San Francisco County Grand Jury
2003-2004
From the annual report
The consolidated year-end volume. The individual investigations it contains are listed separately below.
📑 Year-End Report
The full consolidated volume; individual reports are listed below.
Individual reports (14)
Findings & Recommendations
8 findings
F1:
THE MERGER OF THE DEPARTMENT OF PUBLIC HEALTH’S EMERGENCY MEDICAL SERVICES AND THE FIRE DEPARTMENT DID NOT SUFFICIENTLY SPECIFY MEASURES OF SUCCESS AND COMPLETION OF THE MERGER
F2:
The Merger of Emergency Medical Services Into the Fire Department Is Impeded by Local 798 and Cultural Differences in the Two Services
F3:
The Fire Department Allocates the Majority of Its Budget to Fire Suppression Although the Workload Is a Fraction of the Use of Its Resources
F4:
The Fire Department Needs to Address Problems in Recruitment, Retention, Cross-Training, and Staff for EMS
F5:
The Fire Department Has Not Dealt With Harassment of Firefighter/Paramedics and Integrated EMS and Fire Suppression in any Meaningful Way.
F6:
The Fire Department Should Improve the Training of Its Officers
F7:
The Fire Department Has Been Slow in Giving Promotional Examinations
F8:
The Fire Department Has Not Adequately Dealt With On-Duty Alcohol Drinking and Substance Abuse
Additional Recommendations
34
Not linked to specific findings.
R1:
Provide the Bayview Hunters Point District With Neighborhood Schools SFUSD should provide the Bayview Hunters Point district with neighborhood schools commensurate to its population of eligible local students. Response Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 This recommendation does not acknowledge the existence of the SFUSD student assignment system mandated by Consent Decree, which provides students with the right to select schools from any neighborhood within the District. Therefore, students are not limited to available seats in the schools within their own neighborhood. This student assignment system may only be changed by agreement of the parties or by an order of the Court. Currently, there is adequate capacity within the schools in BVHP for students who opt to attend those schools. The SFUSD Master Facilities Plan provides objective criteria for planning educational facilities to meet the changing needs of the community, and to provide options in allocating facility resources to achieve the district’s goals and objectives. The Master Plan includes a capacity study for the District, and included the following conclusion: “The 10-year enrollment projections, in 135 conjunction with the Capacity Study, forecast excess capacity at San Francisco Unified School District’s school facilities of nearly 7,600 seats, or more than 12%, on a district-wide basis for the time frame addressed in this Master Plan.” As of August 25, 2004, there remained 363 open spaces across all grades in K-12 schools located in the 94124 zip code area. Only 6 of the 35 grades offered in the 94124 zip code area are at capacity. However, in order to maximize the quality of the schools located within the BVHP area, SFUSD has initiated the Dream Schools Initiative, and has participated in the STAR Intervention Program and the Secondary School Redesign Initiative. Dream Schools The first three Dream Schools are all located in Bayview/Hunters Point. These schools will provide a pre-kindergarten to grade 12 continuum housed on three campuses: Charles Drew, Twenty-First Century, and Gloria R. Davis. The pre-kindergarten to third grade campus at Charles Drew will be focused on early learning and literacy. The fourth to sixth grade campus at Twenty-first Century will focus on academic development in the upper elementary and middle grades, and the seventh to 12th grade campus at Gloria R. Davis will be focused on academic attainment and college and career preparation. These Dream Schools will be based in part on the Frederick Douglass Academy in Central Harlem, New York started by Dr. Lorraine Monroe. Each of the Dream Schools will incorporate seven core components: (1) Academic Achievement, (2) Varied Learning Opportunities, (3) Parent Empowerment and Support, (4) Alternate Learning Models, (5) College Connections, (6) Career Preparation, and (7) Safe and Friendly Learning Environments. In particular, each of these Dream Schools will provide additional assistance and resources to students and parents to improve academic achievement and transform previously under- performing schools into models for other schools in the District. For example, these Dream Schools will use a longer school day, which will run approximately from 8 a.m. to 5 p.m., and will incorporate after-school tutoring and enrichment programs to help students who need mentoring in particular areas and to provide different kinds of learning experiences to students and families who might not otherwise have them. A wide range of extracurricular activities – including several kinds of dance, drama, employment development, chorus, and sports – will be offered to students attending these Dream Schools at all grade levels. In addition, these Dream Schools will offer various personal development programs, including through partnerships with community organizations such as the Career Resource Development Center, Enterprise for High School Students, Job Corps, and others, to assist students with career and college planning. These Dream Schools will provide students experiential learning opportunities as well – such as internships, job shadowing, and other off-site programs. Each of these Dream Schools also will provide additional resources and activities to encourage parental involvement and build parents’ capacity to support student learning. For example, the pre-kindergarten curriculum at Charles Drew will be delivered through home visits and group 136 meetings that facilitate parent education and development. Parents will be trained by means of sample activities and role-playing, and will be paid to deliver services to other parents through weekly home visits or group meetings. In addition, these schools will offer Saturday sessions that will include family programs that emphasize parental empowerment to permit parents to participate actively in their child’s education. Parents at these Dream Schools may also be able to participate in General Educational Development (“GED”) test preparation, computer training, job skills and employment search skills programs. Faculty members and other administrators at these Dream Schools will be held to the highest standards. For example, all faculty members will be required to participate in designated development activities, including the “Dream School Institute” and an intensive academic professional development training program. Each faculty member also will be expected to sponsor or supervise an after-school activity, communicate with parents extensively, including through at least two parent conferences per year, and participate in schoolwide and community activities. STAR Intervention Program The central goal of the STAR Intervention Program is to increase student achievement at currently underperforming schools. SFUSD provides three categories of targeted interventions – site personnel, District support, and additional resources – to improve student achievement. Each school in the STAR program receives additional site personnel, including an instructional reform facilitator, parent liaison, and volunteer tutors/mentors, to support instructional improvement. In addition, the STAR program provides additional resources to establish new parent centers at each school, transportation services to increase the accessibility of after-school programs, and extended learning packets for distribution to parents and families. Several BVHP schools have participated in the STAR Initiative, including schools such as Charles Drew Elementary, 21st Century Elementary, Hillcrest Elementary, Malcolm X Elementary, Gloria R. Davis Middle School, Martin Luther King Middle School, and Thurgood Marshall Academic High School. Secondary School Resdesign Initiative Finally, Gloria R. Davis has been selected to be part of the Secondary School Redesign Initiative next year, which utilizes funding from the Bill and Melinda Gates Foundation in order to provide small, personalized learning communities, rigorous academic curriculum, opportunities for applied learning, and access to qualified teachers. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 As noted in the District’s original response, the recommendation does not acknowledge the existence of the SFUSD student assignment system mandated by Consent Decree, which provides students with the right to select schools from any neighborhood within the District. Therefore, students are not limited to available seats in the schools within their own neighborhood. This student assignment system may only be changed by agreement of the parties or by an order of the Court. Currently, there is adequate capacity within the schools in BVHP for students who opt to attend those schools. The District continues to be subject to the Consent Decree. The District continues to provide additional support and resources to the Bayview Hunters Point community through the provision of Dream Schools, the STAR Initiative and the Secondary 137 School Redesign Initiative, as described in the original response. Despite severe budget limitations, the District has offered summer school for all elementary students in BVHP Dream Schools, while elementary schools in the rest of the city only had the option to provide summer school for the 5th grade.
R1a:
The Fire Department and the Department of Public Health Should Establish Criteria for Measuring Success of the Merger SFFD and DPH should establish specific criteria for measuring the success of the merger. They should determine the steps necessary to complete the merger. Steps to be taken and the establishment of timelines should be delineated and agreed upon as soon as possible. Responses Tania Bauer Commission Secretary San Francisco Fire Commission August 12, 2004 Agree. The Commission agrees with this recommendation to the extent that it suggests the establishment of specific criteria for measuring the success of the Department’s provision of Emergency Medical Services. This recommendation will be implemented, understanding that the Commission views the merger as having already been “completed”, but with the view that goals and timelines for further improvement should be established and articulated and accomplishment of these goals measured. Joanne Hayes-White Chief of Department Fire Department August 23, 2004 Disagree in part. The Department and this Administration see the ‘merger’ as being complete. However, as the Department moves forward, it constantly searches for more efficient mechanisms to deliver its critical services. Mitchell H. Katz, MD Director of Health Department of Public Health August 24, 2004 Agree. In retrospect, I wish that we had set specific criteria for measuring the success of the merger in the Phase II document. Although we did not do this, I am nonetheless pleased with the successes that we have achieved: 1. Shorter response times to both life-threatening medical emergencies and to urgent calls. 2. Increased number of ambulances on San Francisco streets. 3. Single communication system for coordinating actions during emergencies. 4. Single chain of command for swift response during emergencies. Although we cannot go backward, I agree with the recommendation that we set goals and timelines for improvements to the current system. I will meet with the Chief of the Fire Department to set up goals and timelines as soon as possible. Edward A. Chow, MD President San Francisco Health Commission August 27, 2004 Agree. The Health Commission held extensive hearings on the Health Department, the Fire Department, and the EMS reconfiguration at the time of the merger. We have been monitoring performance of the EMS System including the number of ambulances on the street, the presence of ALS trained personnel on the Fire engine, and the response time. We will work with the Fire Commission to establish new criteria for measuring the success of fire based EMS. Mitchell H. Katz, MD Director of Health Department of Public Health June 24, 2005 Agree. Although we did not set specific criteria during the merger, I am pleased with the successes that we have achieved: 1) Shorter response times to both life-threatening medical emergencies and to urgent calls. 2) Increased number of ambulances on San Francisco streets. 3) Single communication system for coordinating actions during emergencies. 4) Single chain of command for swift response during emergencies. I met with the Fire Department during the Fall of 2004 to jointly modify the EMS configuration plan based on the successes and limitations of the existing model and the recommendations of a stake holders process. The Health Commission held two hearings on the new configuration, the basic elements of which are: • Establishment of 42 ALS engine companies (from 21). • Dynamic deployment of ambulances with higher number of ambulances at peak times. • Use of dedicated paramedics and dedicated EMTs to staff ambulances. The Commission approved the Reconfiguration Proposal for Emergency Medical Services in the Fire Department at its meeting October 26, 2004. Lee Ann Monfredini President San Francisco Health Commission June 28, 2005 Agree. Although specific criteria was not set during the merger, the Health Commission is pleased with the successes that has been achieved: 1. Shorter response times to both life-threatening medical emergencies and to urgent calls. 2. Increased number of ambulances on San Francisco streets. 3. Single communication system for coordinating actions during emergencies. 4. Single chain of command for swift response during emergencies. Dr. Katz, who reports to the Health Commission, met with the Fire Department during the Fall of 2004 to jointly modify the EMS configuration plan based on the successes and limitations of the existing model and the recommendations of a stake holders process. The Health Commission held two hearings on the new configuration, the basic elements of which are: • Establishment of 42 ALS engine companies (from 21). • Dynamic deployment of ambulances with higher number of ambulances at peak times. • Use of dedicated paramedics and dedicated EMTs to staff ambulances The Commission approved the Reconfiguration Proposal for Emergency Medical Services in the Fire Department at its October 26, 2004 meeting. Paul Conroy President San Francisco Fire Commission July 15, 2005 Reference is made to the attached Fire Commission Resolution 05-4, which provides that the EMS Reconfiguration is to be measured as follows: [The resolution is not attached as part of this report. Please contact the commission for a copy of the document.] “Success of the reconfiguration will be monitored and reported on a continual basis and measured by the following factors: maintenance or improvement of current patient outcomes; maintenance or improvement of current response times; achievement of uniform response times among the City’s battalion districts; compliance with accepted and applicable standards for the provision of pre-hospital emergency care; compliance with EMSEO Section and Department agreed upon standards and Continuous Quality Improvement guidelines; reduction in the current level of fatigue experienced by EMS responders and transporters; fiscal accountability; and the effect on the ability of the Department to provide a balanced response to all types of emergencies; “The Chief of Department shall report to the Commission on a quarterly basis, or more often as circumstances warrant, on the progress and success of the reconfiguration, and shall make recommendations to the Commission concerning any proposed changes to the hiring and deployment schedule outlined above;” It should be noted that the EMS Reconfiguration is at the beginning stages, with no new personnel or apparatus deployed as yet. It is anticipated that the first new ten hour shift Paramedic/EMT ambulances will be deployed in January 2006. The Fire Commission continues to receive regular reports from the Chief of Department and her administration concerning the Department’s provision of EMS services, including response times, quality of service, significant events and the progress of the EMS Reconfiguration. Joanne Hayes-White Chief of Department Fire Department August 1, 2005 STATUS AS OF JUNE 2005: Portions of the recommendation have been implemented 15 The Department has worked collaboratively with the Department of Public Health (DPH) and has identified criteria for ongoing assessment of the delivery of Emergency Medical Service (EMS). The Department reasserts its position that the merger is, in many respects, an unparalleled success. The merger is in fact complete; the Fire Department has become wholly responsible for the delivery of pre-hospital care in the City and County of San Francisco. How that service is delivered are operational details of that merger, not its essence. The merger resulted in rapid Paramedic level Advanced Life Support (ALS) becoming available faster to more of our residents and visitors. Emergency medical systems are fluid and dynamic by their nature. As such, our EMS delivery is constantly evolving to meet the needs of the population served including the incorporation of updated technology. Therefore, it is inherently impractical and counter-productive to make efforts to assess the “success” or “completeness” of a merger which has already occurred. It is far more important for an EMS provider to identify and develop criteria that can be used to measure progress and success on an ongoing basis. In retrospect, the absence of ongoing performance evaluation was a glaring omission from the 1996-97 Phase I and II plans. The Department has, in partnership with the Department of Public Health Emergency Medical Services Agency, a number of indices to measure the success of its EMS system. These criteria are used on a daily and monthly basis by Department upper management to facilitate performance review and provided to the public on a monthly basis at both the Fire Commission and the Mayor’s SFStat meetings. These criteria will be used to monitor and prevent degradation in the level of Emergency Medical Service as the Department moves into the implementation phase of its EMS reconfiguration.
R1b:
The Fire Chief and Fire Commission Should Be Accountable for Achieving Success for the Merger Once criteria and timelines are established, the Chief and the Fire Commission should be held accountable by the Mayor for achieving them. Responses Tania Bauer Commission Secretary San Francisco Fire Commission August 12, 2004 Agree, as noted in 1a, above. The Commission is accountable to the Mayor and agrees that it should be accountable for all goals established for the Fire Department. Joanne Hayes-White Chief of Department Fire Department August 23, 2004 Disagree. See Recommendation 1a. Mitchell H. Katz, MD Director of Health Department of Public Health August 24, 2004 Agree. Edward A. Chow, MD President San Francisco Health Commission August 27, 2004 Agree. Mitchell H. Katz, MD Director of Health Department of Public Health June 24, 2005 Agree. The Fire Department now submits a quarterly report with specific indicators to the Health Commission on the progress of the new configuration. Lee Ann Monfredini President San Francisco Health Commission June 28, 2005 Agree. The Fire Department now submits a quarterly report with specific indicators to the Health Commission on the progress of the new configuration. Paul Conroy President San Francisco Fire Commission July 15, 2005 The Commission continues to agree that it should be accountable for all goals established for the Fire Department, and remains accountable for such.
R1c:
The Mayor Should Appoint a Health Professional to the Fire Commission The Mayor should appoint a health professional, preferably one with Emergency Medical Services experience, to the Fire Commission. Responses Tania Bauer Commission Secretary San Francisco Fire Commission August 12, 2004 The Mayor appoints Commissioners, pursuant to the San Francisco Charter, Sections 3.100 and 4.108, and, therefore, the Commission cannot implement this recommendation. Joanne Hayes-White Chief of Department Fire Department August 23, 2004 Sections 3.100 and 4.108 of the San Francisco City Charter confer exclusive Commission appointment privileges to the Mayor of the City and County. The Department would welcome the opportunity to work with the Mayor’s Office to realize this recommendation. Mitchell H. Katz, MD Director of Health Department of Public Health August 24, 2004 Not applicable to the Health Department. Edward A. Chow, MD President San Francisco Health Commission August 27, 2004 Not applicable to the Health Commission. Mitchell H. Katz, MD Director of Health Department of Public Health June 24, 2005 Not applicable to the Health Department. Lee Ann Monfredini President San Francisco Health Commission June 28, 2005 Not applicable to the Health Department. Joanne Hayes-White Chief of Department Fire Department August 1, 2005 STATUS AS OF JUNE 2005: The recommendation has been implemented Since the Civil Grand Jury issued this recommendation, Dr. Douglas Goldman was appointed to the Fire Commission. Dr. Goldman was a non-practicing, board certified emergency physician. Appointed in October 2004, Dr. Goldman’s tenure ended when he resigned from the Fire Commission in May 2005.
