Santa Cruz County Civil Grand Jury Pajaro River Mouth in Watsonville the Reports Honoring Commitments to the Public Our

Conclusions 12

• CL1 Page 45
  Single point of leadership
• CL2 Page 45
  Integrated planning and collaboration
• CL3 Page 45
  Coordinated development
• CL4 Page 45
  Published goals and governance
• CL5 Page 45
  Straightforward public communications Multiple Water Multiple Water Diversified Storage Transport and Sources Uses ● Surface reservoirs Redirection
• CL6 Page 45
  Rainwater to aquifer ● Customers ● Sustainable aquifers ● Interdistrict water
• CL7 Page 45
  Rainwater to ● Reservoir refill ● Aquifer recovery sharing surface flow ● Active and passive beyond ● Passive and active
• CL8 Page 45
  Surface flow to aquifer recharge sustainability aquifer storage and reservoir and ● Recycled recovery aquifer recharge wastewater ● Recycled
• CL9 Page 45
  Recycled ● Counter saltwater wastewater wastewater intrusion transport Figure 9. A Unified Approach to Achieving Drought Resilience (Source: Santa Cruz County Grand Jury) Consistent access to water through drought resilience supports County residents and the economy. The combination of surface and groundwater storage, wastewater recycling, and pipelines will deliver the drought resilience that the County requires to thrive and prosper. Now is the time for agencies to work together to deliver drought resilience to residents.
• CL10 Page 79
  A ballot measure represents a promise to the voters. The County Government did not take the care it should have in crafting Measure G. County Government relied on a tax measure consultant to draft the ballot question and this language was accepted with minimal changes. The result was the inclusion of the accountability provisions “annual audits,” and “independent citizens oversight” that voters found misleading. Even County staff conceded in Grand Jury interviews that they could see how voters could have been confused by what those terms meant in the context of Measure G. The County staff is clear about what it believes these provisions of Measure G called for, but it did not consider what the wording might have meant to voters. If County Government continues to ignore how voters may interpret tax measures, voters may lose confidence and trust in the County. County staff proposed Measure G for the legitimate purpose of addressing the County’s structural deficit and an extensive list of ongoing critical needs and essential services. The need for these services will remain strong. The Grand Jury understands and values the important leadership role the County should play in addressing critical issues such as homelessness, fire prevention, and drought resilience. This report is written in support of the County and with the intention of highlighting the critical need for County services, and the intelligence of County voters in being able to recognize the need and act accordingly. That said, the County Government should write future ballot questions and the accompanying voter information carefully so that residents know exactly what they are voting for. Words Matter—Did Measure G Mislead Voters? published June 20, 2022 Page 17 of 30 74 Santa Cruz County Civil Grand Jury
• CL11 Page 104
  The Grand Jury acknowledges that the Live Oak Community Center is ideally located to serve the Live Oak community. The resources that the Annex will offer seniors, adults, children, and teens will fulfill the promise of the former Redevelopment Agency in creating the Live Oak Community Center by offering space and resources for after-school study and adult education. That being said, the Annex has little in common with the SCPL’s ten existing library branches. The Annex is also likely to become a concern for Santa Cruz County Parks staff that will soon have a new responsibility: keeping the learning spaces, internet, and computer resources in the Annex operational and available for the people who need them. Similarly, SCPL now has a new fiscal responsibility to pay for an eleventh “library” branch. How a Community Center Became a “Library” published June 22, 2022 Page 12 of 25 2021–2022 Consolidated Final Report 99 The Board of Supervisors’ use of Measure S funds for the Annex contradicts one of the conclusions of the Master Plan—that all patrons use all libraries—and focuses only on the neighborhood branch and voters. Could this $5.75 million have been used elsewhere in the system for improvement of an already existing library branch? Probably so, but we may never know. The SCPL could have offered more transparency on its website and in its voting materials as to how the Measure S $67 million total was estimated and how it would be spent among the library branches. The SCPL’s lack of transparency could mean that the next call for a special tax may be rejected for lack of trust. This would be an unfortunate outcome given the unique and special role that libraries, parks, and community centers provide. These public facilities improve our quality of life, and if left to compete for general revenue contributions, they may lose again.
