2. Underused Municipal Golf Courses

Many areas of Los Angeles County have unmet needs for park space and recreational amenities. Over half (52.6%) of the people living in the County live in areas with too few parks and park- land. Of these, 20.4% live in areas determined to have a “high” need for park-land, and 32.2% live in areas determined to have a “very high” need for park-land. Park acres per 1,000 people, is a common measurement of the number of park acres available in a given area. Because it accounts for population size, this measurement can be utilized across geographic areas to give an understanding of how much park-land residents have access to in any 34 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT given area. Park acres per 1,000 people were also used in the Countywide Parks Needs Assessment on a Study Area level, as well as on the level of individual parks. The County approved a standard of 4 acres per 1,000 people in the most recent County General Plan. Overall, the County has 3.3 acres of local and regional recreation park-land per 1,000 persons. Study Areas defined as having a high need for parks average less than 1.6 park acres per 1,000 people, and Study Areas having very high need for parks average less than 0.7 park acres per 1,000 people. However, there are exceptions to these thresholds depending on the effect of other factors used to calculate park need. These additional factors include park condition, access, amenities and park pressure. Recreational amenities at parks are also Exhibit 1 important to both individual and community Recreational Amenities per 100,000 Residents in L.A. health. Exhibit 1 shows the County is County Compared to National Averages substantially below the national average for the number of recreational amenities per 100,000 residents. Park accessibility is determined based on each household’s distance from a park. The Trust for Public Land’s Center for City Park Excellence identified a ½ mile (approximately 10 minutes) walk to a park as the distance that most pedestrians are willing to walk to reach a park. This distance has been widely adopted as a standard for providing nearby access to parks and open space. Overall, 51% of the County population lives more than a ½ mile of a park. B. Public Park-land Devoted to Golf Within the County, 7,739 acres are devoted to County and municipally owned golf courses. It is also important to note that an additional 5,486 acres of privately-owned land and green space is devoted to golf. Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, May 2016

A significant percentage of local government park-land in Los Angeles County is devoted to golf. The Countywide Parks Needs Assessment’s Parks & Open Space Inventory identifies 1,602 Local Parks totaling 15,723 acres. The Assessment also identifies 17 Regional Recreation Parks totaling 18,248 acres. The 55 County and municipal golf courses total approximately 7,739 acres. Exhibit 2 shows County and municipal golf course acreage representing a significant portion (18%) of the combined Local Park and Regional Recreation Park space in the County. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 35 Exhibit 2 County and Municipal Park-land in Los Angeles County Acres by Type of Use 7,739 Acres 18% 55 Golf Courses 15,723 Acres 38% 1,602 Local Parks 17 Regional Recreation Parks 18,248 Acres 44% Sources: Local Park and Regional Recreation Park Acres: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, May 2016, Executive Summary, page III. Golf Course Acres: City of Los Angeles Department of Recreation and Parks, 2009 Citywide Community Needs Assessment, Figure 1.9.3.c, . Although the 55 County and municipal golf courses were not included in the Countywide Parks Needs Assessment’s Parks & Open Space Inventory or the Assessment’s Study Areas, these golf courses fit well with the Assessment’s definition of Local Parks. Note: If golf course acreage is combined only with Local Park acreage, the County and municipal golf courses would represent nearly one-third of the County’s total Local Park acreage. Golf course acreage represents a significant investment in green and open space in the County. C. Trends in the Demand for Golf More than a decade ago, when the sport of golf was a playground for the professional set and a young Californian named Tiger Woods was the world’s best player, golf looked like an unassailable national undertaking with strong corporate involvement and sponsorship. However, the number of golfers and the number of golf rounds played over the last 10+ years has been declining. 36 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT

Trends in golf participation show a declining demand for golf Nationally, a decline in the number of active players has been experienced by the entire public, private, and municipal golf industry. The National Golf Foundation (NGF.org) conducts research annually on the number of golfers and their level of participation. This information is published in their annual Golf Participation in the U.S. report. The following Exhibit shows the reported number of golfers from 2005 to 2017. Exhibit 3 Golf Participation / All U.S. Golfers (People age 6+ who played golf on a golf course - in millions) 32 30 30 28 26.1 25.7 26 25.3 24.7 24.7 24.7 24.1 23.8 24 22 20 2005 2010 2011 2012 2013 2014 2015 2016 2017 Source: National Golf Foundation Annual Golf Participation Report (2013 and 2017 editions) More than 800 golf courses have closed nationwide in the last decade, as operators grapple with declining interest in the sport and a glut of competition.7 This decline in the demand for golf presents opportunities for local public agencies responsible for ownership and operation of golf courses to address the need for additional park acreage. Because of the nature and logistics of golf course design, courses are well-suited for expanding their use or repurposing in areas of high need for parks and recreational amenities. Among the 55 golf courses, there are 13 courses located in areas of high or very high park need as defined in the Countywide Parks Needs Assessment. Because of their location in high or very high park need areas; these 13 courses were made the focus of this CGJ investigation. America’s Golf Courses are Burning, Patricia Clark, Bloomberg, August 15, 2016 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 37 D. Los Angeles County Golf Courses in Study Areas with High or Very High Park Need The County operates five golf courses located within Study Areas identified as having either a high or very high need for additional park-land. Victoria Golf Course has been omitted from this investigation due to a recent initiative by BOS to repurpose this course into a community recreational center. The County’s golf courses included in this investigation are: • Alondra Golf Course (18 and 9 Hole Courses) • Chester Washington Golf Course (18 Hole Course) • Los Amigos Golf Course (18 Hole Course) • Maggie Hathaway Golf Course (9 Hole Course) • Don Knabe Golf Center (9 Hole Course)

The Los Angeles County has golf courses in areas determined to have high or very high need for additional park-land. The trends over the past ten years show a decline in demand for golf at most of these golf courses. The following Exhibit 4 shows three golf courses that have experienced declining volumes of rounds played along with declining or flat net revenues over the past 10 years. Exhibit 4 Overview of Los Angeles County Golf Courses Change Over 10 Year Period Golf Courses in Areas Total Park Need Rounds Total Net with High Park Need Acreage Category Played Revenues Revenues Alondra (9 and 18 Hole) 214 Very High (24%) (3%) (50%) Chester Washington 131 Very High (16%) (4%) 0% Los Amigos 127 High 3% 39% 187% Maggie Hathaway 12 Very High (40%) (14%) (64%) Don Knabe 11 High NA NA NA Source: Los Angeles County Department of Parks and Recreation (PAR). Note: Don Knabe Golf Center was re-opened by PAR in July 2017 The following sections provide overviews of park need in the Study Areas where these golf courses are located, as well as information on the trends in the number of golf rounds played and the revenues and expenditures for each course. 38 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Alondra Golf Course Exhibit 5 shows the Study Area has 2.3 acres of park-land per 1,000 people, somewhat below the County average of 3.3 acres. The Study Area is defined as having a very high need for additional park-land. The percentage of residents living within ½ mile of a park is 62%, which compares favorably with the County average of 49%. The Alondra Golf Course occupies 214 acres, including 155 acres for the 18-hole course, and 59 acres for the 9-hole course. The percentage of land devoted to golf in the Study Area is high at 89%, compared to just 11% devoted to park-land. Exhibit 5 Alondra Golf Course Park Need Study Area 34 - Unincorporated Hawthorne - Alondra Park Park Need Category: Very High Study Area Population 11,361 Within ½ Mile of a Park 62% Park Acres, Park Acres / 1,000 2.3 25.9, 11% Local Park Acres 25.9 Total Golf Acres 214 Alondra 18 Hole: 155 Alondra 9 Hole: 59 Golf Acres, 214, 89% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, May 2016 Exhibit 6 shows the number of rounds of golf played has declined approximately 24% over the past 10 years. The exhibit also shows that total revenues have only declined by 3% over the ten- year time period. However, net revenues declined by 50% over the same period. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 39 Exhibit 6 Alondra Golf Rounds Played Fiscal Year 2007-08 to 2016-17 Alondra Golf Revenue, Expenditure and Net Revenue Trends Fiscal Year 2007-08 to 2016-17 $4,500,000 $4,000,000 3,759,867 3,848,335 3,851,651 3,691,934 3,896,255 3,989,750 3,973,605 3,651,162 3,739,968 3,642,374 $3,500,000 $3,000,000 3,384,716 3,343,447 3,315,778 3,324,756 3,404,290 3,152,256 3,206,872 $2,500,000 2,965,686 $2,702,184 $2,000,000 $1,500,000 1,057,683 885,965 $1,000,000 463,619 539,678 552,808 673,972 648,849 533,096 $500,000 246,872 Total Revenues Total Expenditures Net Revenues $0 FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Fiscal Year Percentage FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Change Total Revenues $3,759,867 $3,848,335 $3,851,651 $3,691,934 $3,896,255 $3,989,750 $3,973,605 $3,651,162 $3,739,968 $3,642,374 -3% Total Expenditures $2,702,184 $3,384,716 $2,965,686 $3,152,256 $3,343,447 $3,315,778 $3,324,756 $3,404,290 $3,206,872 NA 19% Net Revenues $1,057,683 $463,619 $885,965 $539,678 $552,808 $673,972 $648,849 $246,872 $533,096 NA -50% Source: Los Angeles County Department of Parks and Recreation 40 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Chester Washington Golf Course Exhibit 7 shows the Study Area has just 0.2 acres of park-land per 1,000 people, substantially below the County average of 3.3 acres. Given this, the Study Area is defined as having a very high need for additional park-land. The percentage of residents living within ½ mile of a park is 26%, which is also substantially below the County average of 49%. The Chester Washington Golf Course occupies a total of 131 acres for the 18-hole golf course. The percentage of land devoted to golf in the Study Area is high at 95%, compared to just 5% devoted to park-land. Exhibit 7 Chester Washington Golf Course Park Need Study Area 22 - Unincorporated West Athens-Westmont Park Need Category: Very High Study Area Population 41,288 Within ½ Mile of a Park 26% Park Acres / 1,000 0.2 Park Acres, Local Park Acres 7 7, 5% Golf Acres 131 Golf Acres, 131, 95% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, M ay 2016 Exhibit 8 shows the number of rounds of golf played has declined approximately 16% over the past 10 years. The exhibit also shows total revenues have declined by 4% over the same period and net revenues remained fairly stable. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 41 Exhibit 8 Chester Washington Golf Rounds Played Fiscal Year 2007-08 to 2016-17 Chester Washington Golf Revenue, Expenditure and Net Revenue Trends Fiscal Year 2007-08 to 2016-17 $4,500,000 $4,000,000 3,698,460 3,865,358 3,830,352 3,676,189 3,815,690 3,688,125 3,714,318 3,651,931 3,709,286 3,566,546 $3,500,000 $3,000,000 $2,500,000 2,899,789 2,847,453 2,790,372 2,790,506 2,931,403 3,113,109 3,174,913 3,086,280 2,913,848 $2,000,000 $1,500,000 1,017,904 1,039,980 798,672 885,682 884,287 795,439 $1,000,000 575,015 539,405 565,651 $500,000 Total Revenues Total Expenditures Net Revenues $0 FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Fiscal Year Percentage FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Change Total Revenues $ 3 ,698,460 $ 3 ,865,358 $ 3 ,830,352 $ 3 ,676,189 $ 3 ,815,690 $ 3 ,688,125 $ 3 ,714,318 $ 3 ,651,931 $ 3 ,709,286 $ 3 ,566,546 -4% Total Expenditures $2,899,789 $2,847,453 $2,790,372 $2,790,506 $2,931,403 $3,113,109 $3,174,913 $3,086,280 $2,913,848 NA 0% Net Revenues $798,672 $1,017,904 $1,039,980 $885,682 $884,287 $575,015 $539,405 $565,651 $795,439 NA 0% Source: Los Angeles County Department of Parks and Recreation 42 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Los Amigos Golf Course Exhibit 9 shows the Study Area has 1.1 acres of park-land per 1,000 people, substantially below the County average of 3.3 acres. Given this, the Study Area is defined as having a high need for additional park-land. The percentage of residents living within ½ mile of a park is 26%, which is also substantially below the County average of 49%. The Los Amigos Golf Course occupies a total of 127 acres for the golf course. The percentage of land devoted to golf in the Study Area is 50%, with the other 50% devoted to park-land. Exhibit 9 Los Amigos Golf Course Park Need Study Area 162 - City of Downey Park Need Category: High Study Area Population 113,741 Within ½ Mile of a Park 26% Park Acres / 1,000 people 1.1 Local Park Acres 125.8 Golf Acres 127 Golf Acres, Park Acres, 127, 50% 125.8, 50% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, May 2016 Exhibit 10 shows the number of rounds of golf played has increased by 3% over the past 10 years. The exhibit also shows total revenues increased by 39% over a ten-year time period and net revenues have increased substantially at 187% over a nine-year period. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 43 Exhibit 10 Los Amigos Golf Rounds Played Fiscal Year 2007-08 to 2016-17 Los Amigos Golf Revenue, Expenditure and Net Revenue Trends Fiscal Year 2007-08 to 2016-17 $4,500,000 4,109,354�� 3,970,217�� 3,761,984�� $4,000,000 3,440,210�� $3,500,000 2,851,905�� 3,324,086�� $3,000,000 2,623,104�� 3,079,287�� 2,399,312�� $2,500,000 2,122,926�� 2,083,988�� 2,206,241�� 2,315,106�� 2,578,587�� $2,000,000 2,297,681�� 2,274,704�� 2,251,957�� 2,296,996�� 1,822,359�� $1,500,000 1,125,104�� $1,000,000 576,953�� 682,697�� 785,268�� 273,318�� 325,423�� $500,000 (151,778)� (167,969)� (90,755)� $0 FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 -$500,000 Total Revenues Total Expenditures Net Revenues Fiscal Year Percentage FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Change Total Revenues $ 2 ,851,905 $ 2 ,623,104 $ 2 ,122,926 $ 2 ,083,988 $ 2 ,206,241 $ 2 ,399,312 $ 3 ,440,210 $ 3 ,761,984 $ 4 ,109,354 $ 3 ,970,217 39% Total Expenditures $2,578,587 $2,297,681 $2,274,704 $2,251,957 $2,296,996 $1,822,359 $2,315,106 $3,079,287 $3,324,086 NA 29% Net Revenues $273,318 $325,423 ($151,778) ($167,969) ($90,755) $576,953 $1,125,104 $682,697 $785,268 NA 187% Source: Los Angeles County Department of Parks and Recreation 44 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Maggie Hathaway Golf Course Exhibit 11 shows the Study Area has just 0.5 acres of park-land per 1,000 people, substantially below the County average of 3.3 acres. Given this, the Study Area is defined as having a very high need for additional park-land. The percentage of residents living within ½ mile of a park is 59%, which compares favorably with the County average of 49%. The Maggie Hathaway Golf Course is a small facility occupying only 12 acres. The percentage of land devoted to golf in the Study Area is 17%, with the other 83% devoted to park-land. Exhibit 11 Maggie Hathaway Golf Course Park Need Study Area 119 - City of LA South Los Angeles Park Need Category: Very High Study Area Population 109,993 Within ½ Mile of a Park 59% Park Acres / 1,000 0.5 Local Park Acres 60.3 Golf Acres, Golf Acres 12 12, 17% Park Acres, 60.3, 83% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, M ay 2016 Exhibit 12 shows the number of rounds of golf played decreased by 40% over the past 10 years. The exhibit also shows total revenues decreased by 14% over a ten-year time period and net revenues have decreased substantially at 64%. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 45 Exhibit 12 Maggie Hathaway Golf Rounds Played Fiscal Year 2007-08 to 2016-17 Maggie Hathaway Golf Revenue, Expenditure and Net Revenue Trends Fiscal Year 2007-08 to 2016-17 $180,000 $160,000 $140,000 $120,000 $100,000 $80,000 $60,000 $40,000 $20,000 $0 FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 -$20,000 Total Revenues Total Expenditures Net Revenues Fiscal Year Percentage FY 07/08 FY 08/09 FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Change Total Revenues 120,724.98 119,304.11 158,771.86 125,133.99 110,542.73 108,745.80 111,241.65 109,631.71 105,079.00 103,979.10 -14% Total Expenditures 107,767.56 121,914.19 123,106.08 99,151.01 97,045.04 86,821.57 96,863.34 97,387.75 104,238.23 99,364.63 -8% Net Revenues 12,957.42 (2,610.08) 35,665.78 25,982.98 13,497.69 21,924.23 14,378.31 12,243.96 840.77 4,614.47 -64% Source: Los Angeles County Department of Parks and Recreation 46 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Don Knabe Golf Center Exhibit 13 shows the Study Area has just 1.1 acres of park-land per 1,000 people, substantially below the County average of 3.3 acres. Given this, the Study Area is defined as having a high need for additional park-land. The percentage of residents living within ½ mile of a park is 47%, just below the County average of 49%. The Don Knabe Golf Center is a small facility occupying only 11 acres. The percentage of land devoted to golf in the Study Area is 9%, with the other 91% devoted to park-land. Exhibit 13 Don Knabe Golf Center Park Need Study Area 149 - City of Norwalk Park Need Category: High Study Area Population 106,629 Within ½ Mile of a Park 47% Park Acres / 1,000 1.1 Golf Acres, Local Park Acres 113.2 11, 9% Golf Acres 11 Park Acres, 113.2, 91% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, M ay 2016 The County assumed control of the Norwalk Golf Center in 2016, renaming the facility Don Knabe Golf Center after a $13 million makeover completed in July 2017. No activity (rounds played) or financial information was provided by the County for the ten-year review.8 8 The Norwalk Patriot, July 18, 2017. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 47 E. Los Angeles City Golf Courses in Study Areas with High or Very High Park Need The City of Los Angeles operates four golf courses located within Study Areas identified as having either a high or very high need for additional park-land. These golf courses are: • Hansen Dam Golf Course (18 Hole Course) • Penmar Golf Course (18 Hole Course) • Rancho Park 18 Hole Golf Course • Rancho Park 9 Hole Golf Course