R1d:
The Fire Commission and the Health Commission Should Meet Jointly at Least Quarterly The Fire and Health Commissions should meet jointly at least quarterly for better oversight of SFFD EMS. Responses Tania Bauer Commission Secretary San Francisco Fire Commission August 12, 2004 The Commission disagrees with this recommendation. Medical oversight is provided by: The Department of Public Health Director; the Director of the San Francisco County Emergency Medical Services Agency (EMSA); the Department’s two Medical Directors, all in communication with one another. The Department’s Medical Directors and the EMS Division Chief and the EMS Operations Chief report to the Chief of Department and through her, report directly to the Fire Commission at regularly scheduled Commission meetings. Individual Commissioners recommended in November, 2003 that greater communication occur between the Chief of Department and the EMSA Director. There has been significant improvement in this area since the inception of Chief Hayes-White’s administration, to the benefit of the Department’s provision of EMS services. The Commission believes that there may be occasions in the future when both the Fire Commission and the Public Health Commission would find it beneficial to meet jointly with respect to specific policies or procedures, as appropriate. Joanne Hayes-White Chief of Department Fire Department August 23, 2004 Both Commissions receive regular updates and reports. The Chief and the Director of Public Health meet regularly to discuss any issue that might impact the provision of EMS in San Francisco. Mitchell H. Katz, MD Director of Health Department of Public Health August 24, 2004 Agree. The Health Department agrees that joint meetings between the Commissions, as occurred during the pre-merger discussions, would be worthwhile. Edward A. Chow, MD President San Francisco Health Commission August 27, 2004 Partially agree. The Health Commission agrees that joint meetings between the Commissions, as occurred at the time of the merger, would be worthwhile and we intend to work with the Fire Department to schedule them as soon as possible. We believe the interval of the meetings should depend on the need at the time. Mitchell H. Katz, MD Director of Health Department of Public Health June 24, 2005 Agree. The Health Department agrees that joint meetings between the Commissions, as occurred during the pre-merger discussions, would be worthwhile. While no joint meetings have occurred this fiscal year, the Fire Chief has attended three Health Commission meetings to discuss system changes within the Fire Department. Dr. John Brown, EMS Medical Director regularly attends the Fire Commission meetings. Lee Ann Monfredini President San Francisco Health Commission June 28, 2005 Agree. The Health Department agrees that joint meetings between the Commissions, as occurred during the pre-merger discussions, would be worthwhile. While no joint meetings have occurred this fiscal year, the Fire Chief has attended three Health Commission meetings to discuss system changes within the Fire Department. Dr. John Brown, EMS Medical Director regularly attends the Fire Commission meetings. Joanne Hayes-White Chief of Department Fire Department August 1, 2005 STATUS AS OF JUNE 2005: Implementation is independent of the Department 20 The Department feels that it may be beneficial for the Fire and Health Commissions to hold joint meetings, as necessary, for issues that arise requiring input of both entities.
R1e:
Department Leadership Should Communicate the Importance of EMS. Department leadership should define and communicate the values of the department so that EMS is seen to be at least as important as fire suppression, as stated in the SFFD's mission statement. The Fire Commission, the Chief and Department leadership should promote and support EMS by communicating the value of its mission throughout the Department. Responses Tania Bauer Commission Secretary San Francisco Fire Commission August 12, 2004 The Commission agrees with this recommendation, which has already been implemented. The Commission, in its Annual Statement of Purpose posted on the Commission web site, recites that the provision of emergency medical services, together with fire suppression and fire prevention is an integral part of the Department’s mission. The Commission has also communicated the importance of the Department’s EMS mission in public statements during both regular and special Commission meetings. In addition, at a special meeting convened by the Commission on August 12, 2003 specifically for the purpose of considering steps to take to improve the progress of the merger and to respond to complaints from Firefighter/paramedics, the Commission sought and obtained public comment from members. Following this meeting, two Commissioners undertook a series of individual meetings with all stakeholders in regards to the merger and the complaints since reiterated in the Report. These Commissioners publicly announced and repeated the importance of the EMS mission during the November 25, 2004 Commission meeting. (See minutes of August 12, 2003 Special Meeting and November 25, 2003 Regular Meeting.) Additionally, in communications with Department membership and administration, Commissioners have stressed the importance of a team approach of all segments of the Department in carrying out its mission to provide fire prevention, emergency medical services, fire suppression, rescue and hazardous materials response. The Chief of Department has clearly and unequivocally communicated the same message. Joanne Hayes-White Chief of Department Fire Department August 23, 2004 Agree. This Administration communicates its values, and those of the Department, by words and actions, on a daily basis. EMS, suppression, prevention and training are all equally important and valuable to carrying out the Mission of the Department. Mitchell H. Katz, MD Director of Health Department of Public Health August 24, 2004 21 Not applicable to the Health Department. Edward A. Chow, MD President San Francisco Health Commission August 27, 2004 Not applicable to the Health Commission. Mitchell H. Katz, MD Director of Health Department of Public Health June 24, 2005 Not applicable to the Health Department. Lee Ann Monfredini President San Francisco Health Commission June 28, 2005 Not applicable to the Health Commission. Paul Conroy President San Francisco Fire Commission July 15, 2005 The Commission continues to stress the importance of the EMS mission of the Department. This is evidenced by Resolution 05-4 and continues to be publicly stated by individual Commissioners during Commission meetings. The Chief of Department and her administration continue to communicate this message. Joanne Hayes-White Chief of Department Fire Department August 1, 2005 STATUS AS OF JUNE 2005: Completed The provision of Emergency Medical Services is an integral part of our core mission. This administration continues to articulate that both the EMS and suppression missions define our organization. The message is clear and unequivocal; neither EMS nor Fire suppression has to win at the expense of the other. Our Department will only be successful if these two goals are integrated into a cohesive, unified vision for the future of our Department.
R1f:
Respond to Alarms With Appropriate Staff and Equipment Given that most alarms are false and those that are not are medical in nature, SFFD should respond with appropriate staff and equipment. Responses Tania Bauer Commission Secretary San Francisco Fire Commission August 12, 2004 This recommendation has already been implemented. Additionally, the EMS configuration study is currently underway to refine the Department’s delivery of EMS services and ensure that the most effective and efficient combination of resources is brought to bear on medical and other emergencies. The Commission does not agree with the inference that there has been a disproportionate emphasis on fire suppression, but agrees with the recommendation that the Department should respond with appropriate staff and equipment. Joanne Hayes-White Chief of Department Fire Department August 23, 2004 Disagree. Until proven otherwise, every alarm is a true emergency. The Department currently responds, and will continue to respond, with all necessary apparatus and personnel, as determined by the Chief of Department and her Command Staff. Additionally, the Department is working with the Department of Telecommunications and Information Services (DTIS) to reduce false street alarms by installing False Alarm Deterrent Devices (FADD) on all street boxes. This program is being monitored through the Mayor’s SFSTAT Program and has already proven to be successful. The San Francisco Fire Department is a multi-faceted, multi-skilled public safety agency, whose mission of which is to protect the lives and the property of the people of San Francisco from fires, natural disasters, and hazardous materials incidents; to save lives by providing emergency medical services; to prevent fires through prevention and education programs; and to provide a work environment that values cultural diversity and is free of harassment and discrimination. The Department is staffed by 1,734 members: of those, 1,601 are field personnel directly involved in provision of fire protection and prevention, medical assistance, emergency communications and technical rescues. Sixty-five (65) members provide administrative and investigatory support, training and continuing education curriculum for all Department personnel. Sixty-eight (68) members of the Fire Department are civilians. The Civil Grand Jury commissioned a report on the Fire Department in July of 2003, some six months prior to Chief Hayes-White taking office. In 1996, the City and County of San Francisco was faced with what physician and medical groups termed a “public health crisis”. The Paramedic Division of the Department of Public Health was not meeting the County’s mandated response times. The question that faced the Health Commission, the Health Department and the Director of Public Health was how to provide the maximum number of health care resources to the City of San Francisco, using existing equipment, without a significant increase in expenditures. Transfer of EMS into the Fire Department was the natural next-step. Fire Services all over the nation had successfully assumed responsibility for providing Paramedic Services and the San Francisco Fire Department had been providing emergency first response since the late 1950’s. Every front line responder in the Department has been staffed with at least one firefighter trained to the level of Emergency Medical Technician since 1989 and equipped with first aid equipment, oxygen and an automatic external defibrillator. Additionally, the Fire Department was equipped and trained in extrication, confined space rescue and Hazardous Materials mitigation techniques. The addition of Paramedics was a logical progression in the development of the services it provided. The SFFD has had three Chiefs since 1997. Lack of continuity, lack of long range goals and the lack of time and ability for the Department to meet those goals are all factors in the questions that are raised in this report. This Administration has stated unequivocally that the transfer of function of Paramedic Services from the Department of Public Health to the Fire Department is complete. The combination of services and the strengthening of the service provided have created a public safety entity that is orders of magnitude stronger than the sum of its parts. Except for the National Fire Protection Agency (NFPA) standards, the Fire Services of this nation have enjoyed operational autonomy since their inception. Each Fire Department carries equipment and tools unique to its own operational district and no two Fire Departments are exactly alike. In contrast to the Fire Service, the medical profession is very different in regards to oversight and autonomy. There are laws, directives, and governing bodies for every facet of medicine, and EMS is no exception. The State EMS Agency oversees fifty-eight counties in California, each with its own Department of Public Health, and its own Emergency Medical Services Agency. Each county is required by state law to have an EMS Medical Director, who is responsible for the oversight, regulation and efficacy of the pre-hospital medical and trauma care practiced in their jurisdiction. Every provider in those jurisdictions, public or private, maintains a Director of EMS who is responsible for the oversight and efficacy of the medical care being provided by their agency. In San Francisco, the Fire Department is overseen by the civilian governing body of the Fire Commission. Public Health is overseen by the like civilian body of the Health Commission. The perception that there is no contact between the Health Commission and the Fire Commission is incorrect. While the twelve commissioners do not regularly conduct joint meetings or discussions, the Health Commission is keenly aware of the Fire Department’s provision of pre- hospital care. The Fire Department provides ongoing reporting and documentation to the office of the EMS Medical Director of the Department of Public Health. John Brown, MD, presents to the Health Commission in the same manner that the Department presents to the Fire Commission. During his presentation, Doctor Brown reports on the Fire Department activities and response times. In addition, Chief Hayes-White and Doctor Mitch Katz maintain open lines of communication and confer on a regular basis. The Fire Department provides a myriad of services to the public. The perception that fire suppression is valued more highly than EMS services is false. This Department values every 24 component of its mission equally, and every facet of this Department is geared towards the preservation of life and property in San Francisco. The Controller’s Report of 2004 noted that the Fire Department responds to 20,000 street box alarms per year. The audit went on to state that 95% of street box alarms are false. The Fire Department also responds to 1,836 ‘person downs’, 3,256 ‘vehicle crashes’ and 6,128 ‘sick evaluations’ per year. The majority of those incidents are without emergency merit, but many are true life-threatening emergencies. Until a Paramedic is on scene and can determine the extent of the emergency, every person down is considered a cardiac arrest. Until Firefighters can arrive on scene and determine the extent of the emergency, every street box alarm is considered a working fire. In the past, the Department responded to most alarms with a full box assignment. The apparatus dispatched has been pared down to accommodate changes in the nature of service requests. A first response Engine and a Truck are considered to be the absolute minimum response to an initial box alarm. It should be made clear that the Department is constantly evaluating system performance and seeks to deploy the most effective configuration of resources to each call for service. Mitchell H. Katz, MD Director of Health Department of Public Health August 24, 2004 Not applicable to the Health Department. Edward A. Chow, MD President San Francisco Health Commission August 27, 2004 Not applicable to the Health Commission. Mitchell H. Katz, MD Director of Health Department of Public Health June 24, 2005 Not applicable to the Health Department. Thank you again for all the hard work involved in preparing this report. Lee Ann Monfredini President San Francisco Health Commission June 28, 2005 Not applicable to the Health Commission. Thank you again for all the hard work involved in preparing this report. Paul Conroy President San Francisco Fire Commission July 15, 2005 The EMS Reconfiguration has been developed by the Department and approved by the Commission as a means of further enhancing the provision of Fire-based EMS service to the public. The Department continues to respond with appropriate staff and equipment to fire, medical and other emergencies.
R2:
Confront the Perception that Local 798 Is Running the Department Department leadership should confront the commonly held perception that Local 798, rather than the Chief, is “running the department.” Response Joanne Hayes-White Chief of Department Fire Department August 23, 2004 Disagree. The Department has had three Chiefs over the past seven years. This procession of Department Heads had difficulty in achieving the momentum necessary to effect substantive change. Chief Joanne Hayes-White and the current Command Staff is committed to providing, and has already displayed the strong leadership necessary to facilitate change and promote the accountability and professionalism throughout the ranks of the Department. IAFF Local 798, as the authorized bargaining unit for most members of the Department is involved in any decision that has the potential to impact the wages, hours or working conditions of its members. The Chief, however, is the sole arbiter of decisions that affect the operations and administration of the Department. The current leadership has already displayed its willingness to exercise independent authority, often in opposition to the opinion of the labor union. 28
R2a:
Determine and Control the Cost of Its Benefits Plans and Prevent Abuses Management should determine and control the cost of its benefit plans and act to prevent abuses. Response Cleopatra Vaughns Chair Board of Directors Municipal Transportation Agency Michael T. Burns Executive Director of Transportation Municipal Transportation Agency August 25, 2004 Implemented. Muni is controlling the costs of benefit plans and is actively routing out and eliminating abuse. The Municipal Railway is part of the City and County of San Francisco and strictly adheres to its established policies and procedures. The three benefit plans mentioned in the Grand Jury report: Battery Pay, Transitional Work and Workers' Compensation, each have specific components for preventing abuse. All claims for battery pay are investigated by a full-time staff investigator who reviews the incident report and the video tape on-board the vehicle, interviews witnesses, takes a recorded statements from battery pay applicants, reviews all medical evidence and reviews the appropriate City and County laws prior to accepting or denying a claim. As mentioned in section 2.5, there are currently 4 employees who are receiving battery pay at this time A Transitional Work Program Coordinator as well as supervisors and superintendents to whom transitional work employees are assigned monitors the work performed. Workers’ Compensation staff conducts random spot checks. In the event that an abuse of the program is validated, the appropriate steps are taken that may include docked pay, counseling or re-assignment. Benefit rates and increases for the Workers' Compensation program are set by the State of California. Muni’s role is to monitor acceptance and denial of claims, ensure appropriate benefit distribution and insure contract compliance by our Third Party Administrator (TPA). All claims for Workers' Compensation are investigated to determine the validity of the claim. Once the validity has been established, the TPA is contractually required to review each claim every 14, 30, 60 and 90 days, depending on the type of benefit paid or the seriousness of the claim. Workers' Compensation staff reviews claims-related issues with the TPA on a daily basis. Muni investigates allegations of fraud or abuse in cooperation with other city or regional agencies such as the San Francisco Police Department, BART, and the District Attorney. Muni also has a telephone “tip hotline” to encourage the reporting of any abuse.
R2b:
Base Pay for the Light-Duty Plan on Hours Actually Worked Management should consider basing pay under the light-duty plan on hours actually worked. Response Cleopatra Vaughns Chair Board of Directors Municipal Transportation Agency Michael T. Burns Executive Director of Transportation Municipal Transportation Agency August 25, 2004 Implemented. Muni employees in the Transitional Work Program are paid based on hours worked. In 1996, pursuant to Proposition J, the Budget Analyst performed a full management audit of the Public Transportation Department. One of his recommendations was to “discontinue the practice of paying overtime to Special Duty Operators in MUNI Headquarters, for time not actually worked”. A review of the Action Plan prepared by Muni in response to the Audit shows that a policy was established in September 1996, and continues today, that Operators in the Transitional Work Program would be paid on an hourly basis and that staff would monitor compliance with this policy on an ongoing basis. 115 (In 1996, the terms “Special Duty” and “Light Duty” were used interchangeably. Today, the program is called the Transitional Work Program.)
R2c:
Ensure Employees Are Eligible for Light-Duty and That They Actually Perform Assigned Tasks. Management must establish controls to ensure that those employees assigned to light-duty are eligible under the conditions of the plan and are actually performing their assigned tasks. Response Cleopatra Vaughns Chair Board of Directors Municipal Transportation Agency Michael T. Burns Executive Director of Transportation Municipal Transportation Agency August 25, 2004 Implemented. A physician must diagnose all industrially injured employees in writing, before they are eligible for transitional work. A Transitional Work Program Coordinator as well as the supervisors and superintendents to whom transitional work employees are assigned monitors the work performed. In addition, Workers’ Compensation staff conducts random spot checks. Employees assigned to the Transitional Work program are performing their assigned tasks.
