Davis Branch Library*

A Conflict of Interest form is required by state law. in January 2004 with the General Manager and the Board of 2. All appraisers sign a Conflict of Interest Statement. Directors. Conflict of Interest Statements are filed in the Recorder's The Board of Directors serves as the governing body for Office. the Yolo County Flood Control & Water Conservation District Appraisers' work is not recorded in an hourly format. (YCFC&WCD). The Board is a voluntary body, appointed 5. The present procedure for tracking work will not identify by the Board of Supervisors. Each Board member serves a problems should appraisers engage in conflict of interest four year term. The Board of Directors oversees its own activity. budget, setting water rates, hiring management, determining salary rates and other expenses. The Board works closely RECOMMENDATIONS with management to set policy and approve actions, such as 04-01 The Yolo County Assessor should develop a time contracts. sheet that reflects the appraisers' hours. The General Manager was hired by the YCFC &WCD in RESPONDENTS (INVESTIGATIONS: Yolo County Flood Control & Water Conservation District-continued on next page) Yolo County Assessor 2003-2004 YOLO COUNTY GRAND JURY FINAL REPORT course of farming. The Board believes that the General Man- July 2003. Prior to working for the Water District he worked ager's expertise and professionalism as a manager has im- with the Kings River Water Association overseeing 28 water proved the morale situation. The General Manager updated districts in Fresno, Tulare and Kings Counties. He was named operations, gives employees more responsibility and provides Conservationist of the Year, holds a degree in engineering, consistent treatment among employees. The Board wants and is experienced in using electronic databases for water- their process of dealing with issues to be transparent and related records, including accounting. Upon taking the posi- they invite feedback from users of the District's water tion of General Manager he began holding regular meetings services. to clarify expectations and establish procedures that will best serve the water district and employees. He now meets FINDINGS regularly with upper management and has an open door 6. There exists a hierarchy of supervision beginning from policy for all employees. supervisors to upper management to the Board of Direc- The District has an in-house safety officer and plans to tors. update the safety plan. Safety meetings are held periodically 7. Promotions have been given to employees with experi- and the Joint Powers Insurance Authority (JPIA) provides a ence and/or expertise and the Grand Jury did not find a newsletter for all employees, which contains safety infor- lack of fairness in job promotions or salary. mation. Employee injuries are reported to supervisors or to 8. Training is available and sometimes required. the office.

Improvement of morale is being addressed through The District has implemented a training program that management practices and review of policies. allows reimbursement for education and/or training that is 10. The Ditchtender's Handbook governs water regulation job related. Job opportunities are posted both internally and and the computer system records water usage. externally. The District plans to implement an education 11. The District Board of Directors selected a new General requirement for entry level employment. The District is Manager who has both skill and demonstrated success in auditing job positions to insure better uniformity and improve supervision and team building. accountability. By formalizing the employment process, the 12. None of the allegations involving "fudging of numbers," District seeks to make the process for employment and abuse of overtime, abuse of sick leave, or safety issues promotion more fair. The four supervisors, the Assistant was substantiated. Manager and General Manager are qualified for management by seniority, experience, training or education. Salary differ- RECOMMENDATIONS ences are based on years of service and job title. 04-02 Set a schedule for regular, on-going safety training. A laptop computer system is used to document water usage and record billings. The District bills users for the RESPONDENTS water. The system has been phased in and all reports indicate Board of Directors, Yolo County Flood Control and satisfaction from users and overall improvement in the Water Conservation District: system.

