Sacramento County Grand Jury • 2007-2008

Grand Jury – Final Report 2007-2008*

Published: June 30, 2008 126 pages Consolidated Report

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⚠️ Aviso de traducción: Este contenido ha sido traducido automáticamente. El texto original en inglés es la versión oficial. La traducción puede contener errores.

⚠️ Este contenido ha sido traducido automáticamente. El texto original en inglés es la versión oficial. La traducción puede contener errores.

Note: Missing finding numbers detected: F15, F16, F17, F18, F19, F20, F22, F23, F24, F25, F26, F27, F28, F29, F30, F31, F32, F33, F34, F35, F36, F37, F38, F39, F40, F41, F42, F43, F44, F45, F46, F47

Findings 16 findings

The Joint Powers Agreement (JPA) incorrectly vests excessive discretion for Library operations and issues in one position, that of Library Director.

Past financial mismanagement, lack of expertise and frequent animosity among City leaders has brought Isleton to a state of serious indebtedness. Sacramento County is able to assist Isleton with the management of its accounts. However, the County requires an acceptable audit before assuming that task. There have been several attempted audits over the past few years. Due to missing records, the City has been unable to produce an acceptable audit.

The JPA failed to create any system of independent checks and balances in the Library for the benefit of the Governing Board when considering issues and rendering decisions.

Isleton has an uncertain form of governance which often pits the office of the City Manager against the office of the Mayor or other City Council members. This causes conflict.

Isleton representatives failed to consider current and long-term consequences to the City when negotiating a residential housing development agreement and the impact fees to fund and maintain resulting infrastructure improvements. The negotiating team was untrained and inexperienced for this complex task. When offered training to become proficient in the type of negotiation required, City representatives refused. The City Council, Mayor, and the then Acting City Manager ignored professional advice • from the City Attorney and others when considering impact fees arising from the development proposal.

In January 2006, there was a transfer from the Isleton Redevelopment account to the City's General Fund in the amount of $150,000. These funds have not been repaid. City officials refused to repay these funds, even after being advised by legal counsel on numerous occasions that such a transfer was unlawful. The following are documented instances of the City's longstanding awareness of its wrongdoing in transfers of this nature: A legal memorandum dated September 19, 2000 from the former Isleton City Attorney ٠ expressed concern that the City was not following the requirements for use of Redevelopment Funds as set forth in the June 25, 1997, agreement between the City and the Redevelopment Agency. The funds were to be placed in a separate account and not co-mingled in the City's General Fund. The City was advised to stop co-mingling funds, but continued to do so. A letter dated November 7, 2003, from the California State Attorney General to the Mayor informed the City of an investigation for a possible "major violation" of the California Community Redevelopment Law (Health and Safety Code § 33000 et seq.), for failing to submit required annual audits to the State Controller regarding use of Redevelopment Funds. Another legal memorandum dated January 23, 2006 from the City Attorney informed the • Isleton Mayor that a loan or transfer of tax increment funds (Redevelopment Funds) to the City's General Fund was unlawful under existing California statutes. The City was also advised to maintain accurate records of Redevelopment Fund expenditures and to submit annual audits. A third legal memorandum, dated February 22, 2006, from the City Attorney to the then ٠ City Manager and City Clerk, informed them that the transfer of tax increment funds (Redevelopment Funds) to the City's General Fund was unlawful and such a transfer should be reversed and the practice stopped. If there was a resolution memorializing such a transfer, it should be reversed. It was not authorized by law.

Many calls for fire and emergency services in the Isleton area require multiple fire agency responses. At present, several area fire agencies have restricted or qualified mutual aid assistance agreements with Isleton. This region's fire and emergency services, primarily delivered by volunteer firefighters, lack uniformity of equipment and training to meet the objective of mutual aid.

The Governing Board gave the Library Director broad latitude and required little accountability from the Director beyond regularly scheduled agenda meeting reports.

There are seven separate fire protection and emergency related service groups in and around Isleton. (See Attachment 1.) River Delta Fire District maintains a fire station directly across the street from the Isleton Fire Department. Neither of the two fire agencies (the Isleton Fire Department or the River Delta Fire District) has a stand-alone fire protection and emergency services capability for the Sacramento County side of the Sacramento River. Recent concerns regarding bridge safety and bridge closures at the Rio Vista Bridge present a serious barrier to ensuring quality fire and emergency services in the Isleton area. For example, the California Department of Transportation closed the bridge from 9:00 p.m. to 6:00 a.m. for three weeks this past November. This bridge is also raised and lowered for boat traffic on a daily basis. Currently, Isleton is unable to fully and reliably staff an efficient and consistent response for fire and emergency services. The combination of all these factors makes the delivery of reliable fire and emergency services to Isleton residents very uncertain.

F10

The Governing Board failed in its oversight of the Library, the Library Director, and the Library executive team pursuant to the obligations set forth in the Joint Powers Agreement of 1993, as amended in February, 2007.

F11

An Accounting Policies and Procedures Manual was to have been implemented under the 2003 Financial Management System Assessment. Three Finance Officers later, this still has not occurred. Further, there is no complete personnel policies manual.

F12

The City of Isleton faces many fiscal and organizational challenges that require the immediate and continued attention of City leaders as well as the citizens.

F13

Sacramento County can assist Isleton in its accounting and record-keeping. The county can provide experienced program personnel to help Isleton identify, secure, and administer all grants or other public monies available.