R2d:
Managers Should Be Responsible for Employees’ Performance of Light-Duty Assignments. The managers of the departments to which light-duty personnel are assigned should be responsible for their presence and performance. Response Cleopatra Vaughns Chair Board of Directors Municipal Transportation Agency Michael T. Burns Executive Director of Transportation Municipal Transportation Agency August 25, 2004 Implemented. Muni agrees with this recommendation and is confident that all transitional work employees are under supervisory control. A Transitional Work Program Coordinator as well as the supervisors 116 and superintendents to whom transitional work employees are assigned monitors the work performed. Worker’s Compensation staff also performs random checks.
R2e:
The Controller and Budget Analyst Should Audit the Light-Duty and Battery Pay Plans and the Workers’ Compensation Benefit Program. The Office of the Controller and the Budget Analyst's Office should conduct independent audits of the light-duty and battery pay plans and workers’ compensation benefit programs to determine the actual costs of the plans and benefits and the feasibility of determining ways to reduce the overall costs of those programs. Responses Cleopatra Vaughns Chair Board of Directors Municipal Transportation Agency Michael T. Burns Executive Director of Transportation Municipal Transportation Agency August 25, 2004 Not yet Implemented The MTA welcomes audits by any agency. Cleopatra Vaughns Chair Board of Directors Municipal Transportation Agency Michael T. Burns Executive Director of Transportation Municipal Transportation Agency June 30, 2005 We continue to welcome audits by any agency. Ed Harrington Controller Office of the Controller July 29, 2005 The recommendation has not yet been implemented, but will be implemented in the City Services Auditor Division’s audit plan for fiscal year 2005-06. The City Services Auditor Division will work with Muni to determine the priority for conducting audits of the light-duty and battery pay plans and workers’ compensation benefit programs. 117
R2f:
Examine Plans to Ensure They Do Not Duplicate Benefits. Compensatory plans should be examined to ensure that, although they may provide similar assistance, they do not duplicate the benefits. Response Cleopatra Vaughns Chair Board of Directors Municipal Transportation Agency Michael T. Burns Executive Director of Transportation Municipal Transportation Agency August 25, 2004 Implemented. Muni has examined their plans and we are not aware of any compensatory plans that duplicate benefits to injured employees. Some employees may have obtained individual long-term or short- term disability policies that may be used to supplement Workers’ Compensation benefits. Those plans are entirely outside of Muni’s control.
R3:
Undertake Greater Outreach to Ensure Eligible Students Are Enrolled in Dream Schools. SFUSD should undertake greater outreach in order to insure that eligible students get enrolled in Dream Schools and that students not eligible are given every opportunity to attend their current school next year with equal or improved resources. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 This recommendation has already been implemented, as described in Section 3.8, above. Over 280 new students have been assigned to the Dream Schools, and there is a wait list for the entering kindergarten class. The District will continue its efforts to inform families and students about the Dream Schools Initiative. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 As noted in the District’s original response, the District took detailed and thorough action to ensure that students were aware of their opportunities and choices within the District, including the opportunity to attend a Dream School. Students who were attending a school that was converted to a Dream School were assigned to remain at that site unless they affirmatively chose to transfer to another school. There were no eligibility requirements to enroll in a Dream School.
R3a:
Allocate Resources According to the Change in Workload From Fire Suppression to EMS. Resource allocation and staffing should reflect the Department's change in workload from fire suppression to EMS. Responses Tania Bauer Commission Secretary San Francisco Fire Commission August 12, 2004 Agree. This recommendation has already been implemented and is also undergoing further evaluation through the EMS Configuration process. It should be pointed out that although the medical dispatches amount to approximately 70% of the current dispatch volume, this medical workload has been layered on top of the Department’s pre-merger fire and emergency response. These additional calls do not obviate the need to respond to suppression and other emergencies. Given the age and density of San Francisco’s predominantly wood frame structures, quick and aggressive response by a sufficient number of personnel and apparatus is necessary to extinguish fires before they spread, which could otherwise result in conflagration. Resources cannot be allocated based solely on the daily series of dispatches, but must also be ready to respond to the regular occurrence of fire and the risk of earthquake, conflagration and other anticipated major events. Joanne Hayes-White Chief of Department Fire Department August 23, 2004 Disagree. The Department’s workload is reflective of the demands that the public places on its resources. Paul Conroy President San Francisco Fire Commission July 15, 2005 As noted in the Commission’s response, above, the recommendation has already been implemented. Since the response, the EMS Reconfiguration has been approved by the Commission as a means of further enhancing the Department’s provision of emergency medical services.
R3b:
The Fire Chief Should Be Directed to Allocate Resources to Support the EMS Mission The Mayor, Board of Supervisors and the Fire Commission should direct and support the Chief in making resource allocation changes that properly support the EMS mission. Responses Tania Bauer Commission Secretary San Francisco Fire Commission August 12, 2004 Agree. This recommendation has already been implemented and is continuing. The Commission has overseen the deployment of Department resources to carry out the EMS mission of the Department since the inception of the merger as noted in the Introduction to this response. Joanne Hayes-White Chief of Department Fire Department August 23, 2004 The Chief works collaboratively with the Mayor, the Board of Supervisors and the Fire Commission. Paul Conroy President San Francisco Fire Commission July 15, 2005 Since the above response, the Fire Commission has approved the EMS Reconfiguration to further enhance the Department’s provision of emergency medical services to the public. Joanne Hayes-White Chief of Department Fire Department August 1, 2005 STATUS AS OF JUNE 2005: Chief Hayes-White continues to work collaboratively with the Mayor, the Board of Supervisors and the Fire Commission in oversight of the Department operations. They have provided the support and counsel necessary to allow the Department to move forward, including implementation of our EMS reconfiguration plan.
R3c:
The Board of Supervisors Should Direct the Fire Chief to Implement the Recommendations of the Controller’s Office The Board of Supervisors mandated the review of SFFD recently conducted by the Controller's Office. The Board should now act on and direct the Chief to implement the recommendations. Responses Tania Bauer Commission Secretary San Francisco Fire Commission August 12, 2004 This is a recommendation to the Board of Supervisors. The previous and current Presidents of the Commission have met with the Controller and his staff concerning the Controller’s recommendations. The Department has responded in those meetings and during the public meeting conducted by the Finance Committee of the Board of Supervisors. Under the City Charter, it is the Fire Commission that sets objectives, programs and policies and prescribes and enforces rules and regulations for the Fire Department. Joanne Hayes-White Chief of Department Fire Department August 23, 2004 The Department is committed to implementing any change that promotes efficiency without compromise to operational readiness and ability to deliver service. The Controller’s report, as is any audit or report of an organization, a tool for the management of that agency. The Department is respectful of the recommendations made in that report. Each recommendation was reviewed by the Department for feasibility and to gauge its impact on service. The Department has implemented or is in the process of implementing many of its recommendations. The Department committed to implementing change that promotes efficiency without impinging its ability to safeguard the health and welfare of the public it serves. The Department has been aggressive in maintaining on-going dialogues with all Supervisors, decision makers and community leaders, in its institution of fiscal policies while mitigating any operational impact. Joanne Hayes-White Chief of Department Fire Department August 1, 2005 STATUS AS OF JUNE 2005: Portions of the Controller’s Office recommendations have been implemented. The Department continues to use the review conducted by the Controller’s Office as a valuable management tool, and has already completed implementation of a number of the recommendations in the report. The Controller’s Report made two important recommendations concerning the delivery of EMS services by the Department. The Controller recommended: 1. The use of peak period staffing3 3 A Review of the San Francisco Fire-EMS System, Office of the Controller, April 2004, pg. 12 37 2. The implementation of alternative staffing and shifts4 Both of these recommendations will be implemented as part of the Department’s current EMS Reconfiguration plan. Additionally, after discussions with the Controller’s Office, the Department completed its analysis of data on street box alarms in October of 2004. Rather than reconfigure response and jeopardize the health, safety or property of those legitimate requests for service, the Department partnered with the Emergency Communications Department (ECD) and the Department of Telecommunications and Information Service (DTIS) to install Anti-Tamper Devices on Fire Call Boxes. This action has resulted in a 35% reduction in false alarms.
R4:
Undertake Greater Outreach to Ensure Eligible Students Receive Free or Low-Cost Lunches. SFUSD should undertake greater outreach in order to insure that students who are eligible for free or low- cost lunches are receiving them. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 This recommendation has already been implemented, as described in Section 4.3, above. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 As noted in the District’s original response, the District took detailed and thorough action to ensure that parents and guardians filled out free and reduced lunch applications. Additionally, the District explained that SFUSD does not deny any student a free or reduced price lunch due to their parent’s failure to return the appropriate documentation. If a parent fails to return such documentation, the result is that the District will not be reimbursed for the lunch that is provided to the student. In the fall, the free and reduced cost lunch program application will be included in the August welcome packet sent home to all students. The forms in this packet all must be filled out and returned at the beginning of the school year, and are stapled together to ensure that parents understand that all of the enclosed forms must be filled out and returned. 149
R4a:
Recruit and Retain Firefighter/Paramedics Recruitment and retention of firefighter/paramedics is a critical problem that needs immediate attention. The Department should hire additional firefighter/paramedics and/or cross-train more existing personnel to be firefighter/paramedics as soon as possible. Responses Joanne Hayes-White Chief of Department Fire Department August 23, 2004 Agree. The number of Firefighter/Paramedics will be determined by any changes in deployment and configuration. Joanne Hayes-White Chief of Department Fire Department August 1, 2005 STATUS AS OF JUNE 2005: The recommendation is in process The Department continues to be committed to recruitment and retention of high quality candidates that reflect the diversity of our City and can serve our community as Firefighters and as Firefighter / Paramedics. The Department considers possession of a valid paramedic license as important secondary criteria for candidates seeking entry into the H2 Firefighter Academy. Additionally, the Department has secured an MOU with the City College Paramedic program to guarantee or current firefighters an opportunity to train to become Paramedics. The report of the SFFD EMS Reconfiguration Committee of October 2005 and the subsequent adoption of its recommendations has compelled a change in focus from the recruitment and retention of currently cross trained Firefighter / Paramedics to the recruitment and retention of currently certified and licensed EMTs and Paramedics. Future cross trained Firefighter Paramedics would be drawn from the ranks of Paramedics serving on the transport tier. The Department anticipates holding the entrance exam for Paramedics in the latter part of this year and the entrance exam for EMTs sometime in early 2006.
R4b:
Cross-train Both Officers and Firefighters Officers should be cross-trained as well as rank and file firefighters. Officers who are already cross- trained should continue their paramedic licensure and use their paramedic skills in their command positions. Responses Joanne Hayes-White Chief of Department Fire Department August 23, 2004 Agree. Matriculation through the ranks by Firefighter /Paramedics will occur naturally as promotional exams are given. Evidence can be found in all departments (i.e. LA County, San Diego, etc.) where Paramedic level EMS has been a long standing component of operations. Joanne Hayes-White Chief of Department Fire Department August 1, 2005 STATUS AS OF JUNE 2005: The recommendation will be implemented in the future or is in process Diversity in middle-management positions is critical to the long term health of any organization. While the cross-training of officers is a laudable goal, it is somewhat impractical. The Department believes that achieving diversity throughout its ranks is best accomplished by the steady promotion of Firefighter / Paramedics. Departments across the nation that have successfully integrated the EMS component have done so with “bottom-up” promotions and not a “top-down” imposition of policies. Future promotional examinations conducted by the Department will have significant emphasis on the EMS mission of the Department as well as the traditional fire suppression components.
R4c:
Reduce Ambulance Workloads Alleviation of heavy ambulance workloads should be addressed as soon as possible. The necessity for a 24-hour ambulance shift should be reviewed as well as other options for transporting patients. Responses Joanne Hayes-White Chief of Department Fire Department August 23, 2004 Agree. Formulating an action plan to address ambulance workload is a main component of the Reconfiguration Task Force. These issues are not unknown to the Department, and the leadership is committed to addressing the issues of workload on the ambulances and the inevitable attrition of Firefighter / Paramedics. The number of Paramedics has not increased in proportion to call volume that has increased significantly in recent years. This problem has manifested in increases in unusual occurrences (UOs), a frustrated workforce and a non-retirement attrition rate for Firefighter / Paramedics that is higher than their Firefighter colleagues. The Department is also acutely aware that the problem of high ambulance call volume does not exist independent of greater systemic issues. In order to be successful, any strategy addressing this issue must be part and parcel of an overall direction and vision for the provision of EMS in the Department. The Department has already taken steps to address the larger system-wide issues it currently faces. It is in the process of reviewing the final report of the recent Reconfiguration Task Force and, in conjunction with the Mayor’s Office and Department of Public Health, will select a model for the future. Negotiations with City College of San Francisco have recently been completed that secure spots in the City College Paramedic Training Program for our Firefighters. The current class of forty-eight (48) probationary Firefighter recruits was required to possess current, valid California State Emergency Medical Technician (EMT) certificate as a prerequisite to employment. Twelve (12) members of that class are licensed Paramedics. The current administration has an unprecedented number of Firefighter / Paramedics among the Command Staff. Two (2) Assistant Deputy Chiefs are cross-trained Firefighter/Paramedics, in addition to several Lieutenants and fourteen (14) Rescue Captains already in command or supervisory positions. The Department is committed to promote and continue the advancement of Firefighter/Paramedics through its ranks. Joanne Hayes-White Chief of Department Fire Department August 1, 2005 STATUS AS OF JUNE 2005: The recommendation will be implemented in the future or is in process The new administration of the Department immediately recognized the critical need to address the heavy workload placed on the transportation arm of the Department. Ambulance workload has been the primary focus of the reconfiguration workgroup and the long term solution to this issue is the sweeping, system wide change of the reconfiguration. The Department is moving to implement its new EMS reconfiguration with all haste. Once the remaining labor and human resource hurdles are cleared, the Department anticipates that the first dynamically deployed units will be on our streets in the latter half of FY 2005-2006. In the interim, the Department is considering a number of changes that will provide some relief to our units through the implementation of the new transport tier. The changes being considered include: • Rotation of unassigned Firefighter / Paramedics • Selected use of ALS Engine Responses to a subset of Code 2 calls • Modification of dispatch rules for our units with the highest call volume • More aggressive use of private ambulance resources 45
R5a:
Identify and Discipline Those Engaging in Harassing Behavior Department leadership should identify the stations where harassment is occurring. Those engaging in harassing behavior should be appropriately disciplined. The range of discipline should include suspension with or without pay and/or firing, depending on the degree of harassment. Harassers who are not fired should be reassigned to different stations. Responses Tania Bauer Commission Secretary San Francisco Fire Commission August 12, 2004 The Commission agrees with, and has already implemented and pursued a policy that harassment of any type, including harassment of Firefighter/paramedics, will not be tolerated. The Department should continue to investigate specific claims of harassment and, if verified, impose appropriate discipline, up to and including potential termination. The Department should take steps to eliminate structural impediments that are perceived as preventing enforcement of the Department policy that harassment will not be tolerated. The Commission recently terminated a member it found guilty of harassment. Joanne Hayes-White Chief of Department Fire Department August 23, 2004 Should evidence become available, and should this finding be substantiated, this Administration will move swiftly and decisively to address the allegations. Paul Conroy President San Francisco Fire Commission July 15, 2005 Since the Commission’s response, the Commission has heard additional disciplinary matters concerning incidents predating the Grand Jury Report and has appropriately disciplined those members found guilty of harassment. The Commission also disciplined an officer who did not take appropriate steps to stop harassment. There are currently no complaints of harassment before the Commission. Neither the Fire Commission, nor individual Commissioners, have received any complaints that harassment of Firefighter Paramedics, Paramedics or women members has occurred since the issuance of the Grand Jury Report to the present date. Joanne Hayes-White Chief of Department Fire Department August 1, 2005 STATUS AS OF JUNE 2005: The recommendation has been implemented 52 Harassment of any kind, and for any reason, is not tolerated by this Department. This administration takes our obligation to provide a safe and supportive workplace, free from harassment of any kind very seriously, and has already demonstrated its commitment in the discipline and termination of members who have committed this infraction.
R5b:
Hold Officers Accountable for Actions or Inactions Related to Harassment. Ranking officers should be held accountable for their actions or inaction related to harassment. Officers who participate in or allow those under their supervision to participate in harassment should be disciplined. The range of discipline should include suspension without pay, demotion and/or firing, depending on the severity of the offense. Responses Tania Bauer Commission Secretary San Francisco Fire Commission August 12, 2004 The Commission agrees with this recommendation, which has already been implemented. Joanne Hayes-White Chief of Department Fire Department August 23, 2004 See 5a. Paul Conroy President San Francisco Fire Commission July 15, 2005 Since the Commission’s response, the Commission has heard additional disciplinary matters concerning incidents predating the Grand Jury Report and has appropriately disciplined those members found guilty of harassment and an officer who did not take appropriate steps to stop the harassment. There are currently no complaints of harassment before the Commission. Neither the Fire Commission, nor individual Commissioners, have received any complaints that harassment of Firefighter Paramedics, Paramedics or women members has occurred since the issuance of the Grand Jury Report to the present date. Joanne Hayes-White Chief of Department Fire Department August 1, 2005 STATUS AS OF JUNE 2005: The recommendation has been implemented 53 This administration is keenly sensitive to the issue of harassment, and continues to take its obligation to provide a safe and supportive workplace, free from harassment of any kind very seriously, and has already demonstrated its commitment in the discipline and termination of members who have committed this infraction. All members, regardless of rank, are held accountable.