• CL12 Page 139
  The 2020 CZU Lightning Complex Fire changed our understanding of wildfire risk for Santa Cruz County. Devastating wildfires can happen, and, with climate change, will happen again. The Grand Jury’s investigation sought to understand the vegetation- reduction problem, and to quantify its magnitude. We found vegetation reduction is the biggest challenge to achieving adequate fire resilience, and that dealing with it will take both resources and high prioritization from the County. The bulk of vegetation reduction to enable safe movement is the responsibility of the County, local fire protection districts, CAL FIRE, or a utility company such as Pacific Gas and Electric. Within the Wildland Urban Interface, home-hardening—together with the creation and maintenance of defensible space around a property—is normally the responsibility of the homeowner. Through the Resource Conservation District, the Office of Response, Recovery & Resilience, Firewise communities, Fire Safe Councils, and CAL FIRE, a good deal of information and support for home-hardening and defensive space creation is available. Our review of the many County organizations addressing wildfire protection did not find any published plans describing the prioritization process for vegetation-reduction projects. The large number of agencies tasked with fire protection complicates the situation, although we did find clusters of collaboration among the agencies. We investigated the grants process and found that it is unwieldy and complex, and that grants may be awarded to projects that do not have the highest priority for wildfire mitigation. However, the County is almost entirely dependent on grants. Due to effective work by local agencies, the County is receiving much of what it needs to complete sufficient vegetation-reduction projects to eventually provide wildfire resilience. We looked at the County Fire Department, its organization, budget, contract with CAL FIRE, and its reliance on volunteer firefighters. None of these aspects are ideal, and, taken together, are suboptimal for delivering adequate fire protection to rural communities in the Wildland Urban Interface. Additional funds would be of benefit, but the Grand Jury recognizes that the County’s overall budget challenges mean this is not likely to happen without significant effort. The budget limitations also mean the reliance on volunteer firefighters will continue. County Fire would benefit from increased visibility and priority within the County government structure, and should report directly to the Board of Supervisors. County Fire should be doing much more to inform residents of their wildfire risk, and what the County is doing to mitigate it. The Grand Jury has issued a number of investigative reports on fire protection over the past few years. A recurrent theme of these reports is the lack of attention that Reducing Community Risks from Wildfire published June 24, 2022 Page 21 of 33 134 Santa Cruz County Civil Grand Jury community protection and safe movement receives from the County government. This Grand Jury echoes that observation.

Commendations 72

• CM1 Page 83
  “Santa Cruz County, California, Measure G, Sales Tax (November 2018).” Accessed May 21, 2022. https://ballotpedia.org/Santa_Cruz_County,_California,_Measure_G,_Sales_Tax_ (November_2018)
• CM2 Page 83
  Confidential Grand Jury interviews. 3. “Structural Surplus/Deficit.” Budget Counsel Reference. Accessed May 21, 2022. https://budgetcounsel.com/cyclopedia-budgetica/cb-structural-surplusdeficit/
• CM3 Page 83
  Santa Cruz County Board of Supervisors. February 15, 2022. “General Fund Mid-Year Budget Report.” Accessed May 21, 2022. http://santacruzcountyca.iqm2.com/citizens/FileOpen.aspx?Type=1&ID=1533&Inl ine=True#page=22
• CM4 Page 83
  Mac Taylor. March 20, 2014. “A Look at Voter-Approval Requirements for Local Taxes,” p. 4. Accessed May 21, 2022. https://lao.ca.gov/reports/2014/finance/local-taxes/voter-approval-032014.pdf#pa ge=4
• CM5 Page 83
  California Tax Foundation. September 1, 2021. “Local Tax Trends in California,” p. 2. Accessed May 21, 2022. https://www.caltax.org/foundation/reports/2021-Local-Tax-Trends-in-CA.pdf#page =6
• CM6 Page 83
  Julia Kagan. May 31, 2020. “Sales Tax Definition.” Accessed May 21, 2022. https://www.investopedia.com/terms/s/salestax.asp
• CM7 Page 83
  California Tax Foundation. September 1, 2021. “Local Tax Trends in California,” p. 36. Accessed March 23, 2022. https://www.caltax.org/foundation/reports/2021-Local-Tax-Trends-in-CA.pdf#page =36 9. “Definition of Ad Valorem Property Tax.” Accessed May 19, 2022. https://www.investopedia.com/terms/a/advaloremtax.asp 10. “Definition of Parcel Property Tax.” Accessed May 19, 2022. https://ballotpedia.org/Parcel_tax
• CM8 Page 83
  California Tax Foundation. September 1, 2021. “Local Tax Trends in California.” Accessed March 23, 2022. https://www.caltax.org/foundation/reports/2021-Local-Tax-Trends-in-CA.pdf
• CM9 Page 83
  California Taxpayers Association. September 1, 2021. “Local Tax Trends in California: A Survey of Ballot Measure Elections from 2010–2020,” p. 42. Accessed May 21, 2022. https://www.caltax.org/foundation/reports/2021-Local-Tax-Trends-in-CA.pdf#pag e=46
• CM10 Page 83
  Confidential Grand Jury interviews. Words Matter—Did Measure G Mislead Voters? published June 20, 2022 Page 21 of 30 78 Santa Cruz County Civil Grand Jury
• CM11 Page 83
  Confidential Grand Jury interviews.
• CM12 Page 21
  Confidential Grand Jury document.