F14

Procedures for cash management at Library branches are inconsistent. Some branches retain cash until it accumulates in an amount up to $2,000 before the cash is transferred to the Finance Department for accounting and deposit. No one has been assigned the responsibility of auditing branch library cash accounts.

F21

Library branch managers have Master's Degrees in Library Science. (The exception to this practice is found at the smaller, more remote library branches.) These highly educated employees are, for the most part, ignored in the decision making process for Library issues. Their expertise was seldom sought and often shunned.

F48 Page 36

Three members ofthe Executive Team were aware the Director ofHuman Resources was abusing the credit card system. Her immediate supervisors knew about these abuses. The Director of Human Resources received no reprimands.

Recommendations 16

R1

Training in proper procedures for the conduct of government business must be provided by Isleton for current and future elected officials and City staff. Such training must include specific accounting practices and proper methods of sequestering special purpose funds. DEBT
R1A

Amend the JPA to redefine that position of Chief Executive Officer (CEO). That position should define a person with proven business expertise and credentials to operate a business enterprise the size of the Sacramento Public Library system. This is similar to the way in which hospitals used to be headed by a physician and are now led by a professional in Hospital Administration.
R1B

Amend the position of Deputy Director for Public Services to create a position of Deputy Director, Library Services. Seek a person for this position with specific Library Science skills to oversee topical and program initiatives critical to a successful library program. This person should report to the redefined CEO.
R2

In view of the numerous serious management problems currently afflicting the Library, the Governing Board should seriously consider removing the current Library Director for the following causes: · Fiscal mismanagement • Failure to adequately track and implement financial controls or other management initiatives
R3

The Governing Board should define specific measurable guidelines to operate the Library along established business principles to include: • Criteria for the safeguard and proper use of public funds · Management accountability and reporting systems
R4

The Governing Board should seriously consider having the Director of Human Resources removed for lack of leadership in establishing and implementing personnel policies, repeated abuses of the Library travel and credit card policies, and her dilatory reimbursements of personal expenses.
R5

The Governing Board should create a standing committee of Governing Board members for direct financial oversight of Library operations to ensure proper safeguarding and accounting for the expenditure of public funds.
R6

The Governing Board should create more direct oversight and reporting procedures for the approval of consultant contracts for services at the Library.
R7

Parties to the JPA should amend it to require the Treasurer and the Auditor be separate individuals to remove any possible conflicts of interest.
R8

The Governing Board should publish an annual report which shall include a budget summary, year-end accomplishments, and future plans.
R9

The Governing Board should have Library Authority Counsel as a full-time position, given the volume and complexity of Library operations.
R10

The Governing Board should create its own oversight of Library operations by establishing stronger internal controls.
R11

The Governing Board should require complete and comprehensive policy and procedure manuals for both the Finance Department and for personnel practices.
R12

Fully staff the Finance Department to ensure proper accounting procedures. Include sufficient compensation to attract and retain a Finance Director with the appropriate knowledge, experience, and skills.
R13

Strengthen current credit card policies and travel procedures. Ensure appropriate oversight of projected expenses and tighter controls authorizing expenditures.
R14