All investigators are peace officers and receive training in PC 832 (Arrests, Search & Seizure and Firearms), BACKGROUND Coroner's Academy, Homicide Investigation, Fingerprint The differences among fire departments/districts stem Identification and Blood Spatter Analysis. from precedent and available resources to meet the needs of 29. The total number of coroner death investigations in the their respective communities. Most of the fire districts are past 10 years has increased from 456 to 736 annually classified as "dependent districts," meaning that the Fire which represents a 61% increase. Although this is a District Commissioners are appointed by the Board of Super- substantial increase in workload, it should be noted that visors. In No-Mans Land Fire Protection District, the Board requisite forensic procedures declined by 36% during of Supervisors serves as the Fire District Commissioners. this same time period. Staff attributes the decline to The Yolo Fire Protection District is not a dependent district thorough and detailed investigations as well as advanced and their commissioners are chosen through the election training. process. In most of the fire districts in Yolo County, the fire 30. This year it is estimated that the caseload will approach chief is elected by the volunteer firefighters except in Yolo, 800 investigations and approximately 12.5% will require where the fire chief is appointed by the commissioners. In a forensic autopsy. Madison, the volunteer firefighters submit their choice for 31. All forensic examinations are performed by board certi- fire chief to the commissioners. In the cities of Davis and fied forensic pathologists. West Sacramento, the fire chief is chosen by the City Man- 32. There are 12 certified pathologists in the state of Cali- ager. fornia and four work with the county. None of the fire districts interviewed reported any con- 33. The Coroner's Office, faced with the challenge of an cerns or complaints about the response time to fires and escalating workload with static staffing levels, has proven resourceful and efficient in their daily operations. (REVIEWS: Yolo County Fire Departments and Districts-continued on next page) . 2003–2004 YOLO COUNTY GR AND JURY FINAL REPORT emergencies. The average response time for fire departments 35. Willow Oak Fire Protection District has two fulltime ranged from 4 to 10 minutes. Firefighting activities include firefighters, along with volunteer firefighters. answering calls for structural fires, medical calls, automobile 36. Davis, West Sacramento and Woodland Fire Departments accidents, and various hazardous conditions, such as chemical employ fulltime firefighters. spills. All of the fire departments and districts have formed 37. All fire districts have the necessary equipment to fight agreements, either a Mutual Aid Pact or Automatic Agree- fires and provide emergency services. ment with other cities to provide mutual assistance. In 38. Fire fighting equipment is replaced either by the purchase addition, there is a state wide mutual aid pact. of new equipment, the purchase of used equipment or Recruitment and retention of rural fire fighters varies by volunteers build the equipment, such as outfitting trucks fire district. While all districts continue to provide excellent for firefighting. fire protection in large part due to the ingenuity and resource- 39. 911 calls from cell phones present an inherent problem fulness of the volunteer firefighters, it is becoming more because cell phone calls do not provide the location of difficult to maintain volunteer levels in many of the rural the call. communities. Some fire districts have third generation fire RECOMMENDATION fighters serving their local fire district but other districts, such as West Plainfield, must recruit volunteers who live 04-14 The Yolo County Board of Supervisors should sup- outside the district. The No-Mans Land Rural Fire Protection port the use of Development Impact Fees to maintain District was disbanded in June 2002 and the Yolo County fire services. Board of Supervisors serve as the Board of Directors for the 04 - 15 The Yolo County Board of Supervisors should pro- District. The Davis Fire Department provides fire protection vide additional resources as needed to all fire dis- services for No-Mans land. tricts for grant writing assistance. Funding issues are a common concern among fire dis- RESPONDENTS tricts. Worker's Compensation and other insurance costs continue to rise, taking a bigger chunk of the districts' annual The Board of Supervisors budget, which in turn takes away from needed capitol im- SOURCES provements. Fire districts bear the costs resulting from service calls for accidents or grass and vegetation fires unless the Persons Interviewed cost can be billed to the individual or the individual's insurer. Fire Chief for Capay Fire Protection District Maintaining and updating of equipment is costly though the Fire Chief for City of Davis Fire Department fire districts defray the costs by providing basic maintenance Fire Chief for Clarksburg Fire Protection District themselves. The fire districts are seeking grants to help pay Fire Chief for Dunnigan Fire Protection District for the costs of replacing equipment, but writing grants is Fire Chief for Elkhorn Fire Protection District time-consuming and the districts do not have full time grant Assistant Fire Chief for Elkhorn Fire Protection District writers. Fire Chief for Esparto Fire Protection District Rural fire districts receive a portion of property tax Secretary for the Esparto Fire Department assessment funds and some receive additional allocations Fire Chief for Knights Landing Fire Protection District from special assessments or other sources. City fire depart- Fire Chief for Madison Fire Protection District ments are funded mainly from the general fund. Fire de- Fire Chief for West Plainfield Fire Protection District partments and districts are audited regularly. Beyond the Lieutenant for the West Plainfield Fire Department value of having fire districts protect property and provide West Plainfield Board of Commissioners emergency aid, fire districts serve their communities in other West Plainfield Volunteer Firefighter ways as well. Fund raisers for various community needs are Division Chief for West Sacramento Fire Department a common thread of social service provided by local fire Fire Chief for Willow Oak Fire Protection District districts. Steak frys, pancake breakfasts, and bean feeds, have Two fulltime Firefighters from Willow Oak Fire District all been hosted by fire districts. "Filling the Boot" for Volunteers from Willow Oak Fire District community needs is another way fire districts give back for Fire Chief for Winters Fire Protection District the betterment of Yolo County. Yolo County is fortunate to Fire Chief for Woodland Fire Department have the dedicated citizen volunteers and professional fire Fire Chief for Yolo Fire Protection District fighters that provide the needed service to all citizens of the Fire Chief for Zamora Fire Protection District County. Fire Marshall for City of Davis Fire Department Numerous other volunteers FINDINGS .