The City of Los Angeles has golf courses in areas determined to have high or very high need for additional park-land. The trends over the past ten years show a decline in demand for golf at these golf courses. As the following Exhibit 14 shows, the number of golf rounds played at all four of these courses has declined over the past ten years. Total and net revenues have declined for two of these golf courses. Exhibit 14 Overview of City of Los Angeles Golf Courses Change Over 10 Year Period Golf Course in Areas Total Park Need Rounds Total Net with High Park Need Acreage Category Played Revenues Revenues Hansen Dam 169 High (23%) 4% (74%) Penmar 47 Very High (10%) (8%) (98%) Rancho Park (9 Hole) 10 High (21%) (8%) 455% Rancho Park (18 Hole) 115 High (12%) 14% 6% Source: Los Angeles City Department of Recreation and Parks The following sections provide an overview of park need in the Study Areas these golf courses are located in, as well as information on the trends in the level of activity, revenues, and expenditures at each golf course. 48 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Hansen Dam Golf Course Exhibit 15 shows, the Study Area has just 0.6 acres of park-land per 1,000 people, significantly below the County average of 3.3 acres. The Study Area is defined as having a high need for additional park-land. The percentage of residents living within ½ mile of a park is 37%, which is below the County average of 49%. The Hansen Dam Golf Course occupies a total of 169 acres. The percentage of land devoted to golf in the Study Area is high at 73%, with the remaining 27% devoted to park-land. It is important to note that this Study Area also includes 419.6 acres of Regional Park land. Exhibit 15 Hansen Dam Golf Course Park Need Study Area 117 - City of LA Arleta-Pacoima Park Need Category: Very High Study Area Population 105,696 Within ½ Mile of a Park 37% Park Acres / 1,000 0.6 Local Park Acres 61.5 Park Acres, Golf Acres 169 61.5, 27% Golf Note: This Study Area includes 419.6 acres Acres, of Regional Park land. 169, 73% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, M ay 2016 Exhibit 16 shows the number of rounds of golf played has decreased by 23% over the past 8 years. The exhibit also shows total revenues increased by 4% over a seven-year time period, while net revenues decreased substantially by 74%. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 49 Exhibit 16 Hansen Dam Golf Rounds Played Fiscal Year 2009-10 to 2016-17 Fiscal Year Percentage FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Change Rounds Played 81,484 64,992 66,751 63,717 66,952 68,124 65,434 62,404 -23% Hansen Dam Golf Revenue, Expenditure and Net Revenue Trends Fiscal Year 2009-10 to Fiscal Year 2016-17 Fiscal Year Percent FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Change Total Revenues $2,207,431 $2,362,382 $2,400,791 $2,495,616 $2,478,886 $2,397,401 $2,302,645 4% Total Expenditures $1,853,192 $2,084,983 $2,237,328 $2,220,562 $2,311,423 $2,335,185 $2,210,547 19% Net Revenues $354,239 $277,399 $163,463 $275,054 $167,463 $62,216 $92,098 -74% Source: Los Angeles Department of Recreation and Parks 50 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Penmar Golf Course Exhibit 17 shows the Study Area has just 0.9 acres of park-land per 1,000 people, significantly below the County average of 3.3 acres. Given this, the Study Area is defined as having a high need for additional park-land. The percentage of residents living within ½ mile of a park is 78%, which compares favorably to the County average of 49%. The Penmar Golf Course occupies a total of 47 acres. The percentage of land devoted to golf in the Study Area is 59%, with the remaining 41% devoted to park-land. Exhibit 17 Penmar Golf Course Park Need Study Area 106 - City of LA Venice Park Need Category: High Study Area Population 37,309 Within ½ Mile of a Park 78% Park Acres / 1,000 0.9 Park Acres 32.6 Park Acres, Golf Acres 47 Golf Acres, 32.6, 41% 47, 59% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, M ay 2016 Exhibit 18 shows the number of rounds of golf played decreased by 10% over the past 8 years. The exhibit also shows total revenues decreased by 8% over a seven-year time period, while net revenues decreased substantially by 98%. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 51 Exhibit 18 Penmar Golf Rounds Played Fiscal Year 2009-10 to 2016-17 Fiscal Year Percentage FY 09/10 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Change Rounds Played 94,751 91,266 93,742 91,523 90,848 87,361 86,610 85,477 -10% Penmar Golf Revenue, Expenditure and Net Revenue Trends Fiscal Year 2009-10 to 2016-17 $1,600,000 1,337,090 1,324,746 $1,400,000 1,277,912 1,276,073 1,213,665 1,188,139 1,228,645 $1,200,000 1,306,627 1,195,169 1,218,759 1,223,302 $1,000,000 1,106,576 1,026,048 1,015,718 $800,000 $600,000 $400,000 311,042 309,028 171,336 $200,000 18,496 5,343 (30,554) (30,620) $0 FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 -$200,000 Total Revenues Total Expenditures Net Revenues Fiscal Year Percentage FY 10/11 FY 11/12 FY 12/13 FY 13/14 FY 14/15 FY 15/16 FY 16/17 Change Total Revenues $1,337,090 $1,324,746 $1,277,912 $1,276,073 $1,213,665 $1,188,139 $1,228,645 -8% Total Expenditures $1,026,048 $1,015,718 $1,106,576 $1,306,627 $1,195,169 $1,218,759 $1,223,302 19% Net Revenues $311,042 $309,028 $171,336 ($30,554) $18,496 ($30,620) $5,343 -98% Source: Los Angeles Department of Recreation and Parks 52 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Rancho Park Golf Courses (9 Hole and 18 Hole) Exhibit 19 shows the Study Area has just 1 acre of park-land per 1,000 people, significantly below the County average of 3.3 acres. Given this, the Study Area is defined as having a high need for additional park-land. The percentage of residents living within ½ mile of a park is 37%, which is below the County average of 49%. The two Rancho Park Golf Courses occupy a total of 125 acres, 115 for the 18-hole course and 10 for the 9-hole course. The percentage of total land devoted to golf in the Study Area is 67%, with the remaining 33% devoted to park-land. Exhibit 19 Rancho Park Golf Courses (9 Hole and 18 Hole) Park Need Study Area 85 - City of L.A. West Los Angeles Park Need Category: High Study Area Population 80,023 Within ½ Mile of a Park 37% Park Acres / 1,000 1 Local Park Acres 78.6 Park Acres, Total Golf Acres 125 61.5, 33% Rancho Park 18 (115) Rancho Park 9 (10) Golf Acres, 125, 67% Source: Los Angeles Countywide Comprehensive Parks & Recreation Needs Assessment, May 2016 Exhibits 20 shows the number of rounds of golf played at the 18-hole course decreased by 12% over the past eight years, and total revenues decreased by 8% over a seven-year time period, while net revenues increased by 6%. Exhibit 21 shows the number of rounds of golf played at the 9-hole course decreased by 21% over the past eight years, and total revenues decreased by 35% over a seven-year time period, while net revenues increased substantially by 455%. Note: At this facility, net revenues vary greatly from year to year. The net revenue percentage change shown here is a comparison of FY 10/11 and FY 16/17 only. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 53

The Culver City, El Monte, San Fernando and Torrance police departments were not in compliance with the requirement that each police department receiving a citizen complaint release to the complaining party a copy of their own statements at the time the complaint is filed. Exhibit 4 Communication With Complainants Written Appropriate Attempt to Complainant Percent Written Police Department Complaint Complaint Resolve Receives Copy Notification* Procedure* Form Content Prior to Log of Statement* Bell Gardens No Yes Yes Yes 57% Burbank Yes Yes Yes Yes 100% Culver City Yes Yes Yes No 59% El Monte Yes No Yes No 82% Glendale Yes Yes Yes Yes 100% Inglewood Yes Yes No Yes 95% Pasadena Yes Yes Yes Yes 78% Pomona Yes Yes Yes Yes 51% San Fernando No Yes Yes No 8% South Gate Yes No Yes Yes NA Torrance Yes Yes No No 95% West Covina Yes Yes Yes Yes 91% Average % 74% * Required by the Penal Code (832.5, 832.7) Note: Percentage calculations of written notifications within 30 days excludes complaints with investigations pending, complaints generated from within the police department, and complaints with no mailing address, As Exhibit 4 shows, eight of the police departments routinely provided complainants copies of their statement at the time of the complaint. Several of these police departments had complaint forms that were carbonless in triplicate, making it convenient to provide a copy of the completed form to the complainant. Others routinely made copies of the completed complaint form and provided the copy to the complainant. Four police departments did not routinely provide copies of the complainants’ statement as required by the Penal Code. Some of these departments stated they would provide copies, if requested. A standard practice among