County. Alcohol and cigarette use is not considered exceptional. Marijuana use is fast approaching the same level of acceptance.
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Reports and citations are referred to the Juvenile Probation Division for review and/or actions. Investigations are conducted and include meetings with the parents and the juvenile. Some cases are forwarded to Juvenile Court.
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The delay between the time of arrest and initial contact with a probation officer is typically two to three months.
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The Juvenile Probation Division interacts with the several law enforcement agencies conducting “Juvenile Diversion Programs.” 23. The Sheriff’s Department has no diversion programs in unincorporated areas policed by that agency. (See report on Review of Initial Alcohol and Drug Intervention with High School Age Youth.) -12 Substance Abuse in Santa Cruz County High Schools Consequences and Responsibility 2001–2002 Santa Cruz County Grand Jury Report 24. The Juvenile Probation Division reports that law enforcement officers can access any of the division’s information but that it does not routinely provide the information to officers.
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Below is a listing of the alternative high schools in Santa Cruz County. An asterisk denotes the Alternative Education schools run by the County Office of Education that place special emphasis on alcohol and substance abuse intervention. Alternative High Schools Run By Santa Cruz City School District (SCCSD) and Pajaro Valley Unified School District (PVUSD). Ark School (9-12) (SCCSD)...........................................................................Santa Cruz Delta High School (SCCSD)..........................................................................Santa Cruz Loma Prieta High School (SCCSD)...............................................................Santa Cruz New School (PVUSD)...................................................................................Watsonville Renaissance High School (PVUSD)........................................................La Selva Beach Review of Initial Alcohol and Drug Intervention with High School Age Youth -27 Alternative Education High Schools Run by the County Office of Education *Camp (COE)..............................................................................................Scotts Valley Cesar Chavez School for Social Change (COE/Barrios Unidos)...................Santa Cruz Corralitos Oaks (COE/ Above the Line)..........................................................Corralitos *Escuela Quetzal (COE/Youth Services)......................................................Watsonville San Lorenzo Valley Community School (COE).........................................Ben Lomond Santa Cruz Community School(COE)............................................................Santa Cruz Star Community School (COE)......................................................................Santa Cruz VISTA Community School (COE).................................................................Santa Cruz Watsonville Community School (COE)............................................................Freedom *Y.E.S. School (COE/Youth Services)..........................................................Santa Cruz Alternative Education High Schools Whose Students are Wards of the Court Luna PARK Academy (COE/ Youth Services).............................................Watsonville Sequoia PARK Academy (COE/Youth Services)..........................................Santa Cruz Residential High Schools Where Some of the Students are Wards of the Court *Tyler House (co-ed) (COE/Youth Services)..........................................La Selva Beach Residential High Schools Where All of the Students are Wards of the Court DeWitt Anderson Court School (girls) (COE).......................................................Aptos Robert A. Hartman, Juvenile Hall (COE)..............................................................Felton *Pacific Coast, (boys) independent study (COE)........................................Ben Lomond *STAR — short-term (co-ed), 12 students (COE)................................................Felton *Unity Care (boys with dual diagnosis) (COE).................................................Freedom Conclusions 1. There are many well-developed alternative education programs in Santa Cruz County geared toward helping students recover from substance abuse.
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Attended affordable housing meetings of the County Board of Supervisors.
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The average length of stay in Juvenile Hall has been reduced. In 1999 the average length of stay was 32 days. At the close of fieldwork, the average length of stay was 8.9 days.
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Some parents have reported the Juvenile Probation Division has a very lax attitude toward marijuana use. Some parents stated they were told by the Juvenile Probation Division, “At least it’s better than cocaine or methamphetamines.” 27. The County judicial system is evaluating juvenile detention reform.
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Studied documentation of housing projects approved by County Supervisors.
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The Watsonville Police Department has been instrumental in initiating dialogue between the Juvenile Probation Division and other law enforcement agencies. Conclusions 1. The Juvenile Probation Division has reduced the number of juveniles being detained in Juvenile Hall through the use of the Risk Assessment system. This presents the false impression of a reduction in juvenile crime.