All but three fire districts are comprised of volunteer (REVIEWS- firefighters. continued on next page) . 2003-2004 YOLO COUNTY GRAND JURY FINAL REPORT that work 12 hour shifts. Yolo County Jails 41. At the time of interviews Yolo County Board of Super- visors had imposed a hiring freeze due to budget limita- REASON FOR REVIEW tions. The result was overtime that in some cases was California Penal Code 919(b) mandates that each year mandatory. In some cases if no correctional officers are members of the Grand Jury will investigate the conditions available deputies from the Sheriff's department are and management of public detention facilities and report on called to fill in. A deputy sheriff is paid approximately its findings. This annual review was conducted to comply with 20% more to do the work of a correctional officer. the mandate.

As a result of Finding #41, morale has been a problem at times. BACKGROUND 43. When the jail was constructed, it was located away from The Grand Jury visited this facility in September 2003 other community development, sitting by itself. Today, and was escorted by a Sheriff's department captain and a much development has grown next to it including homes correctional officer lieutenant. The facility was built in 1991 and schools. The development in the area makes the and has become overcrowded since then. The jail is used for prospect of expanding the jail in its current location less the detention of persons pending arraignment, during trial likely to meet with widespread approval. and post sentencing. Jail management expressed the need RECOMMENDATIONS for a new facility to be built because the present jail is overcrowded. 04-16 Currently, an assessment is being conducted to determine the feasibility of conducting a full-scale All inmates are evaluated mentally and physically upon study about relocating or expanding the current jail. arrival. Inmates are clothed, housed, fed and provided medi- This assessment should be completed as quickly as cal care as needed. Inmates have access to telephones (collect possible. calls only). The telephone service providers contract with the jail through the bidding process to provide this service. RESPONDENTS Overcrowding of the facility has continued since 2002. The Yolo County Sheriff: facility is understaffed due to budget cuts and difficulty hiring Finding 40, 42 new correctional officers. Both of these situations have Yolo County Administrative Officer: caused considerable stress on the officers due to the resulting, Finding 41, 43; sometimes mandatory overtime. The overcrowding has re- Recommendation 04-16 sulted in two different remedies: Transferring inmates to neighboring county jails. Some SOURCES inmates go to Glenn County Jail at a cost to Yolo Yolo County Sheriff County of $30 per day or to Colusa County at $47 Assistant Sheriff per day. Other participating counties charge varying Correctional Lieutenant rates. Yolo County Correctional Captain Due to # Federal Consent Decree which mandates Yolo County Correctional Sergeant that inmates not be housed in overcrowded and unsafe Correctional Officer conditions, once the county exceeds capacity inmates Union Steward must be released or transferred to another facility. The decision for early release of prisoners is dictated by Yolo County Juvenile Hall the seriousness of the misdemeanor. A lengthy, time- consuming process occupies the jail staff in cate- gorizing inmates for possible release or transfer. REASON FOR REVIEW The decision whether to release or transfer inmates is at The California Penal Code instructs grand juries to con- the sole discretion of the Yolo County Sheriff. duct annual inspections of the county detention