law enforcement agencies is to send an acknowledgement letter, including a copy of the complainant’s statement, to each person making a complaint. For example, the Los Angeles Sheriff’s Department requires an acknowledgement letter be sent to each complaining party with a copy of their statement within three days of the complaint being received. The policy states: “The letter shall be sent regardless of whether the comment was made in person, by telephone, by electronic means, or by mail.”10 This approach ensures that the Penal Code requirement is met regardless of the method used to make the complaint. Los Angeles Sheriff’s Department Service Comment Report Handbook: Handling Public Complaints 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 19

Most police departments were not in compliance with the requirement to provide written notification to the complaining party of the disposition of the complaint within 30 days of the disposition. California Penal Code Penal Code 832.7(e)(1) requires that each department provide written notification to the complaining party of the disposition of the complaint within 30 days of the disposition. As shown in Exhibit 4, only two police departments (Burbank and Glendale) were in full compliance with the requirement to provide written notification to the complaining party of the disposition of the complaint. Glendale Police Department uses a software program that includes generating a written letter to the complainant once a disposition is determined. The case cannot be closed until that letter is generated. Other police departments stated they provided verbal notifications, or that there was no written notification made. We found that police departments’ compliance with this requirement averaged 74% for the twelve police departments and ranged from 8% to 100%. South Gate Police Department stated that “a letter is sent to the complainant via United States Postal Service (USPS) and is sent certified mail. When the letter is delivered we keep the USPS copy of the signature tag in the file with the complaint.” However, no other documentation was provided such as the date the letter was sent. E. Investigations of Citizen Complaints The California Penal Code (PC832.5) requires each department that employs peace officers shall establish a procedure to investigate complaints by members of the public against the personnel of these departments. As Exhibit 5 shows, all twelve police departments reviewed had policies in place for investigating such complaints. These policies assigned responsibility for conducting investigations to police personnel at appropriate levels. Exhibit 5 Investigation of Police Citizen Complaints Policy for Investigated at Complaints Numbered Complaint Police Department Investigations* Appropriate Level and Logged Tracking Program Bell Gardens Yes Yes Yes Yes Burbank Yes Yes Yes Yes Culver City Yes Yes Yes No El Monte Yes Yes Yes No Glendale Yes Yes Yes Yes Inglewood Yes Yes Yes Yes Pasadena Yes Yes Yes Yes Pomona Yes Yes Yes Yes San Fernando Yes Yes No No South Gate Yes Yes Yes Yes Torrance Yes Yes Yes Yes West Covina Yes Yes Yes No * Required by the Penal Code (832.5, 832.7) 20 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Effective management of citizen complaint investigations includes numbering and logging each complaint to ensure complaints do not get lost, and that appropriate timelines for completing the investigation are monitored.

Some police departments could improve the management of complaint investigations, including numbering and logging, as well as tracking and monitoring of key requirements and milestones. As Exhibit 5 shows, eleven of the police departments numbered and logged each complaint. One police department (San Fernando) did not number and log complaints as they were received. A software program or application can be helpful in managing investigations of citizen complaints to ensure investigations do not get lost, and to provide automatic tracking and reminders of key requirements and milestones in investigations. As Exhibit 5 shows, eight of the police departments used a software program or application to assist in managing and tracking investigations. F. Review, Disposition and Follow Up of Citizen Complaints An effective complaint process includes a review of investigations of complaints at an appropriate level, and a review process in place with some assurance that investigations are thorough, and conclusions are valid and well supported. As Exhibit 6 shows, all twelve police departments had clearly defined responsibilities for the review and approval of investigations of complaints about police. In all cases, the ultimate responsibility was with the Chief of Police.