• CM13 Page 84
  EMC Research. March 2018. “DRAFT Telephone Survey of Likely November 2018 Voters Unincorporated Santa Cruz County.” Accessed May 25, 2022. https://www.santacruzcounty.us/Portals/0/County/GrandJury/GJ2022_final/Copy OfDraft_EMC_Survey.pdf
• CM14 Page 84
  Santa Cruz County Board of Supervisors. August 7, 2018. “Santa Cruz County Board of Supervisors Regular Meeting.” Accessed May 21, 2022. http://santacruzcountyca.iqm2.com/Citizens/SplitView.aspx?Mode=Video&Meetin gID=1664&Format=Minutes
• CM15 Page 84
  Santa Cruz County Board of Supervisors. August 7, 2018. “Measure G Resolution No. 181-2018, Santa Cruz County Board of Supervisors Meeting Agenda.” Accessed May 9, 2022. https://www.votescount.com/Portals/16/nov18/CO%20sales%20tax%20reso.pdf
• CM16 Page 84
  Santa Cruz County Board of Supervisors. August 7, 2018. “Revenue Options and Funding Strategies to Address the County’s Critical Unmet Needs.” Accessed May 9, 2022. http://www.santacruzcountyfire.com/fdac/bos_item_2018-697.pdf
• CM17 Page 84
  City of San Leandro. “San Leandro, California, Measure VV, Property Transfer Tax (November 2020).” Accessed May 7, 2022. https://ballotpedia.org/San_Leandro,_California,_Measure_VV,_Property_Transfe r_Tax_(November_2020)
• CM18 Page 84
  City of San Mateo. “City of San Mateo Sales Tax Continuation, Measure S (November 2015).” Accessed May 7, 2022. https://ballotpedia.org/City_of_San_Mateo_Sales_Tax_Continuation,_Measure_S _(November_2015)
• CM19 Page 84
  Santa Cruz County Regional Transportation Commission. “Measure D – Taxpayer Oversight.” Accessed May 21, 2022. https://sccrtc.org/funding-planning/measured/taxpayer-oversight/
• CM20 Page 84
  California Legislative Information. Measures Submitted to the Voters. Accessed May 21, 2022. https://leginfo.legislature.ca.gov/faces/codes_displaySection.xhtml?lawCode=EL EC&sectionNum=9160. Words Matter—Did Measure G Mislead Voters? published June 20, 2022 Page 22 of 30 2021–2022 Consolidated Final Report 79
• CM21 Page 85
  City of Sacramento. “Sacramento, California, Measure U, Sales Tax (November 2018).” Accessed May 10, 2022. https://ballotpedia.org/Sacramento,_California,_Measure_U,_Sales_Tax_(Novem ber_2018) 26. “Santa Cruz County, California, Measure G, Sales Tax (November 2018).” Accessed May 21, 2022. https://ballotpedia.org/Santa_Cruz_County,_California,_Measure_G,_Sales_Tax_ (November_2018)
• CM22 Page 85
  Dana McRae. “Impartial Analysis of Measure D.” Accessed May 19, 2022. https://www.votescount.us/Home/PastElections/November8,2016PresidentialGen eralElection/LocalMeasuresontheballot/MeasureDCountyTransportationTaxMeas ure/ImpartialanalysisofMeasureD.aspx
• CM23 Page 85
  Alicia Tuovila. May 1, 2022. “What Is an Audit?” Investopedia. Accessed May 21, 2022. https://www.investopedia.com/terms/a/audit.asp
• CM24 Page 85
  Santa Cruz County Auditor-Controller-Treasurer-Tax Collector. June 30, 2021. Annual Comprehensive Financial Report for the Fiscal Year Ended June 30, 2021, p. iii. Accessed May 21, 2022. https://www.co.santa-cruz.ca.us/Portals/0/County/auditor/acfr_2020-21/ACFR_202 0-21.pdf#page=11
• CM25 Page 85
  Santa Cruz County Auditor-Controller-Treasurer-Tax Collector. County of Santa Cruz Adopted Budget, Fiscal Year 2021–22, p. 3. Accessed May 21, 2022. https://sccounty01.co.santa-cruz.ca.us/AuditorBudget/2021-2022/2021-2022_AD OPTED_BUDGET.pdf#page=3
• CM26 Page 85
  City of Milpitas. “Measure F Oversight.” Accessed May 6, 2022. https://www.ci.milpitas.ca.gov/milpitas/departments/finance/measure-f-oversight/
• CM27 Page 85
  City of Milpitas. “Measure F Oversight.” Accessed May 21, 2022. https://www.ci.milpitas.ca.gov/milpitas/departments/finance/measure-f-oversight/
• CM28 Page 85
  City of San Leandro. “Measure HH Citizens’ Oversight Committee.” Accessed May 21, 2022. https://www.sanleandro.org/214/Measure-HH-Citizens-Oversight-Committee 37. “Measure U Community Advisory Committee.” Accessed May 21, 2022. https://boards.cityofsacramento.org/board/2936 Words Matter—Did Measure G Mislead Voters? published June 20, 2022 Page 23 of 30 80 Santa Cruz County Civil Grand Jury
• CM29 Page 86
  City of San Mateo. “Measure S Oversight Committee.” Accessed May 21, 2022. https://www.cityofsanmateo.org/3750/Measure-S-Oversight-Committee 39. “Santa Cruz County, California, Measure G, Sales Tax (November 2018).” Accessed May 21, 2022. https://ballotpedia.org/Santa_Cruz_County,_California,_Measure_G,_Sales_Tax_ (November_2018)
• CM30 Page 86
  Santa Cruz County Board of Supervisors. County of Santa Cruz 2021–2022 Measure G Financial Summary. Accessed May 21, 2022. https://sccounty01.co.santa-cruz.ca.us/AuditorBudget/2021-2022/Measure_G_Fi nancial_Summary.pdf
• CM31 Page 83
  Santa Cruz County Board of Supervisors. February 15, 2022. 2021–22 Mid-Year Report General Fund Meeting Presentation. Accessed May 7, 2022. https://santacruzcountyca.iqm2.com/Citizens/FileOpen.aspx?Type=4&ID=45764 &Inline=True#page=11
• CM32 Page 83
  Santa Cruz County Board of Supervisors. February 15, 2022. “Santa Cruz County Board of Supervisors Regular Meeting Agenda and Addendum.” Accessed May 7, 2022. https://santacruzcountyca.iqm2.com/citizens/FileOpen.aspx?Type=1&ID=1533&I nline=True BETTER http://santacruzcountyca.iqm2.com/Citizens/Detail_Meeting.aspx?ID=1919