R5c:
Hold Fire Department Leadership Accountable for Eliminating Harassment The Fire Commission should hold Department leadership accountable for eliminating harassment. Responses Tania Bauer Commission Secretary San Francisco Fire Commission August 12, 2004 The Commission agrees with this recommendation, which has already been implemented. Joanne Hayes-White Chief of Department Fire Department August 23, 2004 Harassment of any kind, and for any reason is not tolerated by this Department. This Administration has zero tolerance for harassment of any kind and is obligated to provide a safe and supportive workplace. The current Administration takes the obligation very seriously, and has already demonstrated its commitment in the discipline and termination of members who have committed this infraction. Any member who feels that he or she is being subjected to harassment or unfair treatment is obligated to speak up, loud and clear. Whoever the offender, whatever his or her rank, position or title, if a member of this Department is harassing another, that person can expect a swift and appropriate response from my office. Paul Conroy President San Francisco Fire Commission July 15, 2005 The Department leadership continues to be vigilant in eliminating harassment, as demonstrated above. Joanne Hayes-White Chief of Department Fire Department August 1, 2005 STATUS AS OF JUNE 2005: The recommendation has been implemented 54 The Fire Commission is unwavering in holding Department leadership responsible for providing a safe and supportive work environment, free from harassment of any kind. The current administration welcomes the accountability required from this Fire Commission.
R6:
Provide Comprehensive Leadership and Command Training for All Officers The Department should provide comprehensive leadership and command training for all officers prior to their assumption of command. Periodic training should emphasize professionalism, responsibility and accountability and be given on a regular, ongoing basis. Training should include conflict resolution and team building. Responses Joanne Hayes-White Chief of Department Fire Department August 23, 2004 The roles and responsibilities of the officer-as-supervisor have changed dramatically over the years. At one time, a supervisor just needed to be respected by their peers to perform adequately. The role of the supervisor has evolved dramatically. Today, a successful supervisor in the Fire Service must not only understand and know operations and tactics about a broad scope of potential challenges, but be well versed in modern management and personnel theory. Assistant Deputy Chief Tom Siragusa and his training staff are currently researching leadership and command programs for all SFFD Officers. Examples will be drawn from civilian corporations, uniformed public service agencies and even officer training programs from the Armed Forces. In fact, the Department recently completed a comprehensive three-day Battalion Chief Academy training program. Joanne Hayes-White Chief of Department Fire Department August 1, 2005 STATUS AS OF JUNE 2005: The recommendation has been implemented In the last nine months, management and supervisory classes were held for members accepting provisional promotions into the officer ranks. Curriculum included modules in customer service, professional demeanor, conflict resolution and teambuilding, administrative responsibilities, review of fire tactics, dealing with high risk, low frequency operations such as high-rise fires, BART / MUNI responses, management multi-casualty incidents and disaster operations. Accountability is a key element to the success of any organization, and is expected from every member of this Department regardless of rank. This administration continues to hold all its members accountable for performance and behavior. While the administration continues to hold all members accountable for their actions, promotional exams and permanent appointments are crucial to executing this recommendation. The Department looks forward to resolution between the Civil Service Commission and Local 798 regarding the promotional certification rule.
R7a:
Develop Secondary Promotional Criteria for Submission to the Civil Service Commission Department leadership should develop and submit secondary promotional criteria to the Civil Service Commission for approval as soon as possible. Although there is a legal appeal in process and the Department will not be able to act until this appeal is resolved, it is imperative that the Department be ready to proceed with examinations and selections after the appeal is adjudicated. Responses Joanne Hayes-White Chief of Department Fire Department August 23, 2004 The Chief is working closely with the Civil Service Commission and employee groups to develop meaningful and measurable secondary criteria. Kate Favetti Executive Officer Civil Service Commission August 23, 2004 Agree. There is no legal reason to delay further. The examination for the Captain’s rank is ready to be administered. Joanne Hayes-White Chief of Department Fire Department August 1, 2005 STATUS AS OF JUNE 2005: The recommendation will be implemented in the future or is in process The Department has worked in partnership with the employee groups to develop meaningful, measurable secondary criteria for promotional examinations and is working to assure that approved criteria will be in place after all legal issues are resolved and promotional exams are scheduled.
R7b:
The Mayor Should Investigate Why the Fire Department Has Not Given Promotional Examinations The Mayor should investigate why promotional examinations have not been given in the SFFD and determine what the financial ramifications are. Responses Joanne Hayes-White Chief of Department Fire Department August 23, 2004 Chief Hayes-White works collaboratively with the Mayor’s Office on all Department related issues. Kate Favetti Executive Officer Civil Service Commission August 23, 2004 Examinations are ready to be administered. The Civil Service Commission is waiting for the Fire Chief to return to the Civil Service Commission with secondary criteria. Joanne Hayes-White Chief of Department Fire Department August 1, 2005 STATUS AS OF JUNE 2005: Implementation is independent of the Department.
R7c:
The Mayor Should Investigate Why the Civil Service Commission Implemented a Certification Rule Not Supported by Management and Labor The Mayor should investigate why the Civil Service Commission implemented a new certification rule that neither management nor labor want. Responses Joanne Hayes-White Chief of Department Fire Department August 23, 2004 The Department continues to work with the Mayor’s Office in an effort to provide updates related to the development of a timeline for administration of promotional examinations. The Department is eager to hold promotional examinations for all ranks. The appointment of permanent officers is critical to improving accountability and the ability of the Department to move forward at a rapid pace. Serial litigation, lack of funding and protracted development of Civil Service certification rules have delayed the administration of promotional exams for a number of years. The Department is working diligently with the Department of Human Resources and employee groups to develop secondary criteria, and hopes to resolve this issue in the near future. When funding is allocated for promotional exams, the Department intends to administer them without unnecessary delay. It should be noted that the H-30 Captain’s Examination has been developed and will be the first promotional exam to be administered. Kate Favetti Executive Officer Civil Service Commission August 23, 2004 The Civil Service Commission has Charter authority to establish Rules to administer the merit system, including applications, examinations, eligible lists, and certification rules, specifically, the certification rules for promotions. In doing so, the Civil Service Commission takes into account the input from department heads, employee organizations, other interested persons and members of the public. Civil Service Commission Rules require for promotions in the Fire Department that qualified firefighters take a test that is job related and valid. Those who pass the test are placed on a list in 65 order of their scores and only reachable candidates (those in the grouping/band) are referred to the Fire Chief for consideration for selection. The Commission, in considering various certification rules for promotions in the Fire Department, took into account the more than 20 year history of litigation on San Francisco Fire Department examinations resulting in the Consent Decree. With the termination of the Consent Decree and the subsequent Stipulated Order in 1998, the Civil Service Commission adopted updated Rules applicable to the Uniformed Ranks. The challenge facing the Civil Service Commission was to establish a fair and defensible certification Rule for promotions that enables the Fire Chief to select the best-qualified candidates and ensures compliance with Federal, State and local anti-discrimination laws. Statistically valid grouping is a concept that has withstood court challenge in many instances and involves a statistical formula to determine that eligibles have comparable knowledge, skills and abilities and that the difference in their scores is not significant and are included in the “grouping” (the band). Those eligibles are referred to the Fire Chief for consideration for selection. The Fire Chief may only consider the scores in the band. Additional eligibles may only be considered when the top score is exhausted. The Civil Service Commission Rules also require the Fire Chief to develop secondary criteria that are job-related, based on experience, training and employment history, and NOT based on relationship, race, religion, national origin, ethnicity, age, disability, gender, gender identity, political affiliation, sexual orientation, ancestry, marital or domestic partnership status, parental status, color, medical condition, or otherwise prohibited nepotism, or favoritism. Certification Rules authorized by the Civil Service Commission are the Rule-of-Three-Scores, Rule-of-Three-or-More-Scores, Rule-of-List and Statistically Valid Grouping. The Rule-of-Three-Scores requires the Department of Human Resources to refer to the department, the names of eligibles with the three highest scores on the list of eligibles for the position available for appointment. When there are two (2) or more approved personnel requisitions on file, the number of scores certified is equal to the number of positions to be filled plus two scores. The Rule-of-Three-or-More-Scores Certification Rule requires the Department of Human Resources to refer the number of scores equal to the number of positions to be filled plus the number of scores in the certification rule applicable to the eligible list being certified minus one. Simply stated: If the certification rule is Rule-of-Seven-Scores, and there is one position to be filled, then the names of eligibles with the seven highest scores on the list of eligibles for the position available for appointment are referred to the department. If there are two positions to be filled, then the names of the eligibles with the eight highest scores on the list of eligibles for the position available for appointment are referred to the department. The Rule-of-the-List requires that ALL names on the eligible list that are available for appointment be referred to the department for consideration for selection. The Certification Rule, Statistically Valid Grouping (Sliding Band), requires that the names of the eligibles that are within a statistically valid grouping/sliding band of scores (“grouping”) be referred to the department for consideration for selection. The grouping is determined through the 66 standard error of the difference (SED) of the examination multiplied by a confidence factor of 1.96. Eligibles within the grouping are considered to be of comparable knowledge, skills and abilities with respect to the areas tested on the examination. If at any time, the highest score in the grouping is exhausted, the grouping will slide so that its upper limit rests on the highest score remaining on the list. Any additional eligibles whose scores fall within the new grouping shall be certified to available positions. The grouping will also slide if all eligibles at the highest score waive or fail to respond within the time limits provided in this Rule. The Certification Rule for entry level positions in the San Francisco Fire Department is Rule-of- the-List. The Certification Rule for promotions is the Statistically Valid Grouping. In making the decision to adopt the Statistically Valid Grouping, the Civil Service Commission considered input from the department, the recognized bargaining agent – Local 798, employee association representatives, and other interested parties, including experts in selection procedures. The Civil Service Commission also considered the history of litigation and the need to ensure compliance with Federal, State and local anti-discrimination laws. The adopted Rules for promotions in the San Francisco Fire Department, the Statistically Valid Grouping, and the secondary criteria are selection devices that identify those candidates with comparable knowledge, skills and abilities, ensures compliance with Federal, State and local anti- discrimination laws, and enables the Fire Chief to select from among the best-qualified candidates within the grouping. In matters related to the merit system, except for matters of inquiry, the Mayor is subject to San Francisco Charter Section 10.102 non-interference provisions, which state: “…Except for the purpose of inquiry, the Mayor shall deal with the administration of the civil service merit system solely through the Human Resources Director and the Civil Service Commission or their designees. The Mayor shall not dictate, suggest or interfere with the merit system activities of the Civil Service Commission or Human Resources Department. Administrative matters shall be dealt with only in the manner provided by this Charter, and any dictation, suggestion or interference herein prohibited shall constitute official misconduct; provided that nothing herein contained shall restrict the power of hearing and inquiry as provided in this Charter.” Gavin Newsom Mayor Office of the Mayor March 18,2005 The Fire Department is updating its examination components to reflect any recent changes in standard operating procedures. With regard to the method of selecting employees from promotive eligible lists, the Civil Service Commission is currently involved in legal proceedings and settelment discussions with Local 798 to determine a mutually agreed upon certification rule. Joanne Hayes-White Chief of Department Fire Department August 1, 2005 STATUS AS OF JUNE 2005: Implementation is independent of the Department / in process. The Department has worked in partnership with the employee groups to develop meaningful, measurable secondary criteria for promotional examinations and is working to assure that approved criteria will be in place after all legal issues are resolved and promotional exams are scheduled. Promotional exams and permanent appointments are crucial to executing this recommendation. The Department looks forward to resolution between the Civil Service Commission and Local 798 regarding the promotional certification rule.
R8a:
Determine the extent of on-duty alcohol consumption and substance abuse. The Department needs to determine the extent of on-duty alcohol consumption and substance abuse among Department personnel as soon as possible. Responses Joanne Hayes-White Chief of Department Fire Department August 23, 2004 Agree. Joanne Hayes-White Chief of Department Fire Department August 1, 2005 STATUS AS OF JUNE 2005: The recommendation has been implemented Early in 2004, this administration re-fashioned and developed new polices that allow the Department to effectively address this important issue. This administration has always been unequivocal that there will be no tolerance for substance use while on duty and all members will be held to that unwavering standard. Further, the Department has demonstrated its commitment in its willingness to exercise discipline for, and the termination of, members violating that rule. The Department is close to implementing a complete substance abuse screening policy including screening prior to hire, promotion, post accident, reasonable suspicion, and on a random basis.
R8b:
Negotiate for expanded and random drug and alcohol testing. The Department should negotiate for expanded and random drug and alcohol testing as soon as possible. Responses Joanne Hayes-White Chief of Department Fire Department August 23, 2004 The current MOU with IAFF Local 798 provides a provision for random drug testing. The testing program will begin in October of this year. Joanne Hayes-White Chief of Department Fire Department August 1, 2005 STATUS AS OF JUNE 2005: The recommendation has been implemented This administration, in last year budget negotiations, secured random drug and alcohol testing for members of Firefighter’s Union Local 798. The Department and Local 798 are currently finalizing the scope and mechanism of testing, and random testing is anticipated to begin September 2005.
R8c:
Establish and Internal Investigative Unit The Department should establish an Internal Investigative Unit that reports directly to the Chief. Investigators trained in identifying people who are under the influence should staff this Unit. The investigators should have complete authority to make unannounced visits to fire stations and to conduct drug and alcohol tests. They should have access to lockers used by firefighters for storage of personal items. Responses Joanne Hayes-White Chief of Department Fire Department August 23, 2004 The Internal Services Bureau of the Department is the primary investigative authority for internal Department matters. This Administration has already displayed its willingness and resolve to take whatever action necessary and appropriate to address these internal issues, including the appointment of a fully cross-trained Firefighter / Paramedic to serve as the primary Investigative Officer. Joanne Hayes-White Chief of Department Fire Department August 1, 2005 STATUS AS OF JUNE 2005: The recommendation has been implemented The Investigative Services Bureau (ISB) is the internal investigative unit of the Department. Members assigned to the ISB completed training in the identification of people under the influence of substances. The members of the ISB have authority to make unannounced visits to fire stations and conduct drug and alcohol tests. During these visits they have access to lockers used by members for storage of personal items.
R8d:
Implement a Strong and Clear Drug Policy The Department needs to implement a strong, clear, and effective drug policy. Responses Joanne Hayes-White Chief of Department Fire Department August 23, 2004 Agree. A stronger and clearer alcohol and drug policy has already been implemented. Joanne Hayes-White Chief of Department Fire Department August 1, 2005 STATUS AS OF JUNE 2005: The recommendation has been implemented / in process. The Department is close to implementing a complete substance abuse screening policy including screening prior to hire, promotion, post accident, reasonable suspicion and on a random basis. This administration has been working closing with Local 798 to finalize the scope and mechanism of testing. The Random Drug Testing Policy is anticipated to be implemented in September 2005.
R8e:
Institute and Outreach Program The Department should institute an outreach program to help identify and refer for treatment those members with alcohol and substance abuse problems. Responses Joanne Hayes-White Chief of Department Fire Department August 23, 2004 Agree. Outreach to Department members is a component of the new alcohol and drug policy. The Fire Department is an organization just like any other, and is comprised of individuals that face the same challenges as all other members of our community. While the Department has had to address substance abuse among a few of its members, it is unfair and misleading to impute the guilt of a few onto the 1,734 dedicated members who serve our community each and every day. When infractions do occur, the Department is committed to holding its members accountable. Each and every member of the Department took an oath when they accepted the responsibility of serving the City. Any infraction, particularly one that could jeopardize other members and the public we serve, is handled swiftly and decisively. The Department’s Administration has already taken significant steps in addressing this issue. New alcohol and substance abuse policies, including post-accident testing, are in place and being used. This is the first Administration to successfully negotiate random drug and alcohol testing as part of the MOU with the Firefighter’s Union Local 798. The Mayor, the Fire Commission and the Department all recognize and support that alcoholism and chemical dependency are considered disease processes and require the attention that a disease or illness demands. We are committed to supporting Department members in any way possible to reclaim their lives and independence from substance dependency. Joanne Hayes-White Chief of Department Fire Department August 1, 2005 STATUS AS OF JUNE 2005: The recommendation has been implemented / in process. An important component of the Department’s new and renovated substance abuse polices is an outreach program designed to identify and find treatment programs for members with alcohol and substance abuse problems. Those members coming forth voluntarily will be provided with every resource available. In addition, the Department intends to provide a training module to raise awareness to its members of alcohol and substance abuse issues. General Responses Tania Bauer Commission Secretary San Francisco Fire Commission August 12, 2004
Findings & Recommendations
1 findings
F3:
4: Parents assume that DCSS and the court will handle their paperwork safely and with dispatch.