Findings resulting from investigations of citizen complaints and the use of complaint information to identify potential problems could be improved for some police departments. Law enforcement standards and common practice among law enforcement agencies is that investigations of complaints and allegations against law enforcement personnel result in findings of fact. Law enforcement standards, as established by the Commission on Accreditation for law Enforcement Agencies (CALEA) dictate that these findings be used by the adjudicating officer to reach one of the following determinations:11 Unfounded: Allegation is false or not factual. Exonerated: Incident occurred, but the employee’s actions were lawful, proper and consistent with rules, regulations, policy, or state laws. Not Sustained: Insufficient facts either to prove or disprove the allegation. Sustained: The allegation is found to be substantially true. Generally speaking, the incident occurred and the specifically cited rule(s), regulation(s), or other general or special order(s) were violated by the employee. See appendix #4 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 21 As Exhibit 6 shows, police departments’ compliance with this standard averaged 75% for the twelve police departments and ranged from 22% to 97%. Other dispositions included frivolous, incomplete, none, and other. While some of these may have meaning, they do not preclude reaching one of the determinations outlined in the standards. Exhibit 6 Review, Disposition and Follow Up of Police Citizen Complaints Reviewed at Findings Consistent Used to Identify Maintain Records Police Department Appropriate Level with Standards Potential Problems for Five Years* Bell Gardens Yes 97% Yes Yes Burbank Yes 97% Yes Yes Culver City Yes 94% No Yes El Monte Yes 36% No Yes Glendale Yes 94% No Yes Inglewood Yes 96% Yes Yes Pasadena Yes 89% Yes Yes Pomona Yes 22% Yes Yes San Fernando Yes 45% No No South Gate Yes 78% Yes Yes Torrance Yes 65% Yes Yes West Covina Yes 84% No Yes Average % 75% * Required by the Penal Code (832.5, 832.7) Note: Percentage calculations of complaints with findings consistent with standards excludes complaints with investigations pending, complaints referred to other law enforcement agencies, service complaints, and complaints with no allegations of wrongdoing. 22 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT Exhibit 7 shows the number and percentage of complaints by disposition for each of the twelve police departments over the past five years. Exhibit 7 Number and Percentage of Complaints by Disposition Past Five Years (2013 to 2017) Police Unfounded Exonerated Not Sustained Sustained Other Department Number Percent Number Percent Number Percent Number Percent Number Percent Bell Gardens 31 86.1% 1 2.8% 2 5.6% 1 2.8% 1 2.8% Burbank 275 38.2% 131 18.2% 79 11.0% 212 29.4% 23 3.2% Culver City 48 31.4% 33 21.6% 22 14.4% 41 26.8% 9 5.9% El Monte 6 10.9% 2 3.6% 9 16.4% 3 5.5% 35 63.6% Glendale 238 63.5% 73 19.5% 10 2.7% 32 8.5% 22 5.9% Inglewood 34 21.1% 21 13.0% 76 47.2% 24 14.9% 6 3.7% Pasadena 41 19.3% 16 7.5% 10 4.7% 121 57.1% 24 11.3% Pomona 18 9.6% 2 1.1% 11 5.9% 10 5.3% 146 78.1% San Fernando 7 35.0% 0 0% 1 5.0% 1 5.0% 11 55.0% South Gate 11 23.9% 15 32.6% 3 6.5% 7 15.2% 10 21.7% Torrance 17 12.1% 43 30.5% 10 7.1% 22 15.6% 49 34.8% West Covina 12 37.5% 1 3.1% 10 31.3% 4 12.5% 5 15.6% Averages 738 34.5% 338 15.8% 243 11.4% 478 22.4% 341 15.9% Note: Numbers and percentages excludes complaints with investigations pending, complaints referred to other law enforcement agencies, service complaints, and complaints with no allegations of wrongdoing. A key purpose for receiving and investigating complaints is to identify law enforcement personnel that frequently or habitually engage in inappropriate behavior. Even if the results of investigations are inconclusive, tracking complaints can provide an “early warning” system to identify and take corrective actions to improve employee conduct. Identifying and mitigating behaviors before they become career limiting or ending for the employee or creating liability for the agency is in the best interest of both the law enforcement agency and its personnel. An “early warning” corrective action program should include two functions – monitoring and corrective action. Part of this program should be an early intervention program designed to enhance an employee’s professional performance through guidance and supervision. Employees are identified as candidates and become part of the program when it is determined that a specific employee may benefit from such a structured intervention plan. As Exhibit 6 shows, seven of the police departments had a formal program to use the complaint information to identify potential problems or as an “early warning” system. Most of these stated that this function was part of the program or software they used to track complaint investigations. Five of the police departments did not have such an “early warning” system. Several of them stated that their police departments were small, and supervisors and managers were able to maintain awareness of potential problems without a formal program or approach. 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT 23

The San Fernando Police Department was not in compliance with the requirement that records related to citizen complaints be maintained by the police department for a period of five years. The California Penal Code 832.5(b) requires that records related to citizen complaints regarding police be maintained by the police department for a period of five years. As Exhibit 6 shows, eleven of the police departments had records covering the past five years and were able to provide information on complaints for that period. One police department (San Fernando) was only able to provide information on citizen complaints for the past three years. 24 2017-2018 LOS ANGELES COUNTY CIVIL GRAND JURY FINAL REPORT