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Interviewed a member of the Santa Cruz County Board of Supervisors.
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Interviewed other senior officials, Santa Cruz County government.
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Interviewed senior staff, Santa Cruz County Redevelopment Agency.
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Interviewed senior staff, Santa Cruz County Planning Department.
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Interviewed senior officials, City of Watsonville.
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Interviewed present and former senior officials, City of Capitola.
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Interviewed a member of the Santa Cruz City Council.
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Interviewed senior housing staff, University of California, Santa Cruz.
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Interviewed the Director of the Community Action Board, Santa Cruz. -24 Investigation of the Lack of Affordable Housing in Santa Cruz County Santa Cruz County Grand Jury Final Report: Section 4 Criminal Justice Committee Reports Detention Facility Inspections Background Historically, the Grand Jury developed in early Anglo-Saxon times as a body of citizens chosen by their community to identify wrongdoers and to act as “watchdogs” over certain aspects of local government including prisons. Today, the Grand Jury continues this tradition of keeping a watchful eye on the condition and management of the public prisons within the County of Santa Cruz as outlined in the Penal Code §919(b). Scope The Grand Jury fulfilled this requirement as follows: • Toured the Blaine Street Women’s Facility, Juvenile Hall, the Main Jail and the Rountree Facility Note: The report on the Juvenile Hall is located in section 1, -30. • Interviewed the staff at all the facilities during these tours • Read the Santa Cruz County Sheriff’s Office 2001 Annual Report • Reviewed Title 1 and Title 15 of the California Code of Regulations as they pertain to detention facilities • Read the Santa Cruz County Grand Jury Report for the years 1999–2000 and 2000– 2001 to ascertain past recommendations and check on follow-through by the facility managements • Reviewed the State Department of Corrections biennial inspection reports for the years 1996–2001 • Reviewed the Detention Bureau Selected Statistics, December 2001. Detention Facility Inspections -1 Review of the Blaine Street Women’s Facility Background The Blaine Street Facility, a minimum-security facility for women, is located at 141 Blaine Street adjacent to the Main Jail. The facility was established in 1984 and has 21 rooms. Most of the rooms accommodate two inmates per room. There is no medium-security facility for women in Santa Cruz County. Inmates incarcerated at Blaine Street have been sentenced for nonviolent crimes. The staff consists of one Supervision Detention Officer and two detention officers who work on a rotating schedule. Findings 1. The Blaine Street jail is a minimum-security facility set in a home-like environment complete with a backyard, benches, children's sandbox and vegetable garden. The State Board of Corrections has rated the facility to house 40 female inmates. The average occupancy for the year ending 2001 was eighteen inmates per month. The accepted officer-to-inmate ratio is one to fifty/sixty inmates. Therefore, only one officer is required to be on duty.
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The COE has the primary responsibility of reviewing the yearly audits of the school districts’ budgets.
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All school and district payrolls pass through the COE, which also passes along an administrative charge to the school districts.
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As of April 1st 2002, the county wide declining enrollment dilemma has not resulted in budget or staff reductions at the COE. One-School Districts 41. These four one-school districts have a total student enrollment of 540: • Bonny Doon Union Elementary School District • Founded 1940. 170 students. • One school K-6. • Happy Valley Elementary School District • Founded 1864. 130 students. • One school K-6. • Mountain Elementary School District • Founded 1869. 158 students. • One school K-6 • Pacific Elementary School District • Founded 1906. 82 students. • One school K-6 • Yearly budget (combined): $4,660,810 • Total Number of Employees (combined): 122 42. Each district is a self-contained business entity, i.e., it includes hiring, budgeting, employee contract, curriculum and fund raising functions.
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The Principal has the dual role of District Superintendent and School Administrator.
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Since family income levels are generally above federal guidelines in these districts, very little grant money is available. A Review of the Structure and Administration -7 of the Santa Cruz County Public School Systems 45. Due to the cost of special education programs, a very serious financial threat is posed to these small districts. If a student needs an aide or a tutor with him/her or if the student needs education outside of the district, the district must pay for it.
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Test scores in these one-school districts lead the county, but the cost per student is much higher than the other six county school districts.
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An Administrator stated, “Parental involvement and a dedicated, committed staff are a key component to the success of the district." 48. Families are moving from the area, one of the least affordable in the nation, due to the high cost of housing.
