Glenn County Board of Supervisors Thomas J. Arnold, Chairman

… there were many miscommunications and mis-

… that according to City of Willows Municipal

…with LUCAS being so beneficial, it R3. …that smaller rural fire departments obtain would be imperative for each rural fire de- at least one LUCAS device to aid in medical partment to have a minimum of one LUCAS CPR emergencies by October 2023. machine on site.

… that many Glenn County residents are R4. …that the OES develop a system to better not aware or have not registered for the inform the public of CodeRed and to provide CodeRed Alert to be sent to their cell phones. additional visual information for public aware- ness by October 2023.

… that not all SCBA masks can be used R5. …that the fire departments (Willows and with all air tanks. Orland) insure all SCBA masks have compati- bility with the proper air tanks by October 2023.

… that Westside Ambulance is seeking R6. … that Westside Ambulance needs to find a to acquire a new box-type ambulance. way to fund a new box-type ambulance. (Op- tional to respond)

…that Westside Ambulances in use now R7. … that all ambulances install a GPS system have no GPS on board. Paramedics must use (Optional to respond). their own cell phones to locate the addresses of emergencies.

…that a Radio person is needed. R8. … that each department or station appoint a “Radio” technician to manage and check the ra- dios when not in use. GLENN COUNTY CIVIL GRAND JURY | EMS P AG E | 37 2022-2023 Glenn County Civil Grand Jury Report | EMS REQUEST FOR RESPONSES Pursuant to Penal Code section 933.05, the grand jury requests responses as follows: From the following individuals: ▪ OES – F4 an R4 ▪ Willows Fire Department–F2 and R2; R3 and F3; F5 and R5; ▪ Orland Fire Department–F2 and R2; F5 and R5 From the following governing bodies: ▪ Board of Supervisors– R1; R4 ▪ Willows City Council– F1 and R1; R5 and F5; ▪ Orland City Council–F1 and R1; R5 and F5; Invited responses Individuals listed are invited to respond to the findings and recommendations (by number). ▪ Enloe Hospital Ambulance – R6; R7 ▪ Westside Ambulance–R6; R7 COMMENDATIONS The Glenn County Civil Grand Jury committee commends the Emergency Medical personnel and management for their cooperation. Also, we would like to commend them for performing their duties for the county with the resources given them. Reports issued by the Grand Jury do not identify the individuals interviewed. Penal Code sec- tion 929 requires that reports of the Grand Jury not contain the name of any person or facts leading to the identity of any person who provides information to the Grand Jury. DISCLAIMER: There were not any Grand Jury Members recused from this investigation. P AG E | 38 GLENN COUNTY CIVIL GRAND JURY |EMS 2022-2023 Glenn County Civil Grand Jury Report |EMS Attachment 1: 2022 Glenn County 911 Response Report Attachment 2: Ground Ambulance 911 Mutual Aid Responses GLENN COUNTY CIVIL GRAND JURY | EMS P AG E | 39 2022-2023 Glenn County Civil Grand Jury Report | EMS Attachment 3: Orland Volunteer Fire Department Incident Count per Primary action Taken for Date January 01, 2022, Ending December 12, 2022 P AG E | 40 GLENN COUNTY CIVIL GRAND JURY | EMS 2022-2023 Glenn County Civil Grand Jury Report |EMS Attachment 4: Orland Volunteer Fire Truck Replacement Schedule GLENN COUNTY CIVIL GRAND JURY | EMS P AG E | 41 2022-2023 Glenn County Civil Grand Jury Report |EMS Attachment 5: City of Orland Budget-Measure A Public Safety Fund Budget P AG E | 42 GLENN COUNTY CIVIL GRAND JURY | EMS 2022-2023 Glenn County Civil Grand Jury Report |EMS Attachment 6: City of Willows Fiscal Year 2022-2023 GLENN COUNTY CIVIL GRAND JURY | EMS P AG E | 43 2022-2023 Glenn County Civil Grand Jury Report |EMS Attachment 7: City of Orland P AG E | 44 GLENN COUNTY CIVIL GRAND JURY | EMS 2022-2023 Glenn County Civil Grand Jury Report | PUBLIC WORKS - ROADS June 2023 Public Works With an Emphasis on County Roads GLENN COUNTY CIVIL GRAND JURY | PUBLIC WORKS ROADS PAGE | 45 2022-2023 Glenn County Civil Grand Jury Report | PUBLIC WORKS — ROADS Public Works – Roads SUMMARY In Glenn County there are approximately 861 miles of County roads and approximately 200 bridges, drainage, and related transportation facilities that are maintained by the Public Works Road and Bridge Maintenance Department. There are multiple factors that affect the conditions of roads and bridges in Glenn County. The investigation