Additional Recommendations
3
Not linked to specific findings.
R3a:
Use a Full-Time Phone Team to Answer Calls SFDCSS should plan for installation of a full-time phone team trained to deal with ordinary questions and problems of clients. CGJ recommends that it be patterned after that of the Contra Costa County DCSS. Otherwise, teams and the ombudsperson should make every effort to follow DCSS policy and answer phones in person as often as possible. Responses Karen M. Roye Assistant Director Department of Child Support Services July 23, 2004 Disagree: The Department believes that does, in fact, have staff operating as a Phone Call Center. As stated in our overview presentation to the CGJ in November 2003, the Department has six (6) Operational Teams that handle a caseload of approximately 27,000 cases. On each business day, each Operational Team assigns two (2) Child Support Officers (CSO’s) to answer phone calls from the public. This means that on every business day, there is twelve (12) CSO’s assigned to answer phones. This compares more favorably than the Phone Team that the CGJ viewed in Contra Costa County. According to the CGJ finding, the eight (8) people Phone Team in Contra Costa County answers all phone calls. It should be noted that Contra Costa County DCSS has a caseload of approximately 42,000 cases or 5,250 cases per operator. Department allocates twelve (12) CSO’s to answer all phone calls for a caseload of approximately 27,000 cases or 2,250 cases per CSO. On a daily basis, Department assigns twelve (12) fully trained and experienced CSO’s to answer phones. It should be noted that some counties use clerical staff or lower classifications to answer phone calls. This results in information being forwarded to another staff person, usually an experienced CSO for follow-up action adding to delayed responses. Department assigned to answer phone calls are fully trained and experienced CSO’s who can handle the call when taken. There are no referrals to other staff or units for follow-up. Whoever answers the phone that day is assigned the task/problem presented by that phone call. This results in quicker and more efficient activity. In the last Fiscal Year, Department staff logged in 61,234 phone calls. This translates to an average of 5,103 phone calls per month; an average of 306 calls per business day. Karen M. Roye Director Department of Child Support Services June 27, 2005 Agree/Partially Implemented: It is the intention of the California Department of Child Support Services to implement a statewide call-center beginning the fall of 2006. This system will have regionalized offices that provide initial customer call responses for all 58 counties. The counties have been advised by the state and are preparing integrate its current services into the new system. In the meantime, the Department does have staff operating as a Phone Call Center. The Department currently has full time case workers responding to and resolving customer complaints and concerns every business day between the hours of 8:00am and 5:00pm. The Department has five (5) Operational Teams that handle a caseload of approximately 27,000 cases. On each business day, each Operational Team assigns two (2) Child Support Officers (CSO’s) to answer phone calls from the public. In the last Fiscal Year, Department staff logged in 61,234 phone calls. This translates to an average of 5,103 phone calls per month; an average of 306 calls per business day. According to the CGJ finding, the eight (8) people Phone Team in Contra Costa County answers all phone calls for a caseload of approximately 42,000 cases. That means the San Francisco has more staff dedicated to phone support than Contra Costa and that the support provided is by professional Child Support Officers that can respond immediately to concerns and avoid unnecessary delays for our clients. This means that on every business day, there are ten (10) CSO’s assigned to answer phones. This compares more favorably than the Phone Team that the CGJ viewed in Contra Costa County. It should be noted that Contra Costa County DCSS operates as the emergency response unit for the County. The funding required to develop and implement Contra Costa’s call center was provided by the County directly and had an estimated cost of approximately $1.0 million and includes hardware, software, plasma screens, staffing, etc. The Department is working to develop a cost-effective version of the Contra Costa center by centralizing the existing staff and providing additional training to Child Support Officers’ to improve their customer service performance. It should be noted that some counties use clerical staff or lower classifications to answer phone calls. This results in information being forwarded to another staff person, usually an experienced CSO for follow-up action adding to delayed responses.
R3b:
Parents Keep Copies of all Paperwork and Back-up Its Information on Computers CSOs and/or attorneys should advise parents to keep back-up copies of all paperwork and bring it with them to court. The committee recommends that DCSS arrange to store all back-up information on computer so that information will not be lost. Responses Karen M. Roye Assistant Director Department of Child Support Services July 23, 2004 Agree: The Department has an existing regulation that requires Department staff to remind all parties to a case that they are advised to keep back-up copies of all relevant documents and bring them to court. On all cases that go to court hearing, the assigned Department attorney is responsible for maintaining a hardcopy litigation file folder that contains all the required documents/information. In addition, each party submits all documents required by the Court to the Court file. Karen M. Roye Director Department of Child Support Services June 27, 2005 Agree/Implemented: The Department has an existing regulation that requires Department staff to remind all parties to a case that they are advised to keep back-up copies of all relevant documents and bring them to court. On all cases that go to court hearing, the assigned Department attorney is responsible for maintaining a hardcopy litigation file folder that contains all the required documents/information. In addition, each party submits all documents required by the Court to the Court file.
R3c:
Reconcile Cross-Complaints by Parents and Eliminate Costly Court Appearances DCSS should make every effort to reconcile cross-complaints by both parents and eliminate the need for a costly court appearance. However, when the court procedure is necessary, each parent should be given formal and timely notice. Responses Karen M. Roye Assistant Director Department of Child Support Services July 23, 2004 Agree: The Department recognizes the cost benefits of settling cases before and/or without going to court. This is stressed in our training and procedures. At every step in the process, the other party is offered the option of agreeing or stipulating to a settlement without going to court. However, it is not possible to settle all issues without going to court. For example, disputes between the parties as to actual income, actual childcare costs, actual hours of custody/visitation, etc. are issues that can only be decided by the Court. It is the practice of our Court and our legal staff that prior to every court calendar session, CSO’s assigned to assist our attorneys will meet with all appearing parties to review the issues and to see if any agreement or stipulation is possible before the matter is called before the Court. Any such settlements/agreements reduce the time and demand of the Court and our attorneys. Karen M. Roye Director Department of Child Support Services June 27, 2005 Agree/Implemented: The Department recognizes the cost benefits of settling cases before and/or without going to court. This is stressed in our training and procedures. At every step in the process, the other party is offered the option of agreeing or stipulating to a settlement without going to court. However, it is not possible to settle all issues without going to court. For example, disputes between the parties as to actual income, actual childcare costs, actual hours of custody/visitation, etc. are issues that can only be decided by the Court. It is the practice of our Court and our legal staff that prior to every court calendar session, CSO’s assigned to assist our attorneys will meet with all appearing parties to review the issues and to see if any agreement or stipulation is possible before the matter is called before the Court. Any such settlements/agreements reduce the time and demand of the Court and our attorneys. In addition, the Department has implemented its Enhanced Parental Involvement Collaborative in order to increase participation of non-custodial parents (NCP) and reduce the number of default orders that adversely impact the NCP. This program includes higher levels of customer service and outreach, bilingual support, case management by specific case workers, and increased initiation of communication by caseworkers. The results have been better than anticipated with 95% participation by NCPs in the process of stipulations rather than default orders. General Responses Gavin Newsom Mayor Office of the Mayor September 7, 2004 I am pleased to present my response to the 2003-2004 Civil Grand Jury report on the Department of Child Support Services (DCSS). This letter underscores my continued commitment to work with DCSS to facilitate and implement changes that will help the Department better serve the citizens of San Francisco. I have carefully considered the findings and recommendations of the Civil Grand Jury, as well as the Department’s response. The Department has demonstrated thoughtful analysis and a strong commitment to implement the necessary changes. Thus, it is with full confidence that I concur with the Department’s response to the Civil Grand Jury report. I submit the following responses to the specific Civil Grand Jury recommendations: I. IN-TAKE PROCESS I commend the steps that DCSS has already taken to help facilitate the in-take process for parents in need of free services, especially with regard to cultural sensitivity. In order to make the in-take process more transparent, DCSS has done the following: • Begun to develop a flow chart, in multiple languages, that outlines the entire process, • Increased the number of outreach materials, • Produced posters, flyers and videos that will be available at libraries, hospitals, and community agencies, • Initiated development of a website where customers can access case status, • Collaborated with the Family Law Facilitator to develop a pamphlet to be distributed at all branch offices. II. PRINTED INFORMATION I commend the Department’s efforts to quickly implement change in regards to the Civil Grand Jury recommendations on printed materials. The Department has done the following in order to provide a more accessible and welcoming office environment: • Purchased and installed display racks for increased accessibility to printed information, • Will provide printed material for the law facilitator’s offices and courts, • Begun work with Department of Public Works to renovate the office and create a more welcoming environment. III. CASE MANAGEMENT I am pleased that DCSS has taken a proactive response to the issue of back-up materials and reconciling cross-complaints by parents, there by eliminating the need for costly court appearances. DCSS has made it clear that they advise parents on both issues, in order to best serve their customers. In conclusion, I offer my thanks to the 2003-2004 Civil Grand Jury for their service to the City and County of San Francisco, and applaud their commitment to improving the effectiveness of City government. Adele Destro Assistant Clerk of the Board Board of Supervisors September 24, 2004 The following is a response to the 2003-2004 Civil Grand Jury Report, San Francisco Department of Child Support Services: Putting the Children First, in accordance with Penal Code Section 933 and Administrative Code Section 2.10. The Board of Supervisors’ City Services Committee held a hearing on Thursday, September 23, 2004 on the Civil Grand Jury Report. Representatives from both the Civil Grand Jury and the Department of Child Support Services were present at the hearing. Child Support Services agreed to all but 1 of 9 recommendations by the Civil Grand Jury and may be willing to revisit this recommendation providing funding is available. Some of the recommendations have also been implemented. The City Services Committee has filed the matter. The Board of Supervisors’ City Services Committee held a hearing on September 23, 2004. Child Support Services agreed to all but 1 of 9 recommendations by the Civil Grand Jury and may be willing to revisit this recommendation providing funding is available. Some of the recommendations have also been implemented. The City Services Committee has filed the matter. Adele Destro Assistant Clerk of the Board Board of Supervisors June 29, 2005 The Board of Supervisors’ City Services Committee held a hearing on September 23, 2004. Child Support Services agreed to all but 1 of 9 recommendations by the Civil Grand Jury and may be willing to revisit this recommendation providing funding is available. Some of the recommendations have also been implemented. The City Services Committee has filed the matter. TERMS DCSS -Department of Child Support Services (county, state, federal) CGJ- Civil Grand Jury CSO -Child Support Officer CALWORKS -California Work Opportunity and Responsibility to Kids MEDICAID -Source of government funding for medical- and health-related services for people with limited income. FOSTER CARE -Social Services Department's paid placement of a child with foster caregivers instead of with birth family. WICSEC -Western Interstate Child Support Enforcement Council SACSS -State Automated Child Support System 209 Civil Grand Jury Recommendations Department of Child and Department Reponses Support Services Written materials (in translation when appropriate) to be presented and explained at in-take should include a flow chart outlining the process to be undertaken from start to finish. Agree/ 1a Specifics should describe all of the players in the process and Implemented their roles-especially including DCSS, their computer and phone systems, and all its divisions: in-take, DSOs, attorneys and the ombudsperson. The role of the court and the Family Law Facilitator and how they can be accessed should be explained-especially if it Agree/ 1b appears that the parents will be unwilling or unable to stipulate a Implemented plan for child support. Packet information should be reinforced by the use and Agree/ 1c distribution of posters, flyers and videos made available in Implemented libraries, churches, shops, hospitals and community agencies. SFDCSS should add to its long-range plan the production of multilingual educational videos and television and radio 1d advertisements. By collaborating with other agencies and by accessing volunteer time, talent and dollars, DCSS can expand its services to clientele. In an attractive and efficient manner. DCSS should set up, monitor and stock regularly display racks of written materials Agree/ 2a and handouts at all DCSS offices, law facilitators offices and Implemented courtrooms. Re-arrange the main-office entry so that DCSS looks more like a Agree/ 2b sanctuary than a jail. {Pattern reception area after that of the Implemented Contra Costa County DCSS.} SFDCSS should plan for installation of a full-time phone team trained to deal with ordinary questions and problems of clients. CGJ recommends that it be patterned after that of the Contra Agree/ 3a Costa County DCSS. Otherwise, teams and the ombudsperson Partially Implemented should make every effort to follow DCSS policy and answer phones in person as often as possible. CSOs and/or attorneys should advise parents to keep back-up copies of all paperwork and bring it with them to court. The Agree/ 3b committee recommends that DCSS arrange to store all back-up Implemented information on computer so that information will not be lost. DCSS should make every effort to reconcile cross-complaints by both parents and eliminate the need for a costly court Agree/ 3c appearance. However, when the court procedure is necessary, Implemented each parent should be given formal and timely notice. For each recommendation, the Civil Grand Jury did not require responses from all departments. The table only identifies those departments that responded to specific recommendations. CHAPTER 8 CONTINUITY REPORT
Findings & Recommendations
4 findings
F1:
The San Francisco Unified School District Does Not Provide Safe Learning Environments for all of the County Community Schools
F2:
The San Francisco Unified School District Should Ensure That County Community Schools Per-Student Allotments Are Being Used for Intended Purposes
F3:
The San Francisco Unified School District Does Not Fulfill Its Promise of Excellence for All
F4:
The San Francisco Unified School District Needs to Provide Information on the Success of the County Community Schools
Additional Recommendations
18
Not linked to specific findings.
R1:
The Department has developed new flyers, posters and scripts designed to inform and convince obligors to participate in their cases. These written materials use 7th grade English to foster better communication and have been translated into Spanish. Listed below are the written materials currently in use by the EPIC Project that were developed specifically for the NCP that is in 7th grade English or Spanish that is less formal and therefore less intimidating.
R1a:
Study the Availability of Other Suitable School Sites to Relocate the Phoenix Campus SFUSD owns properties that are not presently being used for city schools. The Board and Administration should study the availability of suitable sites for relocation of Phoenix. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 This recommendation requires further analysis. Within the next six months, SFUSD will analyze whether there are other available and appropriate sites for Phoenix High School. However, it should be noted that SFUSD attempted to relocate Phoenix High School to a new location on Evans Street during the 2002-2003 school year, and the students and staff from the school vigorously opposed the move before the Board. Therefore, the Board opted to retain the school’s location at 1950 Mission in recognition of the articulated wishes of Phoenix High School students and staff. In addition to going through SFUSD’s Program Placement Committee, any program or site change must comply with Board Resolution 46-8A10 (“Resolution to Increase Public Input in Program and School Placement”), which requires opportunities for community input into proposed site changes. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 In February 2005, the Director of County Community Schools re-evaluated whether an SFUSD facility located on Evans Street in San Francisco would be a suitable location to relocate Phoenix High School. The location was found to be unsuitable because the facility’s classrooms are located around a machine shop that is operated by a Junior College during the school day. The noise generated from the machine shop would be distracting and would interfere with classroom instruction. District staff also investigated whether it would be possible to relocate Phoenix High to one of the school sites that were closed during the school year to help address the District’s budget deficit. One of the main criteria for school closures was the underutilization of the school site due to low enrollment numbers. In order to fully utilize facility space and to satisfy legal obligations to the District’s charter schools under Proposition 39, these sites will house a combination of several District and/or charter schools. It is not feasible for Phoenix High to share space in this manner, because it would require the District to commingle students in comprehensive programs with students who have been expelled for a serious violation of District rules.11 11 In the context of Community Day Schools (which also serve students who have been expelled), the Education Code acknowledges the problem of commingling students in comprehensive schools with students who have been expelled. Cal. Educ. Code Section 48661(a). 155
R1b:
Relocate Immediately the Phoenix Campus SFUSD should move immediately to relocate the CCS Phoenix School campus. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 This recommendation requires further analysis, as described above. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 As noted above, the District determined that relocation of the Phoenix High School site is not currently feasible. However, the Director of County Community Schools has taken action to improve the physical quality of the facility located at 1950 Mission. The entire facility has been cleaned, reorganized and enhanced to increase the physical resources available to Phoenix High School students. The facility has been updated to include a computer lab with an LCD screen that is used for classroom instruction, online courses (such as Drivers Education) and Cooperative Vocational Education. The site also has a new library, and a multipurpose room that houses health and wellness information, as well as information about community resources for students, parents and guardians. This room is also used to house a social worker that works directly with students and also refers them to outside community resources. The room is used to hold girls counseling groups, and will be used as a recreational area with a ping pong table and other games for students. The site also includes space that is used for parent group meetings. The site includes offices for a secretary, counselors, and an office for a parent liaison assigned to county community schools. Two curriculum specialists will be hired for the 2005-2006 school year to support teachers in the county community schools, a Program Administrator to oversee English Language Learner programs in county schools, and an English Language Development teacher will be hired as well. As part of the reorganization, the Director distributed new textbooks that were located at this site to all county community schools, and created a textbook room to store extra copies of these resources. The external areas of the facility have been improved to provide a tented eating and gathering area, a basketball court and a volleyball court, and flower boxes have been added around classrooms. During the summer of 2005, the entire outdoor area of the school will be re-surfaced. The Director has also worked with San Francisco Police Department Captain Goldberg to arrange for officers to closely patrol the areas surrounding the schools, and the school has posted prominent signs that warn of enhanced penalties for drug activity within a school zone. 156
R1c:
The New Phoenix Campus Should Be Ready by the 2004-2005 school year. Ideally, a new Phoenix School campus would be ready for the 2004-2005 school year. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 This recommendation requires further analysis, as described above. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 As noted above, the District determined that relocation of the Phoenix High School site is not currently feasible. The physical improvements made to the Phoenix High School site are described above.