facilities, A separate structure, the Cameron Building, is an educa- including Juvenile Hall. tional resource center provided for inmates to improve themselves through self study and computer skills. The BACKGROUND facility is well run with the available personnel. A division of the Probation Department, Juvenile Hall is the temporary detention and treatment facility in and for Yolo FINDINGS 40. At the time of the Grand Jury's visit there were 135 (REVIEWS: Yolo County Juvenile Hall- employees at the jail and 82 are correctional officers continued on next page) 2003-2004 YOLO COUNTY GRAND JURY FINAL REPORT has the responsibility for the project. County for minors who are charged with violation of the C. The new Juvenile Hall will be constructed in Wood- law or who have violated conditions of probation. land at the corner of County Road 102 and Gibson Members of the Grand Jury toured Yolo County Juvenile Hall on November 11, 2003. The tour was conducted by a Road. D. The cost is estimated to be $12.6 million of which, supervising detention officer who readily responded to all $7.5 million is funded by a grant from the Board of inquiries concerning current policies and procedures, and Corrections. The remainder will be funded through provided requested copies of forms currently in use (including the Development Impact Fees. Parental Authorization, Intake Health Screening, and a recent- E. Lionakis Beaumont Design Group is the architect. ly revised Rules Infraction Sheet). The tour included all F. The general contractor is Broward & Sons. sections of Juvenile Hall with particular attention paid to G. A public ground breaking ceremony was held on intake procedures, court appearances, and the practices March 16, 2004. relative to housing, health care, nutrition, sanitation, educa- H. The anticipated completion and date of occupancy is tion and recreational activities. On-duty staff members and July 2005. nursing personnel were observed and interviewed. Educa- tional and health care issues were discussed. Three juveniles RECOMMENDATIONS were privately interviewed. Additionally, the Grand Jury was provided with copies The supervisors and staff should be commended for 04 - 17 of the report of the September 2003 Board of Corrections maintaining a high degree of professionalism and inspection, and information from the County Administrative perceived efficiency despite the antiquated and over- Office. crowded conditions. Opened in 1976, Juvenile Hall was expanded in 1996. 04 - 18 All agencies, departments, and involved personnel The facility has a Board of Corrections Bed Rated Capacity should exert every effort to assure that the antici- of 30, however, in consideration of the measures taken to pated Juvenile Hall completion and occupancy date mitigate the crowded living conditions, the Board of Correc- is realized, that appropriate facility-specific policies tions has, since January 2000 deemed "...the facility to be and procedures are developed prior to occupancy, a suitable place for the confinement of minors while crowded." and that a smooth transition is made. A new 90-bed facility has been in the planning stages for Juvenile Hall administrators and staff should pay 04-19 years. particular attention to maintaining a high degree of facility and equipment maintenance during the final FINDINGS months of occupancy of the present Juvenile Hall.

The supervisors and observed staff seemed very knowl- edgeable, capable, attentive, and caring despite the som- RESPONDENTS ber tone and strict discipline imposed on the residents. Yolo County Juvenile Hall Superintendent: 45. The members of the Grand Jury were impressed with Finding 46, 47, 48; the demonstrated professionalism.