Establish standard procedures for all Library branches regarding cash management. Response Requirements Penal Code sections 933 and 933.05 require that specific responses to all findings and recommendations contained in this report be submitted to the Presiding Judge of the Sacramento Superior Court by August 15, 2008 from: The Sacramento Public Library Governing Board SACRAMENTO PUBLIC LIBRARY Attachment 1 JOINT POWER AUTHORITY BOARD MEMBERS & ALTERNATES 2007-2008 (REVISED) Alternate Representing Board Member City of Citrus Jeff Slowey, Councilmember Jeannie Bruins, Councilmember 6237 Fountain Square Drive Heights 6237 Fountain Square Drive Citrus Heights, CA 95621 Citrus Heights, CA 95621 Phone: 916-861-6636 Phone: 916-725-2448 [email protected] [email protected] City of Elk Sophia Scherman, Councilmember Gary Davis, Councilmember 8380 Laguna Palms Way 8380 Laguna Palms Way Grove Elk Grove, CA 95758 Elk Grove, CA 95758 Phone: 916-478-2279 916-478-3201 [email protected] [email protected] Elizabeth Samano, Councilmember Darryl Clare, Councilmember City of City of Galt Isleton/City of City of Isleton Galt PO Box 285 380 Civic Drive (Isleton holds Isleton, CA 95641 Galt, CA 95632 Phone: 916-502-3741 Phone: 209-366-7117 seat/Galt holds [email protected] [email protected] alternate) City of Rancho Linda Budge, Mayor David Sander, Councilmember Cordova VICE CHAIR 2729 Prospect Park Drive 2729 Prospect Park Drive Rancho Cordova, CA 95670 Rancho Cordova, CA 95670 Phone: 916-851-8700 Phone: 916-851-8700 [email protected] [email protected] Raymond L. Tretheway, III Lauren Hammond, Councilmember City of 915 I Street, 5th Floor Councilmember Sacramento 915 I Street, 5th Floor Sacramento, CA 95814 Sacramento, CA 95814 Phone: 916-808-7200 Phone: 916-808-7001 [email protected] [email protected] Sandy Sheedy, Councilmember Lauren Hammond, Councilmember City of 915 I Street, 5th Floor 915 I Street, 5th Floor Sacramento Sacramento, CA 95814 Sacramento, CA 95814 Phone: 916-808-7002 Phone: 916-808-7200 [email protected] [email protected] City of Robbie Waters, Councilmember Lauren Hammond, Councilmember 915 I Street, 5th Floor Sacramento CHAIR 915 I Street, 5th Floor Sacramento, CA 95814 Sacramento, CA 95814 Phone: 916-808-7200 Phone: 916-808-7007 [email protected] [email protected] City of Bonnie Pannell, Councilmember Lauren Hammond, Councilmember 915 I Street, 5th Floor 915 I Street, 5th Floor Sacramento Sacramento, CA 95814 Sacramento, CA 95814 Phone: 916-808-7008 Phone: 916-808-7200 [email protected] [email protected] 2008 SPLAB Members with Alts SACRAMENTO PUBLIC LIBRARY JOINT POWER AUTHORITY BOARD MEMBERS & ALTERNATES 2007-2008 (REVISED) Representing Board Member Alternate City of Kevin McCarty, Councilmember Lauren Hammond, Councilmember 915 I Street, 5th Floor 915 I Street, 5th Floor Sacramento Sacramento, CA 95814 Sacramento, CA 95814 Phone: 916-808-7200 Phone: 916-808-7200 [email protected] [email protected] County of Roger Dickinson, Supervisor Cortez Quinn School Board Trustee Sacramento 700 H Street, Room 2450 Sacramento, CA 95814-1280 Twin Rivers Unified School District Phone: 916-874-5485 700 H Street, Room 2450 [email protected] Sacramento, CA 95814-1280 Phone: 916-874-5485 [email protected] County of Jimmie Yee, Supervisor Linda Kimura, Director Sacramento 700 H Street, Room 2450 Arcade Creek Rec & Park District Sacramento, CA 95814-1280 4982 Pasadena Avenue Phone: 916-874-5481 Sacramento, CA 95841 Phone: 916-485-8442 [email protected] Cell: 916-214-8442 [email protected] County of Susan Peters, Supervisor Larry Masuoka School Board Trustee Sacramento 700 H Street, Room 2450 Sacramento, CA 95814-1280 San Juan Unified School District Phone: 916-874-5471 4425 Sierra View Way Fair Oaks, CA 95628 [email protected] Phone: 916-966-9900 (office) [email protected] County of Roberta MacGlashan, Supervisor Donald Wilson Sacramento 700 H Street, Room 2450 School Board Trustee Sacramento, CA 95814-1280 Center Unified School District Phone: 916-874-5491 3957 Weybridge Way Antelope, CA 95843 Phone: 916-899-8144 (cell) [email protected] County of Don Nottoli, Supervisor NO ALTERNATE 700 H Street, Room 2450 Sacramento Sacramento, CA 95814-1280 Phone: 916-874-5465 [email protected] N/A Sacramento Anne Marie Gold Public Library Library Director SECRETARY TO THE BOARD 828 I Street Sacramento, CA 95814 Phone: 916-264-2830 [email protected] 2008 SPLAB Members with Alts Attachment 2 QUESTIONS FOR MEMBERS OF THE LIBRARY GOVERNING BOARD 1. How long have you served on the Governing Board? 2. Are you a member of any standing committees on the Board? If so, which ones and how long have you served on it/them? 3. Does any standing committee of which you are a member submit a report to the Governing Board? 4. When you were appointed to the Library Governing Board did you receive any written documents or instructions outlining your duties and responsibilities? 5. Have you ever appointed an alternate to the Governing Board to represent you at its meetings? If so, who is that person by name? 6. As a member of the Governing Board have you ever participated in the appointment of a Treasurer for the Library Authority? If so, when and who is the person you appointed? 7. As a member of the Governing Board have you ever participated in the appointment of the Authority Auditor? If so, who is that person you appointed? 8. As a member of the Governing Board have you ever served as member of the Finance Advisory Committee? • Does any staff member or any alternate serve for you on the Finance Advisory Committee? If so, who is that person by name? 9. As a member of the Governing Board have you ever seen an independent annual audit for the Authority finances during your tenure on the Governing Board? If so, for what years? 10. Knowing that the Governing Board shall adopt a budget for the Authority of the commencement of each fiscal year (defined as July 1 to June 30)? To your knowledge has the Governing Board done that? Did you vote on such an adoption for any fiscal year in which you were a member • of the Governing Board? If so, for which years? • 11. Do you know if the Finance Advisory Committee has fulfilled its duties pursuant to para 11 e. of the 2007 Joint Powers Agreement? 