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Declining enrollment severely impacts small districts. A family with any children leaving the school district poses a serious financial loss due to the loss of payment for ADA for that student. Six Multi-School Districts 50. The six multi-school districts range from 1,994 to 19,863 students.
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Each District Office operates as an individual business entity.
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Staff in each District Office consists of Administrative, Human Resources, Purchasing, Facilities, Food Service, Curriculum, and Staff Development personnel.
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Each district negotiates its own union contacts.
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The ten school districts set policy and administration for all schools within their jurisdiction.
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Boundaries of school districts make it difficult for teachers and students to transfer between districts where declining enrollment is severely impacting a district’s financial viability.
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With the multi-school districts in the North County, students from one family may attend K-6 in one district, middle school in another and high school in yet a third. This creates a lack of uniformity in the curriculum, transportation and family vacation schedules. Live Oak School District Founded Number of Students Yearly Budget Number of District Employees 1872 1,994 $13,226,298 267 Four Schools — Kindergarten (K) through 8th Grade • Del Mar Elementary School • Green Acres Elementary School • Live Oak Elementary School • Shoreline Middle School -8 A Review of the Structure and Administration of the Santa Cruz County Public School Systems 57. Live Oak School District, surrounded by the Soquel and Santa Cruz school districts, has housing that is increasingly out of the reach of many working families. Consequently the Live Oak School District is experiencing declining enrollment.
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Live Oak will face budget deficits within two years unless costs in the school district are lowered; additional funding is acquired or transfers of students from other districts are achieved.
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The district has been proactive in addressing their budget issues by doing the following in an effort to attract more students: • Opened day care to all residents in the community • Opened a community center • Formed a parent/teacher committee to examine budget and declining enrollment issues. • Are preparing to open a magnet school (a school which emphasizes a specific area of study) and plan to enroll students who live anywhere in Santa Cruz County who are interested in that subject. Soquel Union Elementary School District Founded Number of Students Yearly Budget Number of District Employees 1890 2,142 $14,344,059 226 Five Schools — Kindergarten (K) through 8th Grade • Capitola Elementary School • Main Street Elementary School • Santa Cruz Gardens Elementary School • Soquel Elementary School • New Brighton Middle School 60. Soquel suffers from declining student enrollment with approximately 140 students lost over the last five years.
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Lack of affordable housing and the high cost of special education severely impact this district. District Administrators expect budget deficits in the future.
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Family income levels tend to be above federal guidelines that make it very difficult for the district to qualify for grants.
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Administrators state that the cost of preparing grant applications greatly reduces the net amount funded to the district. A Review of the Structure and Administration -9 of the Santa Cruz County Public School Systems Scotts Valley Unified School District Founded Number of Students Yearly Budget Number of District Employees 1872 2,591 $14,578,141 257 Four Schools — Kindergarten (K) through 11th Grade • Brook Knoll Elementary School • Vine Hill Elementary School • Scotts Valley Middle School • Scotts Valley High School 64. Scotts Valley High School was opened on September 3rd 1999. This increased the total enrollment for the school district. However, by doing so other districts lost enrollment.
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Declining enrollment has not impacted the district, but the Scotts Valley district does not anticipate future growth.
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The district is in the process of remodeling its middle school campus.
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On November 8, 1994 voters approved two bond measure totaling $22.7 million for a new high school.
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On May 1, 1995, $4.5 million was released with the remaining $18.2 million released on August 1st 1997.
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Voters rejected additional school bonds for the district in March 2002. San Lorenzo Valley Unified School District Founded Number of Students Yearly Budget Number of District Employees 1952 3,996 $27,086,531 447 Six Schools — Kindergarten (K) through 12th Grade • One Charter Program • Boulder Creek Elementary School • Quail Hollow Elementary School • Redwood Elementary School • San Lorenzo Valley Elementary School • San Lorenzo Valley Junior High School • San Lorenzo Valley High School 70. San Lorenzo Valley School District is located in the mountainous region of Santa Cruz County.
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The district faces numerous challenges with transportation and declining enrollment. -10 A Review of the Structure and Administration of the Santa Cruz County Public School Systems 72. While district buses operate daily during school hours, late after-school activities pose a problem.