• CM33 Page 86
  OpenGov/Santa Cruz County. May 20, 2022. “Santa Cruz County FY 2022–23 Budget.” Accessed May 20, 2022. https://www.santacruzcounty.us/VisionSantaCruz/Budget.aspx
• CM34 Page 84
  EMC Research. March 2018. “DRAFT Telephone Survey of Likely November 2018 Voters Unincorporated Santa Cruz County.” Accessed May 25, 2022. https://www.santacruzcounty.us/Portals/0/County/GrandJury/GJ2022_final/CopyOf Draft_EMC_Survey#page=8
• CM35 Page 86
  VotesCount. “Santa Cruz County June 2022, Measure B Ballot Measure.” Accessed May 19, 2022. https://www.votescount.us/Home/Elections/June2022CaliforniaPrimaryElection/L ocalMeasuresJune2022/B-CountyTOT.aspx Words Matter—Did Measure G Mislead Voters? published June 20, 2022 Page 24 of 30 2021–2022 Consolidated Final Report 81 Appendix A—Excerpts from the EMC Research Draft Telephone Survey of Likely November 2018 Voters Figure 4. Economic Priorities[45] Figure 5. Tax Sentiment[46] Words Matter—Did Measure G Mislead Voters? published June 20, 2022 Page 25 of 30 82 Santa Cruz County Civil Grand Jury Appendix B—Examples of Sales Tax Measure Ballot Questions City of Milpitas Public City of San Mateo City of Sacramento Services Measure, Measure S, 2016[22] Measure U, 2018[25] 2020[34] To provide funding to To continue locally Shall the measure to maintain the City’s controlled funding to protect and enhance finances and services, maintain services and essential public safety including: police and fire improve infrastructure, services, including 9-1-1 protection, 9-1-1 including: police patrols response, fire emergency response, and gang prevention; protection, community and natural disaster street, sidewalk, and neighborhood policing, preparation; youth, pothole repair; 9-1-1 and other essential senior, and recreation response times and services, including services; repairing park emergency medical homeless supportive equipment and services, fire prevention; services, affordable maintaining parks and senior, teen, and housing, libraries, park recreation centers; and children's programs; maintenance, high-wage attracting and retaining parks, paths and job promotion, and location businesses; playfields, library hours; youth programming, by shall the measure, and other city services; enacting a one-cent establishing a1/4¢ sales shall San Mateo extend sales tax generating $95 tax, providing the existing million annually that is approximately voter-approved legally required to stay $6,500,000 annually for quarter-cent sales tax in the City's General 8 years, requiring for 30 years without Fund, until ended by independent audits, increasing current tax voters, with independent citizens oversight rates with citizens annual financial audits committee, all funds oversight of how and citizen oversights, spent locally, be proceeds are spent? be adopted? adopted? Words Matter—Did Measure G Mislead Voters? published June 20, 2022 Page 26 of 30 2021–2022 Consolidated Final Report 83 Appendix C—Summary of the Contents of the Voter Information Guide for Measure B, June 2022 Ballot[47] Ballot Question Measure B—County Transient Occupancy Tax SANTA CRUZ COUNTY UNINCORPORATED AREA VACATION RENTAL / OVERNIGHT LODGING TAX - To fund Santa Cruz County essential public services including wildfire prevention, emergency response/recovery, street repair, public/mental health services, homelessness programs, and affordable housing, shall Santa Cruz County increase its existing Transient Occupancy Tax, paid by tourists and others staying overnight at lodging facilities in unincorporated areas, from 11% to 12% for hotels/motels/inns, and to 14% for vacation rental properties, providing approximately $2,300,000 annually, until ended by voters? Argument for Measure B: Citizen arguments in favor of a “yes” vote for the Measure. The citizens endorsing the Measure are listed below the argument. Rebuttal to Argument for Measure B: Citizen arguments against the Measure. The citizens opposing the Measure are listed below the argument. Impartial Analysis of Measure B: The County Counsel’s explanation of the changes in existing law if the Measure is approved, and how the Measure will operate. Fiscal Impact Statement for Measure B: The Auditor-Controller/Treasurer-Tax Collector’s analysis of how much revenue will be generated from the increased tax. Full text of Measure B: If a majority vote “yes” to Measure B, this is a draft of how the Measure would be incorporated into the County’s Code of Ordinances. County Transient Occupancy Tax Resolution: Board of Supervisors Resolution calling for the Ballot question to be put before voters in the June 2022 election. Words Matter—Did Measure G Mislead Voters? published June 20, 2022 Page 27 of 30 84 Santa Cruz County Civil Grand Jury Appendix D—Impartial Analysis of Measure G The following impartial analysis of the measure was prepared by the office of the Santa Cruz County Counsel.