12. Were you present at the meeting of the Governing Board when a petition of no confidence was submitted by several staff and supporters of the Library Authority? If not, did you have an alternate attending in your place at that meeting? Isleton Small City - Big Challenges Originally issued February 15, 2008 Issue Can Isleton correct its long-standing governance, management, and fiscal problems? Reason for the Investigation Upon receiving a number of complaints from several residents of Isleton – including city employees - the 2007-2008 Grand Jury launched an in-depth investigation into the workings of Isleton's city government. This report documents the facts and findings of the Grand Jury's investigation. This Grand Jury urges the appropriate authorities to take the corrective actions recommended in this report. Method of Investigation The Grand Jury interviewed current and past City Council members (including those who served as mayor), city managers, city attorneys, city department heads, an officer and employees of the Bank of Rio Vista, developers, and a number of other present and past city employees and volunteers. Grand Jury members attended City Council meetings and reviewed minutes of prior City Council meetings. In the conduct of routine business a municipality leaves an extensive paper trail. Budgets, invoices, accounts and checkbooks, policy and procedure manuals, minutes of meetings, audits, mail, appointment calendars, media reports, grant applications, and reports on activities they support, are a partial list. The Grand Jury reviewed numerous documents provided by the City of Isleton, including, with consent of the City Council, documents from its several city attorneys, as well as from organizations that interact with the city. The information gathered from all these efforts will be discussed at relevant places and is intrinsic to this report. Background and Facts The City of Isleton is located in the southwest corner of Sacramento County, on the east bank of the Sacramento River, at the gateway to the Sacramento River Delta. Founded in 1874 and incorporated in 1923 as a "general law" city, Isleton reached a population of approximately 2000 during the 1930s1. As of January 1, 2007 its population was 815, according to the Demographic Unit of the California State Department of Finance. Isleton is the smallest incorporated city in the County. Isleton is located in an idyllic setting and possesses a unique historic character. Together with Locke, Walnut Grove, Ryde, Rio Vista, as well as Grand and Brannan Islands, the area is a popular weekend destination. Isleton's Crawdad Festival, held each June, draws thousands of visitors. A number of boats on, and houses near the Sacramento River, add to the relaxed Delta atmosphere. In recent years there has been increased interest in real estate development. Downtown Isleton Running a general law city government is a complex task in California. Regardless of size, the legal and fiscal requirements are unbending and identical. Isleton's challenges are compounded by its size and fiscal limitations. The City's inability to utilize expertise, and its long history of inaction, as exemplified by failing to respond to prior Grand Jury investigations and recommendations over the last 16 years, have left Isleton in a state of perpetual crisis. Past Grand Jury Investigations and Reports In recent years a number of issues have arisen regarding management of the City of Isleton. Most of these issues, even though addressed by previous Grand Juries, have not been resolved. Relevant portions of past Grand Jury reports and the city's inability to comply are cited below. Absence of Policies and Procedures 1990-1991 The 1990-1991 Grand Jury examined a complaint about the lack of policies and procedures in the Police Department. The Grand Jury found the lack was endemic throughout city government and recommended: "The Isleton City Council should ensure that personnel policies and procedures are in place in city government and are being followed." (p. 10.) In September 1991, a manual specific to the Police Department had: "...been submitted to the City Council and will be adopted in October ..." (response letter to the Grand Jury from the Police Department, September 20, 1991.) 1 A "general law city" is bound by the state's general law regarding municipalities. 1991-1992 Absence of Policies and Procedures Manual The 1991-1992 Grand Jury's follow-up report noted: "While the ... process was underway, other problems in the City of Isleton surfaced ... Some of these problems were exacerbated by the absence of written policies and procedures." (pp. 18-19.) On April 8, 1992, the City Council passed Resolution 1202 authorizing a contract to prepare such a manual. No further communication to the Grand Jury regarding this matter was received. 1994-1995 Absence of Policies and Procedures This Grand Jury found, among other things: "Only employee vacation and sick leave policies have been adopted following previous grand jury recommendations. There is no written policy regarding administrative procedures to be used consistently in the City of Isleton. For example, in December 1994, the Council found it necessary to borrow money from its Redevelopment Agency in order to pay operating costs for that month. There is no written policy guiding inter-fund borrowing." (p. 16.) The Grand Jury recommended: "The City of Isleton seek assistance from the California League of Cities in drafting appropriate policies guiding municipal operations." (p. 17.) On September 15, 1995, the City of Isleton responded: "It is conceded that the City lacks written policies guiding inter-fund borrowing..." and "The City Council agrees that such policies are desirable and will comply with this recommendation." No mention was made of seeking assistance from any other body. 1997-1998 Absence of Policies and Procedures Once again a lack of policies and procedures was found. The Grand Jury recommended: "The City immediately seek assistance of the California League of Cities to develop personnel policies and procedures for each entity of the City." (p. 4.) The Grand Jury also found that no directives existed which would ensure that POST (Peace Officers Standards and Training) standards be instituted, including the necessity of providing a manual to each officer. POST correspondence dated February 1997 stated: "...to allow this condition to remain places unnecessary risk on the Department and the City. This kind of risk can lead to civil and criminal penalties." (p. 4.) On September 28, 1998, the city responded: "The City will have a Personnel Policy and Procedure Manual in place by November 10, 1998 that will cover all employees." 4 POST certifies police officers and sets standards for police departments. On February 18, 1999, the City Attorney advised he would have the manual ready