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Missing scheduled morning pick-ups and return trips home often discourages students from attending school or participating in after school activities.
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School officials feel free bus passes for public transportation would help daily attendance.
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At the close of fieldwork, the Superintendent stated the budget would have a deficit in the 2002-2003 school year. Santa Cruz City School District Founded Number of Students Yearly Budget Number of District Employees 1857 7,998 $56,537,272 938 Twelve Schools — Kindergarten (K) through 12th Grade • Two Ark Studies Schools: Ark School (9-12) and Home Studies AFE (K-12) • Bayview Elementary School • Branciforte Elementary School • De Laveaga Elementary School • Gault Elementary School • Monarch Elementary School • Natural Bridges Elementary School • Westlake Elementary School • Sojourn Charter Middle School • Branciforte Junior High School • Mission Hill Junior High School • Delta Charter High School • Harbor High School • Santa Cruz High School • Soquel High School 76. The district has lost approximately 720 students since 1999. 322 students were lost during the 2001 school year alone.
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In order to remain solvent, the district must reduce its budget by $3.2 to $4.9 million dependent on receiving additional funding.
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A parcel tax measure was recently passed. According to district officials, these amounts will not be sufficient to cover growing deficits.
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In 1998, voters approved bond measures totaling $86 million designated for school remodeling.
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The District has been in the processing of renovating older school buildings in order to bring them into compliance with federal mandates. A Review of the Structure and Administration -11 of the Santa Cruz County Public School Systems 81. The district recently announced that Strategic Construction Management Consulting Company would receive $1.2 million to oversee these renovations.
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Recently two high school principals resigned their positions citing the high cost of housing, declining enrollment, and budget concerns. One principal was quoted as saying; “I’ve been having to make budget decisions that honestly are difficult for me to deal with, reducing people’s work day, their work year. Unfortunately this is the beginning of a cycle that is not going to go away for a while.” 83. Many students from the Santa Cruz City School District were transferred to Scotts Valley High School, which opened in 1999. This negatively impacted the school district’s ADA. Pajaro Valley Unified School District Founded Number of Students Yearly Budget Number of District Employees 1960 19,863 $142,649,320 2,381 Schools — Kindergarten (K) through 12th Grade • Three Charter Schools • Alianza Elementary Charter School • Linscott Charter School • Pacific Coast Charter School • Amesti Elementary School • Ann Soldo Elementary School • Bradley Elementary School • Calabasas Elementary School • Freedom Elementary School • H. A. Hyde Elementary School • Hall Elementary School • MacQuiddy Elementary School • Mar Vista Elementary School • Mintie White Elementary School • Ohlone Elementary School • Rio Del Mar Elementary School • Salsipuedes Elementary School • Starlight Elementary School • Valencia Elementary School • E.A. Hall Middle School • Lakeview Middle School • Pajaro Middle School • Rolling Hills Middle School • Aptos Junior High School • Aptos High School • Renaissance High School -12 A Review of the Structure and Administration of the Santa Cruz County Public School Systems • Watsonville High School 84. Pajaro Valley Unified School District is the largest school district in the County.
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The migrant population and other non-English speaking students create unique expenses and challenges for PVUSD.
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According to State of California statistics, thirteen schools in the district have unacceptably low-test scores.
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The District is continuously initiating programs to reverse low academic achievement.
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Overcrowding at the high schools is a major concern.
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A new high school is scheduled to open in approximately two years. Conclusions 1. Having ten different school districts in the county under the umbrella of the COE has resulted in duplication of staff and administrative duties and increased the districts’ cost of doing business. Duplication of administrative staff drains the finances of the county school systems and threatens their financial viability.

Recommendations 2

Conclusions 148

Agency Responses 1

Government agencies' official responses to this report's findings and recommendations. Click on a response to see the structured breakdown.

No Responses Found 10

Government entities assigned to respond to this report. No response documents have been linked in our database.

Capitola City
San Lorenzo Valley Unified School District School District
Santa Cruz City
Santa Cruz City High School District School District
Santa Cruz County Board of Supervisors Elected County Office
Santa Cruz County Office of Education Agency
Santa Cruz County Sheriff Elected County Office
Scotts Valley City
Soquel Elementary School District School District
Watsonville City