[26] If this measure is approved by a majority of those voting on it, the Board of Supervisors of the County of Santa Cruz will be authorized to adopt an ordinance enacting a temporary increase to the retail transactions and use tax (“sales tax”) on retail transactions in the unincorporated area of the County. The sales tax increase would be imposed for a period of 12 years at the rate of one-half of one percent on retail transactions in the unincorporated area only. The current sales tax rate in the County of Santa Cruz is eight and one-half percent. Accordingly, if this measure is approved, the sales tax rate would increase to nine percent for 12 years. If approved, this measure is expected to take effect in or around April of 2019. The revenue generated by this measure would be deposited in the County’s general fund and used by the County to pay for general County operations and services including emergency response, sheriff, fire, parks, street maintenance, mental health services, affordable housing, homelessness programs, youth and senior programs and economic development. This measure was placed on the ballot by the Board of Supervisors of the County of Santa Cruz. A “yes” vote on Measure G is a vote to approve the increase in the sales tax. A “no” vote on Measure G is a vote against the increase in the sales tax. Words Matter—Did Measure G Mislead Voters? published June 20, 2022 Page 28 of 30 2021–2022 Consolidated Final Report 85 Appendix E—Impartial Analysis of Measure D The following impartial analysis of the measure was prepared by the office of the Santa Cruz County Counsel.[27] If this measure is approved by at least two-thirds of those voting on it, it will enact ordinance no. 2016-01 of the Santa Cruz County Regional Transportation Commission. The ordinance will cause the retail transactions and use tax rates (“sales tax”) imposed within Santa Cruz County to increase by half of one percent for a thirty-year period in order to pay for the transportation projects described in the ordinance and its expenditure plan which are printed in the ballot pamphlet. If approved, it is expected to take effect in or around April 2017. The ordinance sets out accountability requirements, as well as exemptions and exclusions from the new tax. It also establishes that the constitutional appropriations limit will include the taxes which are collected. The sales tax increment proposed by this measure would apply within the cities as well as the unincorporated areas of the County. Those jurisdictions have differing sales tax rates for the transactions within their boundaries. Currently and prior to this proposed increase, the sales tax rates are: 8.75% within the cities of Capitola, Santa Cruz, and Scotts Valley; 9.0% within the City of Watsonville; and 8.25% in the unincorporated areas of the County. Following this election, the rates would be subject to further change as might be permitted or required by State law. This election was requested by the Santa Cruz County Regional Transportation Commission, and was called by the Santa Cruz County Board of Supervisors as requested by the Commission. A “yes” vote is to adopt the ordinance and approve the increase in the sales tax. A “no” vote is against the increase in the sales tax. Words Matter—Did Measure G Mislead Voters? published June 20, 2022 Page 29 of 30 86 Santa Cruz County Civil Grand Jury Appendix F—City of Sacramento’s 2012 Impartial Analysis of Measure U The following impartial analysis of the measure was prepared by the Sacramento City Attorney.[25] Measure U, if approved by a majority of the voters, would enact an ordinance that provides for a ½-cent tax on each dollar of taxable sales of goods within the City of Sacramento, and on the taxable storage, use, or consumption in the city of goods purchased from a retailer. This is commonly referred to as a “sales tax” and technically referred to as a “transactions and use tax.” As a general tax, the revenues would be deposited into the city’s general fund and could be used for any municipal government purpose, including police and fire services, 911 response, park maintenance, gang and youth violence prevention, youth services, senior services, libraries, and other programs. The ½-cent tax would be in addition to the existing sales tax, and would be collected at the same time and in the same manner as the existing sales tax. Currently, the combined state and local sales tax rate in the City of Sacramento is 7.75%. If this measure is approved by the voters, the combined rate would be 8.25%. If approved, the ½-cent tax would go into effect on April 1, 2013, and expire on March 31, 2019. After that time, the ½-cent tax authorized by this measure would no longer be imposed. The revenues resulting from this tax would be subject to the same independent annual audit as other general fund revenue. Additionally, the ordinance requires the establishment of a citizens oversight committee to review the revenue and expenditure of funds from the tax. State law authorizes the city to levy this ½-cent tax following approval of the ordinance by two-thirds of the city council and a majority of the voters voting on the issue. The Sacramento City Council approved the ordinance on July 24, 2012. A “yes” vote is in favor of approving the ordinance establishing the tax. A “no” vote is against approving the ordinance establishing the tax. Words Matter—Did Measure