Observations 72

OB1 Page 77

There seems to be high morale and a strong sense ofduty. Firefighters are proud ofthe work they do and oftheir importance to the community. Metro Fire personnel, on average, earn 23% more than Sacramento Fire personnel. Metro Fire has 750 authorized positions. Many senior staff are close to retirement. 65
OB2 Page 78

Community governance, input, and leadership are provided by a locally elected nine member Board of Directors. This Board meets twice a month.
OB3 Page 78

Fire services cost approximately $170 million for the current fiscal year, up $20 million from the previous year. Eighty-five percent of expenditures are for salaries and benefits.
OB4 Page 78

Metro Fire cannot communicate directly by radio with local police, the Sheriff's Department, and/or the Sacramento Fire Department. It must use a separate police channel in order to do so. There are plans to install a more technically sophisticated communication system.
OB5 Page 78

Metro Fire is embarking on a long range plan to replace older firehouses with larger new ones. Sacramento Fire Department Tour
OB6 Page 79

Workers' Compensation costs have gone down in recent years due to the emphasis on health and fitness within the Department. The use of Standard Operation Guidelines ensures that firefighters know their roles and adhere to their training.
OB7 Page 79

The personnel interviewed both at the station and at the administrative offices exhibited a great dedication to their work, to the safety ofthe public, and to the well-being of their fellow officers. They are aware of salary and benefit differences, which can be 20% or more in nearby districts, but the firefighters expressed loyalty and satisfaction with their working conditions.
OB8 Page 79

Currently, the Sacramento Fire Department and the Sacramento Police Department use different radio frequencies and are unable to communicate directly. In addition, the Fire Department radios are not waterproof. There appears to be a need for a more cohesive communication system among all law enforcement agencies and fire districts within the county. 67 CRIMINAL AND JUVENILE JUSTICE COMMITTEE The Criminal and Juvenile Justice Committee (C&JJ) reviews and investigates complaints regarding criminal justice agencies within Sacramento County. C&JJ also fulfills the requirement of Penal Code Section 919(b) which states: "The Grand Jury shall inquire into the condition and management of the public prisons within the county." The Grand Jury meets this requirement by touring all the correctional facilities in Sacramento County. Folsom State Prison Tour
OB9 Page 81

Some programs cover job skills in high demand, providing inmates with opportunities to succeed after release, as well as demonstrating to them the value ofeducation.
OB10 Page 81

The Grand Jury observed a high level of dedication among the teaching staff who work in such an atypical environment.
OB11 Page 81

Vocational, behavioral, and educational programs are under scrutiny due to financial and facility limitations. California State Prison Sacramento Tour
OB12 Page 82

Using the gymnasium for housing is unhealthy, a security risk, and results in a loss of recreation space.
OB13 Page 82

Educational programs are limited by space. In order to get more classroom space something else must be restricted.
OB14 Page 82

The large number of life sentences and life without possibility ofparole prisoners housed at CSP makes it difficult to justify increases in vocational programs. Yet, a job helps to keep inmates out oftrouble and occupied while imprisoned. I Outpatient refers to inmates who are receiving medical care but are not confined to the prison hospital. 70 Sacramento County Boys Ranch Tour
OB15 Page 84

In October, 2007, donnitories were rundown and badly in need of paint and repair. By March, 2008, donnitory remodeling was nearly complete and appearance was greatly improved.
OB16 Page 84

The Sacramento County Boys Ranch had no security cameras during the Grand Jury's first visit. Six months later, a few security cameras had been installed, but were limited to the entry gate and its surrounding area. The Grand Jury strongly believes that installation of additional surveillance cameras throughout the facility would improve safety of staff and the wards. Sacramento County Main Jail Tour
OB17 Page 86

Medical care at the Main Jail has been improving.
OB18 Page 86

Continued improvement is being pursued by those responsible for inmate medical care.
OB19 Page 86

Non-English speaking inmates are at a disadvantage understanding written and verbal instructions. Learning basic English skills would be a positive step toward understanding appropriate conduct in a detention facility. These skills would also aid in the ability to assimilate into society.
OB20 Page 86

At the time of the Grand Jury tour (August, 2007) the "Inmate Rule Book", printed in English and Spanish, was being revised and was not being used. Sacramento County Sheriff's Work Release Division Tour
OB21 Page 90

Occasionally work assignments take priority over classroom scheduling.
OB22 Page 90

RCCC funding is currently insufficient for additional classrooms to support basic education and re-entry programs.
OB23 Page 90

Upon release from custody, job prospects are bleak for those lacking rudimentary English language skills. Affected inmates would benefit from a continuous 12-month program with priority on full-time immersion in ESL.
OB24 Page 90

Hire Hope successfully integrated re-entry services by offering job service activities, job placement services, and community resource referrals. Eighty-three percent of Hire Hope candidates have reported taxable income one year after release, which is remarkable.
OB25 Page 90

Hire Hope has eamed considerable support from the RCCC population, yet there remains a much larger inmate population being released ill prepared to return to society. This is detrimental to the community but does not diminish the success ofthe Hire Hope model.
OB26 Page 90

The Hire Hope model is a successful program which would benefit from further support and publicity. Warren E. Thornton Youth Center Tour
OB27 Page 91

The Youth Center is very well maintained. It is clean and appears well organized.
OB28 Page 91

Residents are kept busy with a schedule that allows for many rewards for work well done.
OB29 Page 91

Staff appreciates the importance of giving praise where praise is due and have monthly graduation and award ceremonies.
OB30 Page 91

The fact that up to 66% do not return attests to the awards approach. 79 Sacramento County Juvenile Hall Tour
OB31 Page 92

On September 9, 2007, the resident population was 289 (234 boys and 55 girls), 11 % over capacity. o In addition, 38 juvenile offenders were housed in Yolo County at a cost to Sacramento County of $200 per person per day. o Sixty-six percent of the population was awaiting Juvenile Court appearances, while 17% was awaiting Adult Court appearances. The most serious offenses included 13 murder charges, 13 assault with a deadly weapon violations, and 15 sexual assaults. o The Probation Department was monitoring 62 youths under home supervision.
OB32 Page 92

All ofthe residents are screened at intake for alcohol and drug dependency and are instructed in health education.
OB33 Page 92

Health and dental care, including prenatal care, are provided by three full-time physicians and a staff of 50 permanently assigned medical personnel.
OB34 Page 92