R1d:
Relocate the Community Youth Center From Polk Street A secondary priority is the relocation of the Community Youth Center's one- room school from its location on Polk Street, above a strip joint. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 This recommendation is in the process of implementation. CYC is currently in the process of negotiating a new lease for their site to be relocated to Van Ness and Sutter. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 The Community Youth Center one-room school that was located on Polk Street has been closed, and in the 2004-2005 school year students were relocated to a new site.
R1e:
Prepare to Replace All One-Room Schools in the County System The five-year plan should include preparations to replace all one-room schools in the county system. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 This recommendation is currently in the process of implementation. The District agrees that single site classes should be eliminated and is in the process of evaluating those sites for relocation. In addition to taking steps to move CYC to a new location, the Potrero Hill Neighborhood Center school site has been moved to the Principal’s Center Collaborative Campus. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 The District has closed all county community single room schools, and has consolidated these small schools into four main campuses that are able to provide more comprehensive support and resources. The single room schools that were closed include Community Youth Center, Potrero Hill Neighborhood Center, and Ella Hill Hutch. Under this new reorganization, each campus delivers comprehensive core curriculum with a strong academic focus. The four campuses are listed below: • Phoenix Campus: Provides core 9-12 curriculum, Special Day Class, Resource Specialist, English Language Learner support, and a middle school component. • Principal Center Collaborative: This collaboration between SFUSD and Juvenile Probation provides core 9-12 curriculum, Special Day Class, Resource Specialist, and English Language Learner support. The campus holds three programs including: Project Impact, Youth Treatment Education Court (education and youth substance abuse treatment), SF Girls and Boys Group Home (Bay High). The site also holds a new Youth Guidance Transition Center, which provides a transition program for students who are re-entering the District after being confined to the Youth Guidance Center for a short period of time. • Community Scholars of Success: Provides core 9-12 curriculum, Resource Specialist, English Language Learner support. • Sunshine Campus: Provides core 9-12 curriculum, Special Day Class (Hilltop), Resource Specialist, English Language Learner support. This site houses the Real Alternatives High School and the Hilltop School (for pregnant minors). The county programs have partnered with Pupil Services to develop an Intake Center located at the School of the Arts. This three week program offers assessment, counseling, school review, case management and enrollment options. This program was created to support appropriate academic placement, and to ease the student’s return to school after being referred to Pupil Services due to habitual truancy or behavioral issues. Students obtain 5 credits for successful completion of the Intake program. Next year, county teachers will receive more curricular support through the county’s newly developed instructional reform model. The model’s design has each site administrator assigned to a specific academic department. Each administrator, in conjunction with two new curriculum specialists, is responsible for conducting monthly meetings to align all county programs to standardized instruction. The curriculum will be mapped to core assessments that will be used to measure what students have learned, and to track teaching strategies employed by the teachers. All county teachers have obtained CLAD certification.
R1f:
Maintain a History of Grievances Against Each Deputy A history of grievances against a deputy should be maintained and forwarded when the deputy moves to another facility. Response Michael Hennessey Sheriff Office of the Sheriff July 28, 2005 We disagree with this recommendation because it is violative of City procedures and state law regarding employee discipline.
R1g:
Simplify the Grievance Form The grievance form should be simplified. Response Michael Hennessey Sheriff Office of the Sheriff July 28, 2005 This recommendation has been implemented. General Responses Adele Destro Assistant Clerk of the Board Board of Supervisors September 24, 2004 The following is a response to the 2003-2004 Civil Grand Jury Report, San Francisco Sheriff’s Department Grievances: A Solution, in accordance with Penal Code Section 933 and Administrative Code Section 2.10. The Board of Supervisors’ City Services Committee held a hearing on Thursday, September 23, 2004 on the Civil Grand Jury Report. Representatives from both the Civil Grand Jury and the Sheriff’s Department were present at the hearing. The Sheriff’s Department agreed with most of the findings and recommendations. The matter was continued until Thursday, October 21, 2004 to hear a progress report from the Sheriff’s Department. Adele Destro Assistant Clerk of the Board Board of Supervisors October 26, 2004 The following is a progress report to the 2003-2004 Civil Grand Jury Report, San Francisco Sheriff’s Department Grievances: A Solution, in accordance with Penal Code Section 933 and Administrative Code Section 2.10. The Board of Supervisors’ City Services Committee continued the hearing on Thursday, October 21, 2004 to hear a progress report from the Sheriffs Department. The Department reported it is modeling a policy similar to Alameda County in order to track grievances, responses and corrective action taken. It will modify the grievance form and procedures, which will simplify the process for both the inmates and staff. What remains unresolved is the accessibility of a locked box where inmates drop off grievances. The Department is exploring alternatives to provide inmates confidential submission of grievances and the assurance of directing grievances to the appropriate individual(s). Target date for the completion of a revised policy and procedure is December 31, 2004. The Committee was satisfied with the progress report and the matter was filed. Adele Destro Assistant Clerk of the Board Board of Supervisors June 29, 2005 The Board of Supervisors’ City Services Committee continued the hearing on Thursday, October 21, 2004 to hear a progress report from the Sheriffs Department. The Department reported it is modeling a policy similar to Alameda County in order to track grievances, responses and corrective action taken. It will modify the grievance form and procedures, which will simplify the process for both the inmates and staff. What remains unresolved is the accessibility of a locked box where inmates drop off grievances. The Department is exploring alternatives to provide inmates confidential submission of grievances and the assurance of directing grievances to the 179 appropriate individual(s). Target date for the completion of a revised policy and procedure is December 31, 2004. The Committee was satisfied with the progress report and the matter was filed. TERMS Grievance- a complaint made by an inmate against an employee of the Sheriffs Department. Grievant- an inmate who makes a complaint. Ombudsman -a person employed by an institution to investigate complaints against that institution. Civil Grand Jury Recommendations Sheriff and Department Reponses The Department should review and amend, if 1a needed, the current "Policy and Procedure" Implemented manual. The Department should purchase/develop 1b In Process software to automate the grievance procedure. The Department should assign a full-time employee to input data. A senior officer should be 1c Disagree assigned to oversee the program and provide periodic reports to designated senior staff. Every grievant should receive a written response 1d to a complaint within ten (10) days of the date of Disagree filing. Grievance forms should be placed by the inmate 1e Disagree in a locked box or other secure location. A history of grievances against a deputy should 1f be maintained and forwarded when the deputy Disagree moves to another facility. 1g The grievance form should be simplified. Implemented For each recommendation, the Civil Grand Jury did not require responses from all departments. The table only identifies those departments that responded to specific recommendations. This page intentionally left blank. CHAPTER 6 INCARCERATION AND BEYOND: WHERE DO WE GO FROM HERE?
R2a:
Make Budgets Available for Authorized Agencies SFUSD should make its budget readily available for inspection by authorized agencies, in particular, the Civil Grand Jury. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 The Grand Jury Report acknowledges that the Civil Grand Jury has obtained budget print outs for SFUSD. With regard to other agencies, SFUSD will implement this recommendation through its compliance with the applicable provisions of the Public Records Act, California Government Code Section 6250 et seq. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 SFUSD continues to comply with the provisions of the Public Records Act, California Government Code Section 6250 et seq.
R2b:
Present Clear Budget Information Budget information should be presented clearly, if possible, with explanatory summaries. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 SFUSD will implement this recommendation to the extent that it is consistent with the applicable provisions of the Public Records Act, California Government Code Section 6250 et seq. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 SFUSD continues to comply with the provisions of the Public Records Act, California Government Code Section 6250 et seq.
R2c:
Keep Separate Budgets for the Two School Systems To insure the equitable distribution of funds and to avoid co-mingling of assets, two separate budgets should be kept for the separate school systems of city and county. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 This recommendation is unnecessary because the District current budget system separately tracks county community funds. The District’s financial accounting is maintained in accordance with the Standardized Account Code Structure (SACS) as required by California Education Code. As such, the District tracks all revenue, budgets, and expenditures by fund, resource, goal, function, object and organization code. In this structure, County funds are designated as Fund 05. Furthermore, County / Community Schools, Log Cabin, Woodside Learning Center, and the Hilltop Program have separate organization codes that allow for tracking of budgets and expenditures within each organization code. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 As noted in the original response, this recommendation is unnecessary because the District current budget system separately tracks county community funds.
R3a:
Replace County Community Schools with Community Day Schools Replace the minimum-service County Community Schools with the more challenging Community Day Schools. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 This recommendation requires further analysis over the next six months to determine whether the development of more Community Day Schools would be appropriate and effective within the District. However, the District has already increased the school day for county community students, and has increased support to these students, as described above in section 3.1. It is unclear whether the Community Day School system is the most effective way to provide increased service to county community students. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 The Director of County Community Schools and three of the CCS site administrators attended a conference in Sacramento to learn more about Community Day Schools. In May 2005, the CCS Director and the four CCS administrators made a presentation to the SFUSD Board of Education Curriculum Committee regarding the programs and services provided by county community schools. Among the topics discussed was the possibility of developing Community Day Schools in the District. Daniel Sackheim, the Community Day Schools consultant for the California Department of Education, made a presentation on this topic and distributed detailed information about the benefits and requirements associated with Community Day Schools. CCS staff determined that developing Community Day Schools was not necessary, because the District has already taken action to provide many of the enhanced resources available through Community Day Schools. For example, the District has extended the instructional minutes provided in CCS, has provided a low pupil-teacher ratio, school counselors, individualized instruction, and specified services for youth on probation. The District has also provided enhanced support and resources such as a social worker, parent liaison, and attendance liaison. Additionally, the District is planning to hire two curriculum specialists, a Program Administrator to oversee English Language Learner programs in county schools and an English Language Development teacher for the 2005-2006 school year. Finally, the District already receives enhanced per-student apportionments for students on probation, many of whom are in county community schools.
R3b:
Use All Available Funding to Upgrade to Community Day Schools Use all available funding for county schools by upgrading and making the necessary commitment to Community Day Schools. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 This recommendation requires further analysis over the next six months to determine whether the development of more Community Day Schools would be appropriate and effective within the District. However, the District has already increased the school day for county community students, and has increased support to these students, as described above in section 3.1. It is unclear whether the Community Day School system is the most effective way to provide increased service to county community students. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 See update to 3a, above.
R3c:
Reconcile Cross-Complaints by Parents and Eliminate Costly Court Appearances DCSS should make every effort to reconcile cross-complaints by both parents and eliminate the need for a costly court appearance. However, when the court procedure is necessary, each parent should be given formal and timely notice. Responses Karen M. Roye Assistant Director Department of Child Support Services July 23, 2004 Agree: The Department recognizes the cost benefits of settling cases before and/or without going to court. This is stressed in our training and procedures. At every step in the process, the other party is offered the option of agreeing or stipulating to a settlement without going to court. However, it is not possible to settle all issues without going to court. For example, disputes between the parties as to actual income, actual childcare costs, actual hours of custody/visitation, etc. are issues that can only be decided by the Court. It is the practice of our Court and our legal staff that prior to every court calendar session, CSO’s assigned to assist our attorneys will meet with all appearing parties to review the issues and to see if any agreement or stipulation is possible before the matter is called before the Court. Any such settlements/agreements reduce the time and demand of the Court and our attorneys. Karen M. Roye Director Department of Child Support Services June 27, 2005 Agree/Implemented: The Department recognizes the cost benefits of settling cases before and/or without going to court. This is stressed in our training and procedures. At every step in the process, the other party is offered the option of agreeing or stipulating to a settlement without going to court. However, it is not possible to settle all issues without going to court. For example, disputes between the parties as to actual income, actual childcare costs, actual hours of custody/visitation, etc. are issues that can only be decided by the Court. It is the practice of our Court and our legal staff that prior to every court calendar session, CSO’s assigned to assist our attorneys will meet with all appearing parties to review the issues and to see if any agreement or stipulation is possible before the matter is called before the Court. Any such settlements/agreements reduce the time and demand of the Court and our attorneys. In addition, the Department has implemented its Enhanced Parental Involvement Collaborative in order to increase participation of non-custodial parents (NCP) and reduce the number of default orders that adversely impact the NCP. This program includes higher levels of customer service and outreach, bilingual support, case management by specific case workers, and increased initiation of communication by caseworkers. The results have been better than anticipated with 95% participation by NCPs in the process of stipulations rather than default orders. General Responses Gavin Newsom Mayor Office of the Mayor September 7, 2004 I am pleased to present my response to the 2003-2004 Civil Grand Jury report on the Department of Child Support Services (DCSS). This letter underscores my continued commitment to work with DCSS to facilitate and implement changes that will help the Department better serve the citizens of San Francisco. I have carefully considered the findings and recommendations of the Civil Grand Jury, as well as the Department’s response. The Department has demonstrated thoughtful analysis and a strong commitment to implement the necessary changes. Thus, it is with full confidence that I concur with the Department’s response to the Civil Grand Jury report. I submit the following responses to the specific Civil Grand Jury recommendations: I. IN-TAKE PROCESS I commend the steps that DCSS has already taken to help facilitate the in-take process for parents in need of free services, especially with regard to cultural sensitivity. In order to make the in-take process more transparent, DCSS has done the following: • Begun to develop a flow chart, in multiple languages, that outlines the entire process, • Increased the number of outreach materials, • Produced posters, flyers and videos that will be available at libraries, hospitals, and community agencies, • Initiated development of a website where customers can access case status, • Collaborated with the Family Law Facilitator to develop a pamphlet to be distributed at all branch offices. II. PRINTED INFORMATION I commend the Department’s efforts to quickly implement change in regards to the Civil Grand Jury recommendations on printed materials. The Department has done the following in order to provide a more accessible and welcoming office environment: • Purchased and installed display racks for increased accessibility to printed information, • Will provide printed material for the law facilitator’s offices and courts, • Begun work with Department of Public Works to renovate the office and create a more welcoming environment. III. CASE MANAGEMENT I am pleased that DCSS has taken a proactive response to the issue of back-up materials and reconciling cross-complaints by parents, there by eliminating the need for costly court appearances. DCSS has made it clear that they advise parents on both issues, in order to best serve their customers. In conclusion, I offer my thanks to the 2003-2004 Civil Grand Jury for their service to the City and County of San Francisco, and applaud their commitment to improving the effectiveness of City government. Adele Destro Assistant Clerk of the Board Board of Supervisors September 24, 2004 The following is a response to the 2003-2004 Civil Grand Jury Report, San Francisco Department of Child Support Services: Putting the Children First, in accordance with Penal Code Section 933 and Administrative Code Section 2.10. The Board of Supervisors’ City Services Committee held a hearing on Thursday, September 23, 2004 on the Civil Grand Jury Report. Representatives from both the Civil Grand Jury and the Department of Child Support Services were present at the hearing. Child Support Services agreed to all but 1 of 9 recommendations by the Civil Grand Jury and may be willing to revisit this recommendation providing funding is available. Some of the recommendations have also been implemented. The City Services Committee has filed the matter. The Board of Supervisors’ City Services Committee held a hearing on September 23, 2004. Child Support Services agreed to all but 1 of 9 recommendations by the Civil Grand Jury and may be willing to revisit this recommendation providing funding is available. Some of the recommendations have also been implemented. The City Services Committee has filed the matter. Adele Destro Assistant Clerk of the Board Board of Supervisors June 29, 2005 The Board of Supervisors’ City Services Committee held a hearing on September 23, 2004. Child Support Services agreed to all but 1 of 9 recommendations by the Civil Grand Jury and may be willing to revisit this recommendation providing funding is available. Some of the recommendations have also been implemented. The City Services Committee has filed the matter. TERMS DCSS -Department of Child Support Services (county, state, federal) CGJ- Civil Grand Jury CSO -Child Support Officer CALWORKS -California Work Opportunity and Responsibility to Kids MEDICAID -Source of government funding for medical- and health-related services for people with limited income. FOSTER CARE -Social Services Department's paid placement of a child with foster caregivers instead of with birth family. WICSEC -Western Interstate Child Support Enforcement Council SACSS -State Automated Child Support System 209 Civil Grand Jury Recommendations Department of Child and Department Reponses Support Services Written materials (in translation when appropriate) to be presented and explained at in-take should include a flow chart outlining the process to be undertaken from start to finish. Agree/ 1a Specifics should describe all of the players in the process and Implemented their roles-especially including DCSS, their computer and phone systems, and all its divisions: in-take, DSOs, attorneys and the ombudsperson. The role of the court and the Family Law Facilitator and how they can be accessed should be explained-especially if it Agree/ 1b appears that the parents will be unwilling or unable to stipulate a Implemented plan for child support. Packet information should be reinforced by the use and Agree/ 1c distribution of posters, flyers and videos made available in Implemented libraries, churches, shops, hospitals and community agencies. SFDCSS should add to its long-range plan the production of multilingual educational videos and television and radio 1d advertisements. By collaborating with other agencies and by accessing volunteer time, talent and dollars, DCSS can expand its services to clientele. In an attractive and efficient manner. DCSS should set up, monitor and stock regularly display racks of written materials Agree/ 2a and handouts at all DCSS offices, law facilitators offices and Implemented courtrooms. Re-arrange the main-office entry so that DCSS looks more like a Agree/ 2b sanctuary than a jail. {Pattern reception area after that of the Implemented Contra Costa County DCSS.} SFDCSS should plan for installation of a full-time phone team trained to deal with ordinary questions and problems of clients. CGJ recommends that it be patterned after that of the Contra Agree/ 3a Costa County DCSS. Otherwise, teams and the ombudsperson Partially Implemented should make every effort to follow DCSS policy and answer phones in person as often as possible. CSOs and/or attorneys should advise parents to keep back-up copies of all paperwork and bring it with them to court. The Agree/ 3b committee recommends that DCSS arrange to store all back-up Implemented information on computer so that information will not be lost. DCSS should make every effort to reconcile cross-complaints by both parents and eliminate the need for a costly court Agree/ 3c appearance. However, when the court procedure is necessary, Implemented each parent should be given formal and timely notice. For each recommendation, the Civil Grand Jury did not require responses from all departments. The table only identifies those departments that responded to specific recommendations. CHAPTER 8 CONTINUITY REPORT
R4a:
Add Information About County Community Schools to the School District’s Website Add comprehensive information about CCS to the SFUSD website and printed materials. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 This recommendation requires further analysis over the next six months. The District will consider creating a website for County Community schools that will contain more information about these schools. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 In January 2004, the District created an area on the SFUSD website that specifically provides information about county community schools, and this website was publicized on KALW FM radio 91.7, in the program entitled “Looking at Education.” This website can be found at: http://portal.sfusd.edu/template/default.cfm?page=school_info.county.