G Mislead Voters? published June 20, 2022 Page 30 of 30 2021–2022 Consolidated Final Report 87 How a Community Center Became a “Library” The Transformational Power of Measure S Funds Summary In 2016, residents within the Santa Cruz Public Libraries’ service system approved Measure S, a special tax that, over time, would raise $67 million. As a special tax, Measure S funds were restricted for use in modernizing, upgrading, and repairing local library branches. The Santa Cruz County Board of Supervisors elected to use Measure S funds to complete a Santa Cruz County Parks project which they call the “Live Oak Library Annex.” The Annex (currently being constructed) is about one mile from the existing Live Oak Branch Library. The Annex is, in essence, a collection of study and education spaces with publicly available computers and internet that will be managed by County Parks staff. Santa Cruz Public Libraries (SCPL) will not have librarians or books for loan at this location. This report explores the SCPL’s development of a master plan for the improvement of its ten library branches, which led to the need for a funding source, Measure S. The SCPL’s effort to obtain the cooperation of elected officials in urging their constituents to support Measure S led to a shift away from SCPL’s priorities. The result was the County’s unchallenged decision to use library funds to expand a nearby community center. The Grand Jury has concluded that the Annex is an expansion of the Live Oak Community Center and not an expansion of the Live Oak Branch Library. Following the State’s elimination of redevelopment agencies, County Parks was left without a ready source of capital funds needed to complete the vision of the Community Center. Measure S filled the void. The Grand Jury recommends that the County Board of Supervisors reassess its decision to use Measure S funds to improve the Live Oak Community Center and restore the voters’ trust. How a Community Center Became a “Library” published June 22, 2022 Page 1 of 25 88 Santa Cruz County Civil Grand Jury Table of Contents Background 3 Measure S Ballot Language 3 Preparation for Measure S: Facilities Master Plan 4 The SCPL Governance: Building and Operations Are Completely Separate 5 The Annex Project: Concept and Vision 6 Scope and Methodology 7 Investigation 8 Did Political Influence Change the Priorities of the Master Plan? 8 The Master Plan As a Guard Rail for Measure S Expenditures 9 The Importance of Librarians 10 Why Couldn’t the Live Oak Branch Library Be Improved to Fulfill the County’s Vision for the Annex? 11 The Redevelopment Agency’s Impact on County Parks 11 The Annex’s Impact on the SCPL Operating Budget 12 Conclusion 12 Findings 13
• CM36 Page 142
  County of Santa Cruz. July 2021. “Local Hazard Mitigation Plan 2021–2026,” p. 60. Accessed May 21, 2022. https://www.sccoplanning.com/Portals/2/County/Planning/policy/LHMP/County% 20of%20Santa%20Cruz%20LHMP%202021-2026.pdf#page=66
• CM37 Page 142
  County of Santa Cruz. July 2021. “Local Hazard Mitigation Plan 2021–2026,” p. 9. Accessed May 21, 2022. https://www.sccoplanning.com/Portals/2/County/Planning/policy/LHMP/County% 20of%20Santa%20Cruz%20LHMP%202021-2026.pdf#page=15
• CM38 Page 142
  CZU Unified Command Agencies. September 23, 2020. “CZU Lightning Complex (Including Warnella Fire) Incident.” Accessed May 21, 2022. https://www.fire.ca.gov/incidents/2020/8/16/czu-lightning-complex-including-warn ella-fire/
• CM39 Page 107
  Confidential Grand Jury interview.
• CM40 Page 149
  Central Fire District
• CM41 Page 130
  Resource Conservation District of Santa Cruz County. June 16, 2021. “Santa Cruz County Forest Health and Fire Resilience Public Works Plan (PWP).” Accessed May 21, 2022. https://www.rcdsantacruz.org/images/PWP/RCDSCC_Forest_Health_and_Fire_ Resilience_PWP_Final_061621.pdf
• CM42 Page 142
  CAL FIRE San Mateo–Santa Cruz Unit. April 2018. “San Mateo–Santa Cruz Community Wildfire Protection Plan.” Accessed May 21, 2022. http://www.santacruzcountyfire.com/resource_mgmt/cwpp/2018_cwpp_update_fi nal_v2_reduced.pdf
• CM43 Page 142
  CAL FIRE. November 7, 2007. “CAL FIRE Map of Santa Cruz County Fire Hazard Zones.” Accessed May 27, 2022. https://osfm.fire.ca.gov/media/6768/fhszs_map44.pdf
• CM44 Page 142
  Chloe Tilton. November 8, 2021. “The role of Indigenous communities in California fire management.” The Daily Clog. Accessed May 21, 2022. https://www.dailycal.org/2021/11/08/the-role-of-indigenous-communities-in-califor nia-fire-management/
• CM45 Page 149
  Santa Cruz City Fire Department
• CM46 Page 142
  CAL FIRE San Mateo Santa Cruz Unit. May 5, 2021. “2021 Strategic Fire Plan.” Accessed May 26, 2022. https://osfm.fire.ca.gov/media/ye0hefak/2021_czu_fireplan.pdf Reducing Community Risks from Wildfire published June 24, 2022 Page 24 of 33 2021–2022 Consolidated Final Report 137
• CM47 Page 149
  Watsonville City Fire Department
• CM48 Page 149