Mental health services are provided by one psychiatrist, 14 clinicians and six recreational therapists. A mental health clinician screens all residents within 24 hours ofintake.
OB35 Page 92

Emergency care, urgent care, and crisis intervention are provided. 80
OB36 Page 93

Two closely monitored "Quiet Rooms" provide full views ofresidents who cannot control their behavior. Suicide gestures occur on a daily basis and are always taken very seriously. There has never been a successful suicide.
OB37 Page 93

The facility staff uses behavior modification therapy. Every resident starts the day with a set number of points. Inappropriate behavior or infraction ofthe rules results in subtraction of points, and at a certain level privileges are taken away.
OB38 Page 93

El Centro Junior and Senior High School provides educational services to the residents. Classes in math, reading, writing, physical education, and computer lab are conducted five days a week throughout the year.
OB39 Page 93

To accommodate the residents, whose average stay is four weeks, classes are taught in short modules. Class size is 15 students using nine classrooms, four of which are high security units. Additional classrooms are needed. Each class is staffed by one teacher and one teacher's aide.
OB40 Page 93

Attendance in class is required by the second day following intake assessment. Emphasis is on improving English and reading skills by one grade level in 30 days and by two grade levels for those incarcerated 90 days.
OB41 Page 93

A unique coeducational unit deserves mention. During daytime hours, young male offenders (eight to ten years ofage) share a unit with older girls (14 to 18 years ofage). It appears the young boys behave better when mentored by teen girls, while the girls learn nurturing behaviors. The girls and boys have separate bedrooms and bathrooms. Rules prohibit contact after "lights out."
OB42 Page 93

Group dynamics often arise which can make the dormitories difficult to manage. By 2010, Juvenile Hall is expected to fully transition from dormitories to single or double occupancy rooms. 81 Sacramento Crime Laboratory Tour
OB43 Page 94

The expected growth ofthe County's population is highly predictive ofthe need for more facility space. Because ofthe increasing volume ofDNA analyses, specific attention should be paid to the need for a stand-alone building for a DNA laboratory. A separate facility to house new, evolving technologies is also likely to be needed in the near future. 82 EDUCATION COMMITTEE The role ofthe Education Committee is to monitor the activities ofschool districts within Sacramento County, including the Los Rios Community College District. The committee examines citizen complaints alleging school district irregularities and initiates investigations into various education issues. During the current term, as part of its role to monitor school districts, members ofthe 2007-2008 Grand Jury met with the County Superintendent of Schools and discussed a variety of issues which included the adequacy ofthe vocational programs provided in County high schools. High School Tours
OB44 Page 98

All three schools adhere to the "No Child Left Behind" mandate.
OB45 Page 98

The philosophies of Valley and San Juan High Schools emphasize vocational preparation and the importance of students being able to earn a living while attending college.
OB46 Page 98

Valley High School uses off-site facilities for its job training programs due to a lack of available classrooms on campus.
OB47 Page 98

Staffmembers at Valley and San Juan High Schools appear enthusiastic about the future and are excited about the plans to expand the vocational programs at their schools.
OB48 Page 98

The API scores at all three of the high schools visited were below the acceptable 700 level. 86 ENVIRONMENT, PUBLIC WORKS AND SPECIAL DISTRICTS COMMITTEE The Environment, Public Works and Special Districts Committee oversees city and government services in addition to all special government districts in Sacramento County. These districts include all water, sewer, and garbage districts, as well local and regional park and recreation districts. State districts, such as the local Air Quality Management Districts, are not within the jurisdiction of this Committee of the Grand Jury. This committee reviews and investigates all accepted complaints on government activities as well as overseeing complaints relating to the subject matter ofthese operations, such as the environmental impacts of water, sewer, and other special use district operations. Rancho Seco Nuclear Power Plant Tour
OB49 Page 100

The Rancho Seco facility is not operating and is fully decommissioned. SMUD has substantially completed the disassembly process and is now involved in numerous small clean-up activities.
OB50 Page 100

Secure dry storage for the spent fuel rods and other contaminated metal structures is sufficient to meet the needs ofstorage ofthis material, absent a long-term Federal repository elsewhere.
OB51 Page 100

The spent fuel rods are safely encased in protective containers which, when a long-term site is approved and opened, can be safely moved via rail.
OB52 Page 100

On-site leadership is competent, professional, and well versed in all aspects of the operation. Management's experience level reaches back to the days when the plant was operational. Corporate knowledge is cited as an international example of"how to do it right". Rancho Seco often hosts international visitors who come to view how the closure, decontamination, and disassembly has progressed. As other countries begin to face the prospect of managing spent fuel assemblies over the long term, Rancho Seco serves as a model.
OB53 Page 100

SMUD's budget provides for long-term dry storage, if Federal funds are not forthcoming. These provisions will not adversely impact ongoing operations and maintenance activities for other SMUD projects. 88 Sacramento International Airport Tour
OB54 Page 101

The overall mission of the airports within the county is to operate in a safe, convenient, and economical manner. The Grand Jury was impressed with the professionalism, competence, and commitment of the leadership at Sacramento International Airport. The budget and fiscal picture showed a commitment to fiscally sound operations now and in the future.
OB55 Page 101

In discussing cost containment efforts, the administrative staff offered no compelling reasons for not privatizing some functions outside the secure areas ofthe airport, such as lawn maintenance, etc. It was stated that although contractors do exist throughout the airport, even in secure areas, county rules and policies prohibit the use ofcontractors when county employees are available to do a specific task.
OB56 Page 101