concentrated on how roads are main- tained and how the Department determines the priority on which roads are scheduled for maintenance. The in- vestigation also included where and how the mainte- nance, equipment, and operations are funded. The Road Department is responsible for the planning, de- signing, funding, building, operating, and maintenance of Glenn County’s Road system. The residents of Glenn County should be aware of these operations. GLOSSARY AGGREGATE: a granular material of mineral composition such as sand, gravel, shell, slag, or crushed stone CHIP SEAL: A two-step process for surfacing roads EV: Electric Vehicle HUTA: Highway Users Tax Account NCE – Nichols Consulting Engineers PCI: Pavement Condition Index, How Pavement Condition is Measured PURPOSE The purpose of the investigation was to bring public awareness to the operations of the Public Works Road and Bridge Maintenance Department. The Public is often unaware of the actual costs, funding, and operations of road and bridge maintenance in Glenn County. There is an assumption that Glenn County Public Works is responsible for all roads and bridges in the County, but cities such as, Willows and Orland maintain their roads within their city’s limits, and Caltrans is respon- sible for highway overpasses and on/off ramps. It is also assumed that local taxes fund the depart- ment, quite the contrary, funding comes from multiple sources such as the Highway Users Tax Account, Grants, and Federal funding such as the Cares Act. P AG E | 46 GLENN COUNTY CIVIL GRAND JURY | PUBLIC WORKS —ROADS 2017-2018 Glenn County Civil Grand Jury Report | PUBLIC WORKS-ROADS BACKGROUND Glenn County has been adversely affected by recent drought conditions and more recently unprec- edented rain and flooding. Residents need to be able to count on our roads to be safe and accessible. The residents of Glenn County should be aware of the operations and functions of the Public Works Road Department. Public Works Department must follow new Policies and Legislation in regard to how roads are maintained and funded. Future plans include implementing Electric Vehicles (EV) which are not limited to trucks but includes equipment as well, this will require skilled em- ployees. New vehicles such as EV’s will need to be integrated into the existing infrastructure of the Department. Glenn County needs to attract skilled workers with affordable wages and benefits. Currently there is a shortage of elementary and trained employees working for the road department. These are just some of the factors that affect road maintenance and repair in Glenn County. METHODOLOGY Interviewed the Director and Deputy Director of the Glenn County Public Works Department. Reviewed and discussed informational material provided by Glenn County Public Works. Reviewed previous Grand Jury Reports regarding Public Works and Roads. Reviewed the County of Glenn website for the Web Pages specific to Glenn County Public Works. Committee members visited road sites. DISCUSSION The Road Department is responsible for the planning, designing, funding, building, operating, and maintaining the county road system, of approximately 861.214 centerline miles of roadway, 170 bridges, drainage, and related transportation facilities. According to the Pavement Management Program Update 2021 Final Report prepared by Nichols Consulting Engineering (NCE) & Envi- ronmental Services, the County needs to spend $352 million over the next ten years to bring the 673.2 centerline miles of paved roads to a condition that can be maintained with on-going preven- tative maintenance in the most cost-effective way. From 2012-2017 roads were funded with the Highway Users Tax Account (HUTA), however, for years the state tax did not fully cover manda- tory maintenance. Pavement management and improvement projects were completed with state and federal grant funds. PAVEMENT MANAGEMENT PROGRAM Pavement Management is a proactive approach to prolonging the life of a road, while also lowering the long-term cost of maintaining it. Pavement Management entails applying less expensive treat- ments to roads that are still in moderately good condition, rather than applying more costly treat- ments to roads in poor condition. By applying less expensive and less disruptive treatments before GLENN COUNTY CIVIL GRAND JURY | PUBLIC WORKS — ROADS P AG E | 47 2022-2023 Glenn County Civil Grand Jury Report | PUBLIC WORKS — ROADS significant