R4b:
Develop a Five-Year Plan for County Schools and to Consider Upgrading to Community Day Schools Devise a separate five-year plan for county schools-with special consideration to upgrading to Community Day Schools--and publicize it. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 The District will not create a separate educational plan for county community schools because Excellence for All applies to county community students. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 As noted in the original response, the District will not create a separate educational plan for county community schools because Excellence for All applies to county community students.
R4c:
Educate District Personnel About County Community Schools Educate district personnel about County Community Schools and familiarize them with descriptive publications and websites. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 The District already provides opportunities for comprehensive and county community school educators to exchange information about their programs, as suggested by this recommendation. County community administrators meet twice a month with comprehensive school principals, and may exchange information about their programs in these meetings. Additionally, county community and comprehensive school assistant principals also meet regularly. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 As noted in the original response, the District already provides opportunities for comprehensive and county community school educators to exchange information about their programs. Teachers and staff now have the additional resource of the SFUSD website that includes new detailed information about county community schools.
R4d:
Celebrate the Dedication of Staff and Students in the County System Celebrate the dedication and hard work of administrators, teachers and students in the county system. Give them the supplies they desperately need. "Nothing succeeds like success," but even the most dedicated laborers will burn out if their efforts are not recognized. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 The District recognizes the achievements and success of all of its county community and comprehensive school teachers and administrators. These teachers and administrators are all recognized as District staff, and are not treated as separate from each other. All celebrations, meetings, parties, and learning institutes are attended by both county community and comprehensive school teachers and/or administrators. The District administration overseeing county community schools will ensure that county community schools have the resources and support that they need. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 As noted in the original response, the District recognizes the achievements and success of all of its county community and comprehensive school teachers and administrators. These teachers and administrators are all recognized as District staff, and are not treated as separate from each other. General Responses Gavin Newsom Mayor Office of the Mayor August 30, 2004 I am pleased to present my response to the 2003-2004 Civil Grand Jury report on County Community Schools in the San Francisco Unified School District. This letter should underscore my continued commitment to work with the San Francisco Unified School District to provide the most productive learning environment for the students of County Community Schools. In April 2004, I was proud to appoint Cedric Yap to be the Mayor’s Advisor on Education. Mr. Yap has been integral in facilitating and maintaining a good relationship between the City and the School District. Mr. Yap will help the Mayor’s Office work with the School District to conduct the necessary analysis of the Civil Grand Jury’s recommendations and swiftly implement any change. As Mayor, I am dedicated to providing an “excellence for all” education for every San Francisco student. In March 2004, I supported Proposition H, which will provide $60 million for San Francisco schools. Additionally, this year the City has invested $11 million in schools, which represents the largest City investment in years. My focus has always been on those students most at risk. The Mayor’s Office has been dedicated to creating an effective combination of city departments and community based agencies targeted at specific school sites. The City contracts with community based organizations to work with students who attend county schools. For instance, Impact Community High School serves 25 county students who are involved in the juvenile justice system and have mental health needs. The City funds the Performing Arts Workshop to provide an arts curriculum that will keep students developing their talents at school. The Family Service Agency, another city-funded community based organization, provides mental health services to students and families as part of the extended school day. Additionally, in conjunction with my workforce development initiative, part of the City’s investment in the School District this year has been allocated to increase alternative career pathways for students who are not focused on higher education for various reasons. This effort should have a positive impact on a number of the students attending county community schools. The Mayor’s Office continues to seek out partnerships that make a real difference in the lives of young people, particularly those with special needs. I remain fully committed to supporting School District policies and procedures that will produce a more accountable and effective county schools system. In conclusion, I offer my thanks to the 2003-2004 Civil Grand Jury for their service to the City and County of San Francisco, and commend their commitment to improving the effectiveness of City government. Dan Kelly, M.D. President Board of Education August 30, 2004 After receiving the Civil Grand Jury reports on the School District's programs in the Bayview Hunter Point and in the County Community Schools, I requested the Superintendent of Schools and her staff to review the Civil Grand Jury's findings and prepare the required responses. I greatly appreciated the Civil Grand Jury's interest in the education of the children of San Francisco and in particular in these two critical and important areas of our work. Having reviewed the Civil Grand Jury reports and the staffs responses, I am confident that you and the Civil Grand Jury will be reassured about the integrity and quality of the District's services both in the County Community Schools and in the Bayview Hunter's Point programs. As the responses we are submitting indicate, the District shares and even anticipates many of the concerns expressed by the Civil Grand Jury and is taking steps to address those concerns. In other areas, however, the Civil Grand Jury's expressed concerns did not represent accurate portrayals of the District's efforts or the community's desires. On the whole, the Civil Grand Jury has been a helpful exercise for us and the community in drawing attention to the importance that we place on the education of every child in San Francisco. Adele Destro Assistant Clerk of the Board Board of Supervisors October 25, 2004 The following is a follow-up report on the 2003-2004 Civil Grand Jury Report, County Community Schools: Poor Stepchildren of the San Francisco Unified School District. The Board of Supervisors’ City Services Committee held a hearing on Thursday, October 21, 2004 on the Civil Grand Jury Report. The San Francisco Unified School District representatives discussed new programs and changes implemented since July 2004, which include addition of information on County Community Schools on its web site and an intake center to evaluate students to properly place them in the right school. Public comment was heard and the matter was filed. Adele Destro Assistant Clerk of the Board Board of Supervisors June 29, 2005 The Board of Supervisors’ City Services Committee held a hearing on Thursday, October 21, 2004. The San Francisco Unified School District representatives discussed new programs and changes implemented since July 2004, which include addition of information on County Community Schools on its web site and an intake center to evaluate students to properly place them in the right school. Public comment was heard and the matter was filed. TERMS SFUSD -San Francisco Unified School District CCS -County Community Schools (County's current program) CDS -Community Day Schools (proposed upgraded program for county schools) CGJ- Civil Grand Jury wrap-around services -Provided by community-based health and social service agencies to c ontinue and/or enhance SFUSD's services. Civil Grand Jury Recommendations Superintendent of Board of Education and Department Reponses Schools SFUSD owns properties that are not presently being used for city schools. The Board and Administration should 1a Not Currently Feasible study the availability of suitable sites for relocation of Phoenix. SFUSD should move immediately to relocate the CCS 1b Not Currently Feasible Phoenix School campus. Ideally, a new Phoenix School campus would be ready for 1c Not Currently Feasible the 2004- 2005 school year. A secondary priority is the relocation of the Community 1d Youth Center's one- room school from its location on Polk Implemented Street, above a strip joint. The five-year plan should include preparations to replace 1e Implemented all one-room schools in the county system. SFUSD should make its budget readily available for SFUSD will comply w/ 2a inspection by authorized agencies, in particular, the Civil CA Public Records Act Grand Jury. Budget information should be presented clearly, if possible, SFUSD will comply w/ 2b with explanatory summaries. CA Public Records Act To insure the equitable distribution of funds and to avoid 2c co-mingling of assets, two separate budgets should be Disagree, Unnecessary kept for the separate school systems of city and county. CCS staff determined that Replace the minimum-service County Community Schools 3a developing Community Day Schools with the more challenging Community Day Schools. was not necessary Use all available funding for county schools by upgrading CCS staff determined that 3b and making the necessary commitment to Community Day developing Community Day Schools Schools. was not necessary Add comprehensive information about CCS to the SFUSD 4a Implemented website and printed materials. Devise a separate five-year plan for county schools-with 4b special consideration to upgrading to Community Day Disagree Schools--and publicize it. Educate district personnel about County Community District already provides opportunities 4c Schools and familiarize them with descriptive publications for educators to exchange information and websites. about their programs. Celebrate the dedication and hard work of administrators, teachers and students in the county system. Give them the District recognizes the achievements 4d supplies they desperately need. "Nothing succeeds like and success of its staff. success," but even the most dedicated laborers will burn out if their efforts are not recognized. For each recommendation, the Civil Grand Jury did not require responses from all departments. The table only identifies those departments that responded to specific recommendations. CHAPTER 5 THE SAN FRANCISCO SHERIFF’S DEPARTMENT GRIEVANCES: A SOLUTION
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Findings & Recommendations
3 findings
F1:
The Municipal Railway Will Not Meet On-Time Performance and Service Delivery Goals
F2:
Muni’s Light-Duty and Battery Pay Plans, and Workers’ Compensation Benefits Are Being Abused
F3:
The Municipal Railway Needs to Improve Its Training and Safety Programs
Additional Recommendations
11
Not linked to specific findings.
R1a:
Prepare Detailed Plans to Meet Performance Goals MUNI management should prepare detailed plans to attain the on-time performance of 85% and service delivery of 98.5% mandated by Proposition E. Response Cleopatra Vaughns Chair Board of Directors Municipal Transportation Agency Michael T. Burns Executive Director of Transportation Municipal Transportation Agency August 25, 2004 Implemented. The on time performance goal of 85% is not being met, however, Muni has made significant progress in this area. On time performance has gone from 48% in 1999 to 71.5% today. Steps are being taken to improve on-time performance, including: • New technology initiatives (e.g. Nextbus) • Street Management initiatives • Further Muni/DPT coordination efforts • Schedule review to determine feasibility of current schedules For the quarter ending March 31, 2004, service delivery (employee and vehicle availability) was at 98.13%, which is .37 of 1% less than the mandated goal of 98.5%. The missing .37 of 1 percent represents 4 missed runs out of 1254 runs per weekday 843 and 788 runs on Saturday and Sunday. New technology initiatives should make this goal achievable. While an on-time performance of 85% may not be achievable, it should be noted that an independent audit concluded that Muni is making excellent progress toward the achievement of Proposition E goals. Reference: FY2003 Third Quarter Service Standards and Proposition E Municipal Transportation Quality Review Final Report Cleopatra Vaughns Chair Board of Directors Municipal Transportation Agency Michael T. Burns Executive Director of Transportation Municipal Transportation Agency June 30, 2005 During Fiscal Year 2005 MUNI’s System Wide Schedule Adherence or On Time Performance (OTP) continued in the 70% range, which is short of the Proposition E required goal of 85%. For the first three quarters of FY 05 OTP was 70.9%, 72.8% and 69.6% respectively. In FY 05 MUNI’s efforts to improve OTP were significantly limited by budget constraints. MUNI Management remains committed to improving On Time Performance. Efforts currently underway to accomplish this are: 1) Developing and publishing new schedules which better match the budgeted number of operators with the number of runs being scheduled; 2) Increasing the utilization of GPS Technology to better monitor, control and coordinate service on the street and in the subway; 3) Filling street supervisory vacancies; and 4) Continue cooperative efforts between Management, Supervisors and Union Officials.
R1b:
Adopt Proactive and Highly Visible Leadership Roles The Executive Director of MTA, the General Manager of MUNI, and other senior management personnel should adopt proactive and highly visible leadership roles, establish accountability at all levels of management, ensure that all policies are enforced, and inform all employees of policies and the consequences of failing to adhere to them. In order to enhance morale and job satisfaction, the administration should encourage open communication between workers and management. Response Cleopatra Vaughns Chair Board of Directors Municipal Transportation Agency Michael T. Burns Executive Director of Transportation Municipal Transportation Agency August 25, 2004 Implemented. Below are examples of how this has already been implemented: • Yearly employee surveys • Annual establishment of MTA-wide and division goals for senior managers • Monthly letters from the Executive Director attached to each employees paycheck encouraging open communication. • Posters placed at all work locations about MTA-wide goals, Muni’s Mission, Vision and Values Statement and congratulating employees on strong rider survey results. • Monthly, Quarterly and Annual Employee Recognition Program at all operating divisions • Monthly Special Recognition Award Program at MTA Board meetings • Annual Safe Driver Award Program • Executive Director and GM regularly visit all divisions (most recently to discuss the current FY budget) • Establishment of an “intraweb” for the dissemination of information to employees. • Provide a wide variety of training programs including: new operator training, accident retraining, refresher courses, passenger relations and conflict training, Violence in the Workplace, Maintenance Training (including new revenue vehicle training), Ambassador Training, Supervisory Skills Training, Management Skills Training, Theories of Discrimination and the ADA, Preventing and Responding to Workplace Harassment, Preventing Violence in the Transit Workplace, Valuing and Managing Workplace Diversity, Rapport Building, Prohibited Employment Practices Under the Immigration Reform Control Act of 1986, Equal Employment Opportunity Programs After Prop 209 and New Employee Orientation to MUNI's EEO Programs and Services. • Annual Retiree lunch • Personal Bereavement letters sent to the family of employees who have passed. • Bulletins issued to Muni Operations Professionals to inform them about safety regulations, “sign-ups”, special event route changes and compliance with traffic laws. • Biannual MTA Senior Management meetings to discuss plans to achieve MTA-wide goals; provide status updates on significant initiatives and projects; engage in team building exercises; and discuss how to improve communication within the organization. In 2000 and 2001, Muni partnered with TWU, Local 250-A in hosting a Muni-wide “Family Day and Health Fair”. Muni also published monthly newsletters for all employees that highlighted internal activities and accomplishments. Due to budgetary constraints, these activities have been temporarily halted. Over the past four years, Muni has been involved in a cultural change initiative designed to improve customer service, enhance communications, improve labor-management relations, and 99 strengthen the overall quality and character of management throughout the organization. A key element of this initiative was the crafting and distribution of a new Mission Statement in 2002. This Mission Statement represents the collective input of over 1,500 employees who directly participated in a series of 23 “interactive” workshops around the organization, and reflects a broad consensus of employee ideas and opinions about Muni’s’ mission, vision and values. This “mission” initiative continues today and is coordinated by a joint union-management committee - the Mission Action Center (MAC). MAC’s primary goal is to develop, promote, and coordinate implementation of programs that encourage a common understanding of Muni’s mission, and to ensure the daily practice of the values embodied in the Mission Statement. MAC looks for ways to empower employees in living our mission daily, and works directly with division managers, unions and employees in identifying current practices inconsistent with “living-the-mission,” and uses collaborative efforts to find solutions to these roadblocks. The General Manager, along with the Assistant General Managers for Human Resources and Transportation and the Division Superintendents formally meet once a month with the Executive Officers of Local 250A and Chairperson of all seven of MUNI's operating divisions. The meetings usually last two to three hours. They are not grievance handling meetings but cover topics of concern to any participant. Issues such as operator comfort, uniforms, operator performance, safety, system performance and others are routinely discussed. These meetings have consistently occurred for the past 18 months. The General Manager holds a monthly Communication Meeting with 40 to 60 mid level managers. The expressed purpose of these meetings is networking among various departments in MUNI operations. Guest speakers are usually featured and have ranged from the FTA Administrator, to Southwest Airlines Customer Service Representatives. An ongoing emphasis of the meetings is emergency preparedness. In addition to meetings and site visits within the organization, the Executive Director of Transportation and senior staff participate in community meetings in all San Francisco neighborhoods, regularly attends meetings of and represents Muni’s interests to the Board of Supervisors and Transportation Authority. The Executive Director and senior management serve in a leadership capacity in a number of regional forums including serving with the Metropolitan Transportation Commission’s Partnership Board; Chairman of a regional subcommittee to implement Translink; serving on the CalTrain Joint Powers Board and the Transbay Terminal Joint Powers Board. At the regional and State level meetings include the Bay Area Air Quality Management District and California Air Resources Board, serving on the California Transit Association Executive Committee. At the federal level, the Executive Director serves on the ENO Transportation Foundation Board and, along with the Chairman of the MTA Board of Directors, also serves on the American Public Transportation Association Board of Directors. Reference: Mission, Vision, Values Statement, MTA Goals, paycheck letters, Operator Bulletins, Employee Surveys.