There are plans for major development at Sacramento International Airport and these plans include specific proposals for financing. Discussions are ongoing regarding public acceptance ofcost and the impact on surrounding areas. A specific commitment to local sales of financial instruments (bonds) should be carefully considered when financing airport expansion, rather than giving all financing opportunities to institutional investors with few local ties. Local financing could reap rewards well beyond the financing itself, achieving community "buy-in" to airport activities. The recent first bond sale included one brokerage house with a commitment to local sales of these investment instruments. It is hoped the second issuance now scheduled for December, 2008, (as well as future offerings) will also include one or more brokerage houses committed to local sales. 89 HEALTH AND HUMAN SERVICES COMMITTEE The role ofthe Health and Human Services Committee (H&HS) is to investigate and gather information on policies and procedures ofhealth and human service agencies serving the residents of this county. The Sacramento County Department of Health and Human Services includes the Division ofPublic Health, Senior and Adult Services, Alcohol and Drug Services, Child Protective Services, Mental Health Services, and Primary Health Services. Sacramento County Department of Health and Human Services Senior and Adult Services In-Home Supportive Services Program Tour
OB57 Page 103

Providing services to keep people at home is more desirable than institutionalization. As the population ages, the number ofpeople requiring IHSS will increase, with those over 85 years ofage being the fastest growing segment ofclients. One policy expert stated, "We are so unprepared for the aging ofbaby boomers that it's frightening."
OB58 Page 103

IHSS caseworkers have large caseloads, preventing them from devoting sufficient time to individual cases which may require more attention. Counties are funded for eight hours ofcase management per client, per year. It does not seem likely that in the near term there will be additional funds to hire more caseworkers. The Grand Jury takes note that the issues and dilemmas here presented are not unique to Sacramento County. Increased funding is the responsibility offederal, state, and local governments.
OB59 Page 103

Currently, there is uncertainty as to the size ofthe population that cannot easily or continuously be a successful "employer" ofa home caregiver. Efforts should be made to identify the size ofthis population.
OB60 Page 103

There needs to be continuing effort at the state and local level to reconcile the competing interests ofthe various groups served by IHSS, so that the less mentally competent can be served properly by this program. 91 Sacramento County Public Health Laboratory Tour
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The pay scale for microbiologists in Sacramento County lags behind other counties. Recruiting and retention ofqualified professionals is difficult, due to a shortage of public health microbiologists in the state. 92 Sacramento County Department of Health and Human Services Primary Health Care Clinic and Pharmacy Tour Batkground Sacramento County's Department ofHealth and Human Services is a core provider ofservices to, and protector of, county residents. It is a large agency with many divisions. The Grand Jury visited two divisions - the clinic and the pharmacy - in March, 2008. These two services occupy one modern building on Broadway. Each has several satellite locations in other parts ofthe county. Two that are reasonably near the main facility are due to relocate to the main building within the year. The Grand Jury briefly toured the waiting rooms and pharmacy and met with the director ofeach service. Approximately 150,000 visits per year take place at the several clinic locations. The patient load does not include children, and the waiting areas are not equipped for them. The clinic and the pharmacy serve an indigent population, including General Assistance recipients, undocumented residents, and persons who lose their Medi-Cal coverage after they are arrested and booked. Interpreters for 26 languages are available in the clinic, with phone access for other languages. The pharmacy can draw upon interpreter services as needed. The clinic's annual budget approaches $36 million with the county providing over $21 million of the total. Federal, state, and other funding sources constitute the balance. th The clinic is a much sought after 4 Year Residency placement at the University ofCalifomia, Davis, Medical School. Instituting this program is one ofthe ways the clinic has tried to keep pace with increasing usage of its services without a corresponding increase in budget. In the face ofcuts over the last few years the clinic has reduced administrative positions in order to retain medical personnel. Utilizing appointments has significantly reduced waiting times to see doctors or nurses. It has the added benefit ofhaving the clinic look and feel more like a doctor's office. In the waiting room set up for those with appointments, waiting time is about half an hour. For those without appointments, there is a triage nurse. Waiting time can be up to 6 hours, based on the urgency of need. Contractual agreements with several hospitals exist to provide care that is beyond the clinic's level ofservice. The clinic has started setting up voluntary group meetings for persons with certain specified diseases (diabetes, asthma, hepatitis C, hypertension) and soon plans to start a group for those with congestive heart failure. On-going treatment information is well handled in groups facilitated by a medical professional. This system has been quite successful and is reported to be popular with participants, who share information and experiences. Physical examinations are still performed by physicians. This program has the additional benefit ofremoving patients from urgent care. The clinic has received a grant to increase this service. 93 The clinic does not yet have an automated medical records system, but there are plans for one in the future. The phannacy, though a separate organization, operates in close coordination with the clinic. The 2006-2007 Grand Jury reported that the pharmacy's pay scale made it non-competitive with similar private or hospital-based services. The 10% pay raise given pharmacists within the past year, in addition to stable hours (no evenings or weekends), has reduced vacancies from five to two. There are currently 16 full- and part-time phannacists employed in the pharmacy. The phannacy fills 1,500 to 1,700 prescriptions daily, or well over 300,000 annually. This is a daily increase of 300 to 400, or an annual increase of 70,000 from a year ago. An even greater increase is expected if the current economic downturn continues. Waiting time for a prescription varies between a few hours and a few days. Concern was expressed by the director that the average wait has gone from two to four hours; he and his staff are working to reduce this. Currently, patients coming from the clinic bring hand-written prescriptions with them due to the clinic's lack of a computerized medical records system. Such a system would provide automatic transfer of legible prescriptions. The phannacy serves as the central pharmacy for the County's correctional institutions. Phannaceutical services are being developed by the Sheriffs Department and, when operational, will relieve the County pharmacy ofthis responsibility. It also has medication responsibility for County residents who are housed in out-of-county mental health institutions. Last year's Grand Jury noted that the pharmacy's computer system was not fully operational. There is now a "call-in" system enabling patients to renew their prescriptions by telephone and receive a "time-certain" to pick up their medications. This is efficient and of benefit to phannacists as well as patients. Medications not picked up within a week are manually re-stocked. This system involves looking through thousands of prescriptions, but helps reduce medication costs.
OB62 Page 106