  Zayante Fire Protection District CAL FIRE/County Fire The California Department of Forestry and Fire Protection (CAL FIRE) is a state agency tasked with fire protection for some 31 million acres of State Responsibility Area in California. It also provides other emergency services in many counties.[102] The San Mateo–Santa Cruz Unit of CAL FIRE includes the counties of San Mateo, Santa Cruz, and San Francisco. CAL FIRE also manages the County Fire Department for both San Mateo and Santa Cruz counties.[103] Within Santa Cruz County, CAL FIRE and County Fire have responsibility for fire protection in County Service Area 48 (CSA 48) and Reducing Community Risks from Wildfire published June 24, 2022 Page 31 of 33 144 Santa Cruz County Civil Grand Jury County Service Area 4. The CSA 48 covers a significant portion of the County, including much of the Santa Cruz Mountains and North County. Resource Conservation District The Resource Conservation District of Santa Cruz County (RCD) is a special district tasked with coordinating efforts to protect the County’s natural resources. Its mission includes water management and conservation, fish protection, erosion control, soil and forest health, and fire resiliency. It operates by applying for and obtaining grants from mostly state and federal agencies.[104] Fire Department Advisory Commission The Fire Department Advisory Commission (FDAC) is tasked with the preparation and implementation of the County Fire Department Master Plan. It advises the County Fire Department on methods for improving the cost-effectiveness and delivery of the County’s fire protection, as well as its rescue and emergency medical services programs. FDAC reviews the County Fire Department’s budget priorities and specific budget recommendations, and advises on the mission and requirements of each of the volunteer fire companies.[105] Fire Safe Councils The Fire Safe Santa Cruz County aims to educate and mobilize the people of Santa Cruz County to protect their community, homes, and environment from wildfire. They foster collaboration between local Fire Safe councils, CAL FIRE, local government, water districts, non-profit organizations, industry, and the RCD.[106] Santa Cruz Mountains Stewardship Network The Santa Cruz Mountains Stewardship Network is a wide-ranging collaboration of diverse organizations from lumber companies to tribal groups. It has 21 members, including CAL FIRE, Big Creek Lumber, California State Parks, and Peninsula Open Space Trust.[107] Firewise Councils Firewise is a national program that helps communities work together to reduce wildfire risk through education and collaboration. Local Firewise councils in Santa Cruz County reduce their local wildfire risk through encouraging neighbors to work together on defensible space, home-hardening, and evacuation planning.[108] Reducing Community Risks from Wildfire published June 24, 2022 Page 32 of 33 2021–2022 Consolidated Final Report 145 Appendix B—Fire Prevention Plans Below are the major plans that detail aspects of strategic planning for wildfire protection. Community Wildfire Prevention Plan The Community Wildfire Prevention Plan (CWPP), prepared by CAL FIRE and last updated in 2018, categorizes wildfire risk throughout Santa Cruz and San Mateo counties. The plan provides mitigation strategies aimed both at preventing destructive wildfires and at promoting healthy forests, while protecting human life and property. Grant funding for wildfire protection projects is easier for communities to obtain when there is a current CWPP in place. Individual wildfire prevention projects are not described in the document, as this might require an Environmental Impact Report.[109] CAL FIRE Strategic Plan 2021 This is a companion document to the CWPP described above. It includes descriptions of the County’s firefighting capabilities and wildfire mitigation strategies.[11] Local Hazard Mitigation Plan This document describes the potential hazards that may affect our County, from earthquakes to droughts. It includes a section on wildfires, describing both the risks and mitigation strategies. The Local Hazard Mitigation Plan (LHMP) is updated on a five-year cycle, with the current plan produced in 2021. Each update includes progress from the previous plan. As with the CWPP, a major purpose of the document is to facilitate obtaining state and federal grants. Each project for which funding is sought should be listed as a mitigation strategy in the LHMP.[110] Thus the current LHMP includes a “high-priority” item for vegetation reduction.[111] Santa Cruz County Forest Health and Fire Resilience Public Works Plan The RCD produced the Santa Cruz County Forest Health and Fire Resilience Public Works Plan in 2021 to facilitate approval of fire protection projects in areas where a Coastal Development Permit is required. The document is intended to replace the requirement for each project to obtain an individual permit.[112] Further description of the Public Works Plan is found in the Strategic Planning for Vegetation Reduction section of this report. Reducing Community Risks from Wildfire published June 24, 2022 Page 33 of 33
• CM49 Page 143
  Kara Meyberg Guzman. August 26, 2020. “Fire damages parts of San Lorenzo Valley water system.” Santa Cruz Local. Accessed May 26, 2022. https://santacruzlocal.org/2020/08/26/fire-damages-parts-of-san-lorenzo-valley-w ater-system/
• CM50 Page 143