damage occurs, pavement preservation maximizes limited resources by avoiding the necessity for the more costly repairs. There are four benefits to maintain road preservation, (1) Less expensive over the long-term; (2) Improves roads on a system-wide basis; (3) Sustained high-level ride quality; (4) Less intrusion of time spent on road work when treatments are done. PAVEMENT CONDITION and PAYMENT CONDITION INDEX Pavement Condition is quantified using the Pavement Condition Index (PCI), which ranges from 100 (best) to 0 (worst). Pavement condition is affected by the environment, traffic loads and vol- umes, construction materials and age. The PCI scale is divided into four general condition catego- ries. Pavements in: Good - condition have a PCI above 70 Fair – condition have a PCI between 50 and 69 Poor – condition have a PCI between 25 and 49 Failed – condition have a PCI below 25 The County’s pavement network is currently in “Fair” condition with an average pavement condi- tion index (PCI) of 51. Approximately 20.9 percent of the network is in “Good” condition and 53.1 percent is in “Poor” or “Failed" condition. SELECTION PROCESS. Public Works is responsible for maintaining about 861 miles of roads excluding cities in Glenn County, which means that funding for road improvement must be spent with cost-effectiveness in P AG E | 48 GLENN COUNTY CIVIL GRAND JURY | PUBLIC WORKS —ROADS 2017-2018 Glenn County Civil Grand Jury Report | PUBLIC WORKS-ROADS mind. A list of roads to be resurfaced is developed every year, during the following year’s Pave- ment Management cycle. The selection process takes multiple criteria into consideration, including pavement condition, type and amount of usage, design characteristics, as well as geographic dis- tribution of projects. USAGE AND FUNCTIONALITY The way a road is used, and the extent that it is used, are the primary factors in determining the function of a road. This is measured using traffic volume, and factors such as connectivity between communities, vital routes to the local economy, connectivity for transit and bicycle routes and usage for emergency services. DESIGN CHARACTERISTICS The way a road is designed determines the cost of treating it. Characteristics that are considered include road width, the structural foundation, type of surface material (asphalt, concrete, gravel, etc.) TREATMENT TECHNIQUES Chip Seal Program As part of the County’s pavement manage- ment program, Public Works annually chip seals some of the asphalt roads in the unin- corporated area. A chip seal is a two-step process that includes first an application of asphalt emulsion and then a layer of crushed rock to an existing as- phalt pavement surface. A chip seal gets its name from the “chips” or small crushed rock placed on the surface. Chip seals are placed under one of three scenarios, as a “wearing course” meaning vehicles drive directly upon it; as part of a ‘cape seal’ meaning a chip seal is first placed, then covered by slurry seal or micro surfacing; or as an ‘interlayer’ meaning a layer between underlying asphalt pavement and a new asphalt or rubberized asphalt sur- face. As asphalt pavement is subjected to traf- fic, loads, and age, it oxidizes, becomes more brittle and cracking develops in the pavement GLENN COUNTY CIVIL GRAND JURY | PUBLIC WORKS — ROADS P AG E | 49 2022-2023 Glenn County Civil Grand Jury Report | PUBLIC WORKS — ROADS structure. A chip seal serves to seal the narrow cracks, help bind together cracked pavement, pro- vide a wearing (driving) surface, and protects the underlying pavement structure. Chip seals used as interlayers serve to retard reflective cracking which develops from the bottom of the pavement structure towards the top. Chip seal is a highly cost-effective way to maintain, protect and extend the life of an asphalt road. The Public Works Department first implemented the chip seal program in the 2018-2019 fiscal year and each year chip seals an average of 47 miles. By self-performing the chip seal, the cost is about $39,000 per mile versus an overlay cost of about $100,000 per mile. FOG SEAL PROGRAM As part of the County’s pavement management program, Public Works annually fog seals some of the asphalt roads in the unincorporated area. A fog seal is an application of a specially formulated asphalt emulsion (a thin liquid oil) to an existing asphalt pavement surface. A fog seal gets its name from its spray application, sometimes referred