The Grand Jury was impressed with the strong, service-centered, and cooperative leadership of the clinic and pharmacy. Asked about possible cuts in their budgets, both directors agreed that administrative costs would be reduced and innovative ways of maintaining services attempted before cuts in service to their mostly indigent patients would take place. The maintenance ofthe clinic and pharmacy services helps prevent more expensive hospital visits.
OB63 Page 106

The Clinic Director noted that the demand for services increases about 10% a year. In times of recession, General Assistance can increase up to 30%. It could be that the clinic is facing a 40% to 45% increase in demand for services at a time when the budget for the County clinic system may be cut. A loss ofmedical services would adversely impact the area's emergency rooms and the health ofmany residents ofthe County. 94 Children's Receiving Home Tour
OB64 Page 108

The facility is open, clean, comforting and welcoming. Attractive cottages provide housing which avoids the appearance of institutional living. Children were participating in play, school, and volleyball in the gymnasium during the visit of the Grand Jury. This is not a sad place.
OB65 Page 108

Currently one doctor from the University of California (UCD) at Davis Medical Center is on duty one day a week. This is not enough. Additional medical and mental health specialists are needed. The Grand Jury believes that the CRH offers an exceptional learning opportunity for the UCD Medical School to provide real life experience to those who have chosen medicine as a profession, while fulfilling a dire need at the Children's Receiving Home.
OB66 Page 108

Volunteers playa major and critical role in making the children feel welcome while adjusting to the new environment. A number oforganizations support the Children's Receiving Home, but there is ample opportunity for more volunteers.
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The Children's Receiving Home is now engaged in an effort to build its endowment. A larger endowment would enable the facility to continue to maintain the wide range of services available to the children in its charge. Sacramento Children's Home Tour
OB68 Page 109

The Sacramento Children's Home works to treat families and children with "wrap around" programs that deliver a full range of services. These are delivered at home or in critically located centers. Beds in residential facilities, especially "orphanages", are being replaced by foster care locations. Out-patient care is preferred and funding is following these favored modalities. However, there is a group ofchildren, with severe emotional and behavioral problems, for whom residential care and treatment is the last and only - alternative. Institutions which provide this kind ofcare are necessary in the continuum of care for troubled and abandoned children.
OB69 Page 109

Agroup of"graduates"provides evidence ofsuccess bytheircontinued participation in SCH programs. The many volunteers involved in SCH programs demonstrate community support for this institution. For example, the Casa Garden restaurant, on the 97 grounds of SCH, is operated primarily by volunteers. It has been in existence for decades and is a testament to the commitment ofvolunteers to SCH programs.
OB70 Page 110

Beyond a loving and supportive home and therapeutic environment, education is a central component of a successful future for children. Educational opportunities for SCH children are limited. Some non-public schools accept these children. For example, two SCH residents are bussed daily to schools in EI Dorado County. There is a need within the public education system for alternative education programs with small classes geared to children at varying stages ofdevelopment.
OB71 Page 110

SCH does not have an endowment. It receives public funding, income from some commercial property located on its campus, and donations. Establishing an endowment is a priority for its C.E.O. and Board of Directors. 98 Sacramento County Grand Jury Comments and Updates on Responses to the 2007-2008 Isleton Report and to Selected 2006-2007 Grand Jury Reports Isleton Small City - Big Challenges Issue Can Isleton correct its long-standing governance, management, and fiscal problems? Reason for Investigation Upon receiving a number of complaints from several residents of Isleton - including city employees - the 2007-2008 Grand Jury launched an in-depth investigation into the workings of Isleton's city government. This report documents the facts and findings ofthe Grand Jury's investigation. Response Requirements As the Grand Jury stated in its cover letter to the Report, "This report is released now so the appropriate authorities and responsible parties will respond within 90 days as required by law and before this Jury's term of service ends on June 30, 2008. Only in that way will the citizens and leadership in Isleton understand that our recommendations are not hollow or unilateral since this Grand Jury will have the ability to comment upon the responses in our final report on June 30,2008." Responses were required from both the Sacramento County Board of Supervisors (Findings and
OB72 Page 87

The 2006-2007 Grand Jury Report included an Investigative Report, which resulted in two Findings and Recommendations. See comments elsewhere in this report on the Responses to those Findings and Recommendations (p.I 08). 75 Sacramento County Sheriff's Department Rio Cosumnes Correctional Center Tour

No Responses Found 1

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

Isleton City

* This report's PDF did not contain easily extractable text and required Optical Character Recognition (OCR) for analysis. There may be minor errors in the extracted findings and recommendations due to OCR limitations with scanned documents.