  Michael Wara. April, 2021. “A New Strategy for Addressing the Wildfire Epidemic in California,” p. 7. Stanford Woods Institute for the Environment. Accessed May 31, 2022. https://woodsinstitute.stanford.edu/system/files/publications/New_Strategy_Wildfi re_Epidemic_Whitepaper_1.pdf#page=11
• CM51 Page 143
  CAL FIRE. 2021. “Fuels Reduction Guide.” Accessed May 26, 2022. https://www.fire.ca.gov/media/4jqerfjh/fuels-reduction-guide-final-2021-interactive .pdf
• CM52 Page 143
  CAL FIRE San Mateo–Santa Cruz Unit. April, 2018. “San Mateo–Santa Cruz Community Wildfire Protection Plan,” p. 20. Accessed May 27, 2022. http://www.santacruzcountyfire.com/resource_mgmt/cwpp/2018_cwpp_update_fi nal_v2_reduced.pdf#page=22 Reducing Community Risks from Wildfire published June 24, 2022 Page 25 of 33 138 Santa Cruz County Civil Grand Jury
• CM53 Page 144
  CAL FIRE. 2019. “Hardening Your Home.” Accessed May 26, 2022. https://www.readyforwildfire.org/prepare-for-wildfire/get-ready/hardening-your-ho me/
• CM54 Page 130
  Resource Conservation District of Santa Cruz County. May 2004. Living With Fire In Santa Cruz County. Accessed May 26, 2022. https://rcdsantacruz.org/images/brochures/pdf/LivingwithFireinSantaCruzCounty_ 6-2004.pdf
• CM55 Page 144
  Hannah Hagemann. March 16, 2022. “San Lorenzo Valley Water District weighs CZU complex fire rebuild options.” Santa Cruz Sentinel. Accessed May 26, 2022. https://www.santacruzsentinel.com/2022/03/16/san-lorenzo-valley-water-district- weighs-czu-complex-fire-rebuild-options/
• CM56 Page 144
  Pacific Gas and Electric. 2022. “Hardening the Electric System.” Accessed May 26, 2022. https://www.pge.com/en_US/safety/emergency-preparedness/natural-disaster/wil dfires/cwsp-system-hardening.page
• CM57 Page 144
  Confidential Grand Jury interview. Reducing Community Risks from Wildfire published June 24, 2022 Page 26 of 33 2021–2022 Consolidated Final Report 139
• CM58 Page 145
  Fire Safe Council of Santa Cruz County. January 12, 2022. “Strategic Plan.” Fire Safe Council of Santa Cruz County. Accessed June 12, 2022. https://www.firesafesantacruz.org/images/docs/Strategic_Plan_Approved_2022-0 1-20.pdf
• CM59 Page 145
  Santa Cruz County Administration. Not dated. “County Operational Plan: Fuel Reduction.” Accessed May 26, 2022. https://www.santacruzcounty.us/VisionSantaCruz/OperationalPlan.aspx
• CM60 Page 145
  CAL FIRE. December 2, 2021. “CAL FIRE Fire Prevention Grants Program FY 2021–2022.” Accessed May 26, 2022. https://www.grants.ca.gov/grants/cal-fire-fire-prevention-grants-program-fy-2021- 2022/
• CM61 Page 145
  CAL FIRE. February 15, 2022. “CAL FIRE Forest Health.” Accessed May 26, 2022. https://www.grants.ca.gov/grants/cal-fire-forest-health/
• CM62 Page 145
  CAL FIRE. December 8, 2021. “Fire Prevention Grants Program Procedural Guide FY 2021–2022.” Accessed May 26, 2022. https://www.fire.ca.gov/media/l1gnclnv/fire-prevention-grants-fy-21-22-procedural -guide-final.pdf
• CM63 Page 145
  CAL FIRE. Not dated. “Forest Health Early Action Direct Grant Awards, FY 2020–2021.” CAL FIRE. Accessed June 1, 2022. https://www.fire.ca.gov/media/yemf2oko/20-21_forest-health_legacy_awards_we b.pdf
• CM64 Page 145
  CAL FIRE. Not dated. “Early Action General Fund (GF): FY 2020–2021 Fire Prevention Grant Awards,” p. 26. CAL FIRE. Accessed June 1, 2022. https://www.fire.ca.gov/media/ymoohf13/final_fy-2020-21-cci-fire-prevention-gran t-recipient-list-accessible-10-18-2021.pdf#page=26
• CM65 Page 143
  CAL FIRE. 2021. “Fuels Reduction Guide.” Accessed May 26, 2022. https://www.fire.ca.gov/media/umkhhdbs/fuels-reduction-guide-final-2021-print.pdf
• CM66 Page 130
  Resource Conservation District of Santa Cruz County. 2022. “Chipping Programs.” Accessed May 26, 2022. https://www.rcdsantacruz.org/chipping-programs
• CM67 Page 146
  Santa Cruz County Fire. Not dated. “Frequently Asked Questions.” Accessed May 26, 2022. http://www.santacruzcountyfire.com/front_page/csa_48_faq.pdf
• CM68 Page 146
  Fire Department Advisory Commission. Not dated. “Different Types of CAL FIRE Cooperative Agreements.” Accessed May 27, 2022. http://www.santacruzcountyfire.com/fdac/2022_fdac_county_contract.pdf
• CM69 Page 146
  CAL FIRE. May 3, 2022. “CAL FIRE Establishes New Division to Assist Local Communities Prepare for Wildfires.” Accessed May 26, 2022. https://www.fire.ca.gov/media/p24fmjyg/cwpm-news-release_2022.pdf
• CM70 Page 147
  San Mateo County Fire. 2018. “San Mateo County Fire Apparatus.” Accessed May 27, 2022. https://www.cfsfire.org/about/fire-apparatus/
• CM71 Page 147
  Confidential Grand Jury interview. 93. 2021–2022 Santa Cruz Grand Jury. June 20, 2022. “Words Matter—Did Measure G Mislead Voters?” p. 3. Accessed June 20, 2022. https://www.santacruzcounty.us/Portals/0/County/GrandJury/GJ2022_final/2022- 4_MeasureG_Report.pdf#page=3
• CM72 Page 47
  C1. The City of Santa Cruz Water Department, the Santa Margarita Groundwater Agency, and the Mid-County Groundwater Agency have shown strong collaboration and innovation toward partially defining the water reserve plan. C2. The Soquel Creek Water District and the City of Santa Cruz Water Department have shown strong collaboration to deliver the Pure Water Soquel project.

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