The facility is old and not well designed for its current Chief Probation Officer: needs; however, it was very clean and efforts to keep it Recommendation 04-17, 04-18, 04-19 in reasonable repair were apparent. Manager, County Administrative Office, Central Services 47. The facility is overcrowded, with occupancy regularly Division: exceeding 40. A classroom is converted to a futon- Recommendation 04-18, 04-19 furnished sleeping facility each night. Yolo County Administrative Officer: 48. Other than concerns about overcrowding, the Board of Finding 46, 49; Corrections' September inspection found the facility in Recommendation 04-18, 04-19 compliance with all applicable codes. Yolo County Board of Supervisors: 49. Acknowledgedly needed since the late 1990's a new, Recommendation 04-17, 04-18, 04-19 podular 90-bed Juvenile Hall is well on the way to becoming a reality. Inquiry to the County Administrative SOURCES Office provided the following information relative to the Persons Interviewed construction of the new Juvenile Hall (JH): Supervising Officer, Juvenile Hall A. The Central Services Division of the County Adminis- trative Office has the primary responsibility for all Juvenile Hall construction. (REVIEWS: Yolo County Juvenile Hall- B. The Manager, Facilities Services and Capital Programs continued on next page) 2003–2004 YOLO COUNTY GRAND JURY FINAL REPORT Randomly selected Juvenile Hall staff the department is supervised by the acting chief pending Three juvenile residents appointment of an interim chief. There are 65 full time sworn officers, including the chief, deputy chief, three lieutenants Documents Examined and eight sergeants. West Sacramento shares two half-time Juvenile Hall forms and information sheets Court Liaison officers. Policy and procedure directives West Sacramento booking fees were $150,464.80 for 2000- Board of Corrections' October 2003 Juvenile Hall inspection 2001. The Acting Chief acknowledged that while, in the past, report the State of California reimbursed cities for booking fees, Memo from Manager, County Administrative Services, Cen- reimbursement of booking fees in the future is a topic of tral Services Division much discussion and uncertainty. West Sacramento Police Department patrols 23.2 square miles. West Sacramento police will use tasers if necessary. Yolo County Police Sometimes the taser is used in conjunction with a baton or Departments pepper spray or with a K-9 unit. According to the Acting Chief, the increased use of the taser corresponds to a decrease in use of the baton and pepper spray. Additionally, the use REASON FOR REVIEW of the taser corresponds to a lower incidence of injuries The Penal code instructs grand juries to inquire annually related to use of force situations. During 2003, there was into the conditions and management of public jails and related significant decrease in the need to obtain medical clearance functions. The Winters, Woodland, Davis, and West Sacra- for suspects that were booked a the Yolo County Jail as well mento Police Departments provide law enforcement services; as a decrease in claims against the city relating to injuries they also maintain facilities for temporary custody of arrested suffered during an arrest. All uses of force situations were reviewed and deemed justified by the department. persons. Davis Police Department Winters Police Department , A tour of the Davis Police Department was conducted on The station for the Winters Police Department is housed February 4, 2004. The building is 2½ years old with five in a former part of the city hall. The station occupies approxi- adult detaining cells and a juvenile cell. The Police Chief mately 2,480 square feet. The building is old and a new was appointed in September 2003. The department has 57 public safety facility is the city's #1 priority. A public safety sworn officers including captains and four lieutenants. Davis facility will be built as funds become available. Police Department deploys and authorizes the use of tasers The Winters Police Department patrols about 2 ½ square and batons. Suspects are booked and fingerprinted at the miles. The outlying area is patrolled by the Yolo County station, then transported to the Yolo County Jail. Booking Sheriff and the California Highway Patrol. All Winters police costs in fiscal year 2002-2003 were $93,349 and as of March officers are issued tasers and batons but there were no inci- 2004, the cost was $71,378. dents involving the taser or baton in 2003. The Davis Police Department is the only city in Yolo Winters Police Department pays approximately $10,000 County that operates its own emergency 911 center. A Youth for booking fees per year. The department does not have a Intervention Specialist works with families on truancy issues court liaison. Winters Police Department has a chief of police, and distributes bicycle helmets to children who have no currently on medical leave, two sergeants, five patrol officers, bicycle helmet. one school resource officer and one civilian employee. The Davis Police Department participates in the Court Liaison Department is in the process of hiring an officer to fill a Program. The liaisons work with the courts to ensure officers vacancy created by the promotion of a patrol officer to are not called to court unless truly needed. The use of liaisons sergeant in November 2003. saved the department $9,954 of on-duty time and $18,396 of Woodland Police Department overtime during this one year. The Woodland Police Department opened a new facility West Sacramento Police Department in March 2004. The new facility has approximately 43,000 The West Sacramento Police station is approximately square feet for the main building and 11,000 square feet for 24,000 square feet. The department is housed in a large the service building which serves as a shooting range. Four building renovated for that use. It has outgrown the original needs due to the growth of the city. Its shared office and parking space make for a crowded environment. (REVIEWS: Yolo County Police Departments- The Chief of Police is on extended medical leave and continued on next page) 2003–2004 YOLO COUNTY GRAND JURY FINAL REPORT holding cells in the new facility serve as a temporary holding gency rooms are given admittance priority by hospital facility and are used to book and fingerprint the suspects staff. prior to being taken to the county jail.