to as “fogging”. As asphalt pavement is subjected to traffic loads and ages, it oxidizes, and cracks develop in the surface due in part to the pavement becoming more brittle. Oxidation is one of the reasons asphalt concrete pavement fades in color from the deep rich black color every- one remembers from when the road was constructed or last resurfaced. Fog seal applications serve to seal narrow cracks, slightly restore lost flexibility to the pavement surface, provide a deep rich black pavement surface color, and most importantly help preserve the underlying pavement struc- ture. Since 2019, the Agency fog seal total project cost is $450,487.95. POTHOLE PATCHING In the winter months, the pavement is cooler and less flexible, which makes it more susceptible to cracking. Add rain, and this is why there seems to be more problems with potholes in the winter, however, potholes are a year-round problem. County maintenance crews repair potholes on a con- tinual basis. The repair is usually only considered temporary until a more complete resurfacing can be performed when funds become available. CRACK SEALING Crack sealing is one of the most economical pavement maintenance operations for minimizing pavement distress. Pavement cracks allow moisture to seep into the underlying base material. As this material be- comes saturated, support for the overlying pavement is reduced. If significant traffic loads pass over the saturated area, the area will sink, and a pothole is likely to form. In colder climates, the water will freeze and expand and actually push up the pavement. Crack sealing helps to prevent these problems by prohibiting surface water from seeping into the base material beneath the pave- ment. P AG E | 50 GLENN COUNTY CIVIL GRAND JURY | PUBLIC WORKS —ROADS 2017-2018 Glenn County Civil Grand Jury Report | PUBLIC WORKS-ROADS GRAVEL ROADS The County has 188 miles of gravel/dirt roads. General maintenance consists of routine blading and adding gravel as needed. Blading helps to preserve the shape of the road, smooth down any surface irregularities and recover material back to the road surface. The addition of gravel increases the stability of the road. General maintenance is performed all year round to help prevent wash- boarding, ruts, potholes, loss of aggregate and most importantly, to maintain a safe road for mo- torists. COSTS According to the Pavement Management Program Update 2021 Final Report prepared by NCE Engi- neering & Environmental Services, the County needs to spend $352 million over the next ten years to bring the 673.2 centerline miles of paved roads to a condi- tion that can be maintained with on-going preventa- tive maintenance in the most cost-effective way. From 2012-2017 roads were funded with the High- way Users Tax Account (HUTA). However, for years the state tax did not fully cover mandatory maintenance. The pavement management and im- provement projects that were completed were done with state and federal grant funds. ENGINEERING DEPARTMENT The primary responsibility of the Engineering Division is the design and construction oversight of the County’s infrastructure, including roads, storm drain system, bridges, and crossings and trans- portation/traffic systems. The Engineering Division is also responsible for the review, coordination and permitting of private and utility activities in the public rights of way. ROAD DEPARTMENT The Road Department is responsible for the planning, designing, funding, building, operating, and maintaining the County Road system. This includes 861.214 centerline miles of roadway, 170 bridges, drainage, and related transportation facilities. PUBLIC WORKS INTERNAL SERVICE FUND The Public Works Internal Service Fund includes Administrative and Fiscal Staff that provide support to Roads, Solid Waste, Orland Haigh Field & Willows Glenn County Airports, Surveyor, and Flood Control divisions, in addition to several independent commissions and service districts. GLENN COUNTY CIVIL GRAND JURY | PUBLIC WORKS — ROADS P AG E | 51 2022-2023 Glenn County Civil Grand Jury Report | PUBLIC WORKS — ROADS Costs are accumulated and charged to the various Public Works Agency units based on time sheet records, indirect costs are allocated based on the number of employees per function, relative budget size, direct costs of actual charges and time sheet information. FINDINGS AND RECOMMENDATIONS The Civil Grand Jury found that… The Civil Grand Jury recommends…