With the exception of the Winters and Woodland Police Departments there still appears to be concern over the time and cost of transporting suspects from the city jail to the county jail.

It appears that the method of transporting of suspects to the county jail still needs to be improved because taking an officer off the streets to transport a suspect reduces the effectiveness of that agency during that time period.

Though the 2002-03 Grand Jury made a recommendation that a study be made about a shuttle service to transport suspects to the county jail, no written report or study has been produced.

If the suspect requires emergency medical care he/she is brought to Woodland Memorial Hospital, Sutter Davis Hospital or in the case of West Sacramento, to the UCD Medical Center in Sacramento.

Officers accompanying suspects to the hospital emer- 2003-2004 YOLO COUNTY GRAND JURY FINAL REPORT Appendix Responses to the 2002–2003 Grand Jury Report In accordance with §933 (c) of the California Penal Code, the governing body of a public agency or its designated administrator must respond to Grand Jury recommendations within 90 days. Other named respondents must comment within 60 days. Each recommendation below is followed by an extract of the official response. The complete report is available at public libraries in Yolo County. The complete set of responses is available for public view at the office of the Clerk of the Yolo County Board of Supervisors. Yolo County Sheriff's Department fund. Additional audit work for the period July 1, 2001 to January 31, 2003 would not add value; the internal control 03-01 The County should establish clear, definitive pro- and audit work described in the above responses are adequate cedures for evaluating requests for disbursements to ensure accountability of the Special Fund. We will audit from this Fund to eliminate improper use. the expenditures for the period January 1, 1999 to June 30, Auditor-Controller's Response: The recommendation has 2001 and from February 1, 2003 to June 30, 2003 and issue been implemented. My office has documented the criteria a separate report on the results of our audit. We are nearing used by the Auditor-Controller staff to review and approve completion of the audit for the period 2/1/03-6/30/03, but claims submitted by County departments, provided a copy have yet to audit the prior period 1/1/99-6/30/01. to the Sheriff, and met with him to discuss how the criteria 03-04 The Sheriff shall make restitution to the County apply to the special funds controlled by him. We also recom- General Fund of all amounts expended for purposes mended to the Sheriff that the funds designated by the Board not consistent with the spirit of Government Code of Supervisors be accounted for in a separate budget unit to Sections 29430-29440. They include but are not provide greater visibility. The Sheriff decided not to imple- limited to: ment it.