R1c:
Compare the Costs and Benefits of Its Light-Duty and Battery-Pay Plans and Workers’ Compensation Benefits to Other Agencies Management should determine where MUNI ranks, vis-a-vis other agencies, in terms of the cost/benefits of its light-duty and battery-pay plans and workers' compensation benefits. Responses Cleopatra Vaughns Chair Board of Directors Municipal Transportation Agency Michael T. Burns Executive Director of Transportation Municipal Transportation Agency August 25, 2004 Not Yet Implemented. It will be complete by December 2004. Muni management is currently looking at how Muni compares to similar transit properties in the country. It should be noted that Muni is composed of five modes, and should be compared to another multi modal transit property. Preliminary information indicates that Muni compares favorably with the only other large multi- modal transit property subject to the same worker’s compensation laws as Muni. Muni management will continue to review, refine and use the best practices used at other transit properties to further strengthen Muni’s worker’s compensation and light duty program. Cleopatra Vaughns Chair Board of Directors Municipal Transportation Agency Michael T. Burns Executive Director of Transportation Municipal Transportation Agency June 30, 2005 San Francisco MTA’s Workers’ Compensation costs; battery and assault pay and light duty programs are comparable to those of similar transit agencies. We continue to monitor both the light duty and battery/assault pay issues on a quarterly and annual basis.
R1d:
Ensure That Its Training and Accident Prevention Programs are Consistent With Industry Standards Management should ensure that MUNI’s training and accident prevention programs are consistent with current industry standards. Response Cleopatra Vaughns Chair Board of Directors Municipal Transportation Agency Michael T. Burns Executive Director of Transportation Municipal Transportation Agency August 25, 2004 Implemented. Muni's new operator training program is based on the Federal Transit Administration's Bus Operator Training program and the our accident prevention training is based on the Smith System's Five Keys To Space Cushion Driving which is the recognized industry standard in both the transit and trucking industries.
R1e:
Consider Employee Comments and Recommendations Management should consider employee comments and recommendations at all levels. Such action can lead to improved working conditions and morale and, ultimately, to improved service. Response Cleopatra Vaughns Chair Board of Directors Municipal Transportation Agency Michael T. Burns Executive Director of Transportation Municipal Transportation Agency August 25, 2004 Implemented. Muni has actively sought input from every employee and considers all comments and recommendations. Not all suggestions can be implemented for a variety of reasons including budget, labor agreements or other physical constraints. In the monthly letter sent to all employees, Muni asks for and encourages employee input. The MTA will continue to work to improve communications with employees. Reference: Paycheck Letters 102
R2a:
Determine and Control the Cost of Its Benefits Plans and Prevent Abuses Management should determine and control the cost of its benefit plans and act to prevent abuses. Response Cleopatra Vaughns Chair Board of Directors Municipal Transportation Agency Michael T. Burns Executive Director of Transportation Municipal Transportation Agency August 25, 2004 Implemented. Muni is controlling the costs of benefit plans and is actively routing out and eliminating abuse. The Municipal Railway is part of the City and County of San Francisco and strictly adheres to its established policies and procedures. The three benefit plans mentioned in the Grand Jury report: Battery Pay, Transitional Work and Workers' Compensation, each have specific components for preventing abuse. All claims for battery pay are investigated by a full-time staff investigator who reviews the incident report and the video tape on-board the vehicle, interviews witnesses, takes a recorded statements from battery pay applicants, reviews all medical evidence and reviews the appropriate City and County laws prior to accepting or denying a claim. As mentioned in section 2.5, there are currently 4 employees who are receiving battery pay at this time A Transitional Work Program Coordinator as well as supervisors and superintendents to whom transitional work employees are assigned monitors the work performed. Workers’ Compensation staff conducts random spot checks. In the event that an abuse of the program is validated, the appropriate steps are taken that may include docked pay, counseling or re-assignment. Benefit rates and increases for the Workers' Compensation program are set by the State of California. Muni’s role is to monitor acceptance and denial of claims, ensure appropriate benefit distribution and insure contract compliance by our Third Party Administrator (TPA). All claims for Workers' Compensation are investigated to determine the validity of the claim. Once the validity has been established, the TPA is contractually required to review each claim every 14, 30, 60 and 90 days, depending on the type of benefit paid or the seriousness of the claim. Workers' Compensation staff reviews claims-related issues with the TPA on a daily basis. Muni investigates allegations of fraud or abuse in cooperation with other city or regional agencies such as the San Francisco Police Department, BART, and the District Attorney. Muni also has a telephone “tip hotline” to encourage the reporting of any abuse.
R2b:
Base Pay for the Light-Duty Plan on Hours Actually Worked Management should consider basing pay under the light-duty plan on hours actually worked. Response Cleopatra Vaughns Chair Board of Directors Municipal Transportation Agency Michael T. Burns Executive Director of Transportation Municipal Transportation Agency August 25, 2004 Implemented. Muni employees in the Transitional Work Program are paid based on hours worked. In 1996, pursuant to Proposition J, the Budget Analyst performed a full management audit of the Public Transportation Department. One of his recommendations was to “discontinue the practice of paying overtime to Special Duty Operators in MUNI Headquarters, for time not actually worked”. A review of the Action Plan prepared by Muni in response to the Audit shows that a policy was established in September 1996, and continues today, that Operators in the Transitional Work Program would be paid on an hourly basis and that staff would monitor compliance with this policy on an ongoing basis. 115 (In 1996, the terms “Special Duty” and “Light Duty” were used interchangeably. Today, the program is called the Transitional Work Program.)
R2c:
Ensure Employees Are Eligible for Light-Duty and That They Actually Perform Assigned Tasks. Management must establish controls to ensure that those employees assigned to light-duty are eligible under the conditions of the plan and are actually performing their assigned tasks. Response Cleopatra Vaughns Chair Board of Directors Municipal Transportation Agency Michael T. Burns Executive Director of Transportation Municipal Transportation Agency August 25, 2004 Implemented. A physician must diagnose all industrially injured employees in writing, before they are eligible for transitional work. A Transitional Work Program Coordinator as well as the supervisors and superintendents to whom transitional work employees are assigned monitors the work performed. In addition, Workers’ Compensation staff conducts random spot checks. Employees assigned to the Transitional Work program are performing their assigned tasks.
R2d:
Managers Should Be Responsible for Employees’ Performance of Light-Duty Assignments. The managers of the departments to which light-duty personnel are assigned should be responsible for their presence and performance. Response Cleopatra Vaughns Chair Board of Directors Municipal Transportation Agency Michael T. Burns Executive Director of Transportation Municipal Transportation Agency August 25, 2004 Implemented. Muni agrees with this recommendation and is confident that all transitional work employees are under supervisory control. A Transitional Work Program Coordinator as well as the supervisors 116 and superintendents to whom transitional work employees are assigned monitors the work performed. Worker’s Compensation staff also performs random checks.
R2e:
The Controller and Budget Analyst Should Audit the Light-Duty and Battery Pay Plans and the Workers’ Compensation Benefit Program. The Office of the Controller and the Budget Analyst's Office should conduct independent audits of the light-duty and battery pay plans and workers’ compensation benefit programs to determine the actual costs of the plans and benefits and the feasibility of determining ways to reduce the overall costs of those programs. Responses Cleopatra Vaughns Chair Board of Directors Municipal Transportation Agency Michael T. Burns Executive Director of Transportation Municipal Transportation Agency August 25, 2004 Not yet Implemented The MTA welcomes audits by any agency. Cleopatra Vaughns Chair Board of Directors Municipal Transportation Agency Michael T. Burns Executive Director of Transportation Municipal Transportation Agency June 30, 2005 We continue to welcome audits by any agency. Ed Harrington Controller Office of the Controller July 29, 2005 The recommendation has not yet been implemented, but will be implemented in the City Services Auditor Division’s audit plan for fiscal year 2005-06. The City Services Auditor Division will work with Muni to determine the priority for conducting audits of the light-duty and battery pay plans and workers’ compensation benefit programs. 117
R2f:
Examine Plans to Ensure They Do Not Duplicate Benefits. Compensatory plans should be examined to ensure that, although they may provide similar assistance, they do not duplicate the benefits. Response Cleopatra Vaughns Chair Board of Directors Municipal Transportation Agency Michael T. Burns Executive Director of Transportation Municipal Transportation Agency August 25, 2004 Implemented. Muni has examined their plans and we are not aware of any compensatory plans that duplicate benefits to injured employees. Some employees may have obtained individual long-term or short- term disability policies that may be used to supplement Workers’ Compensation benefits. Those plans are entirely outside of Muni’s control.
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Findings & Recommendations
4 findings
F1:
crime-ridden address on Mission Street and insure that all other locations are safe.
Related Recommendations (1)
R1:
crime-ridden address on Mission Street and insure that all other locations are safe.
F2:
The Superintendent and the School Board should make every effort to establish equity in the per-student allotments to both city and county schools. Creating two separate budgets would eliminate confusion and would be in keeping with two separate administrations.
Related Recommendations (1)
R2:
The Superintendent and the School Board should make every effort to establish equity in the per-student allotments to both city and county schools. Creating two separate budgets would eliminate confusion and would be in keeping with two separate administrations.
F3:
SFUSD should, with increased funding that would be provided by the State of California, make plans to upgrade the County Community Schools program to the more challenging Community Day Schools program. SFUSD should educate administrators, School Board members, the general public 4. about the mission, needs, potential and amazing successes of The County Community Schools. GLOSSARY SFUSD – San Francisco Unified School District CCS - County Community Schools (County's current program) CDS – Community Day Schools (proposed upgraded program for county schools) CGJ - Civil Grand Jury wrap-around services - Provided by community-based health and social service agencies to continue and/or enhance SFUSD's services. OVERVIEW The San Francisco Unified School District has a website, www.sfusd.edu. Supposedly, it has all the information about the city/county schools one might ever need. There is one glaring omission. There is not a single word about the eighteen County Community Schools. As a result, unless you are a suspended or expelled student or the parent of a problem child, you probably don't know that there are such schools. Except for this brief description in the handout, San Francisco Unified School District's "Enrollment Guide: Excellence for All, 2004/2005," , the committee found written descriptions to be almost nonexistent: County Community Schools administrative offices located at 1950 Mission Street, provides [sic] an educational program for pupils in grades 6--12 that are expelled from a school district, referred for dropout prevention, and pupils who are on juvenile probation. Students are taught in smaller classes and support services are provided by community-based organizations. Community school programs are located at various sites throughout the San Francisco [sic]. Pupil Services staff at 555 Portola Drive facilitates referral and enrollment to County Community Schools. Documents required for enrollment are the same as those described above. Please contact the Dropout Prevention Office at 695-5501 or Student Placement Committee at 695-5517. A call to the Dropout Prevention Office got this response: "We don't have anything to do with the County Schools. Call the School District." Calls to the Placement Committee and the SFUSD Educational Placement Center yielded little useful information. Two face-to-face interviews with a CCS administrator provided Grand Jury members with insights into what appears to be the poorest-funded educational program for the poorest students—fiscally poor and educationally poor. A two-page handout from the administrative offices lists four campuses and nine community sites (not including court schools) for the county schools. One thing these "schools" have in common is that they are staffed by wonderfully caring people many of whom work under pitiful conditions to salvage the city/county's least acknowledged, least motivated, least successful children. Some schools look better than others; some settings look safer than others. Some kids are criminals, some are anti-social, some are pregnant, and some are just losers. They are habitual truants, probationers, kids too difficult at home or school, druggies, gang members: in one way or another, youths who would be called "a handful." The California Department of Education website (www.ca.gov) describes the current CCS curriculum: They provide students with learning opportunities in academic skills, independent life skills, positive self-concepts, and effective relationships with others. . . . A minimum day program for county community schools is 240 minutes. Although many students graduate from county community schools, the programs are designed to transition students to an appropriate educational, training, or employment setting upon the completion of their attendance in county community school or after the court terminates its jurisdiction. All CCS are linked to available wrap-around support services provided by community-based organizations and made available to any student willing to accept them. The problem is that these services may be available as seldom as one day a week or once a month or almost never. Availability of services is different for each location. Often, a student needs to travel to some other site to get needed assistance. Locations are as varied as the students. Some CCS are one-room schools in which a single teacher must teach all subjects in the 6—12 curricula. These may be located in community centers, SFUSD school premises no longer in use for city schools, on the campus of City College, etc. Areas in which these schools are located are equally diverse; most are in reasonably safe neighborhoods. With the impending retirement of several older teachers, CCS one-room schools may be in jeopardy. Newer teachers hold secondary credentials that allow them only to teach their major and minor subjects; whereas older teachers were issued secondary credentials that allowed them to teach all subjects offered at the secondary level. It appears that there is no plan yet in place to address an inevitable modification. BACKGROUND The California Education Code (Sec. 1981) mandates that all children (except those who are legally excused) between the ages of 6 and 18 attend school full time. When students' special needs are not met by District Schools within a county, it becomes the responsibility of the County Offices of Education to provide educational programs for Programs are offered for children with exceptional needs, homeless students, them. pregnant minors, and youths detained in homes and camps. They include County Community Schools, vocational programs, and Community Day Schools. To fund these educational services, county offices receive local, state and federal monies. In the case of San Francisco's County Community Schools, that funding is $93,679,984. As one of seven counties that have a single city school district with the same geographic area as the county, San Francisco maintains County Community Schools that have the same oversight as the SFUSD schools, though—technically—they are separate systems. That is to say that the Superintendent and School Board of SFUSD are also the administrators of county schools. This duality of jurisdiction can be very confusing, especially in the sorting out of budgetary allotments. The CGJ found it nearly impossible to determine exactly how CCS funds are allotted and why there appears to be a significant discrepancy in the per student amounts apportioned for CCS students and the amounts actually used. The Grand Jury committee also discovered that San Francisco County could apply for a more rigorous alternative, Community Day Schools, a state program that requires a longer school day, has more classes, gives vocational training, and offers more services. In order to make these improvements, participating counties receive additional state funding. On its website (www.cde.ca.gov) the California Department of Education describes the Community Day Schools as follows: Community day schools are a relatively new educational placement option, having been first implemented in 1996; they are operated by school districts and county offices of education. Community day schools serve mandatorily and other expelled students, students referred by administrators or by School Attendance Review Board, and other high-risk youths. The 360-minute minimum instructional day includes academic programs as well as programs that focus on social skills, esteem, and resiliency. Community day schools are intended to have low student teacher ratios, counselors, and pupil discipline personnel. Students also receive collaborative services from offices of education, law enforcement, probation, and human services agency personnel who work with at-risk youths. INVESTIGATIVE PROCESS Members of the CGJ Schools Committee interviewed: Administrators of San Francisco Unified School District/County Schools SFUSD/County School Board members . Pupil Services personnel • Budget specialists CCS administrators and teachers Dan Sackheim, California Department of Education/Community Day Schools Members of the CGJ Schools Committee visited and/or interviewed personnel of: Phoenix Campus • RAP/Hilltop Campus • RAP High School Community Scholars of Success Campus Community Youth Center • Walden House . Bay High School/Middle School . CCS Middle School Academy • Ella Hill Hutch Community Center Members of the CGJ Schools Committee read and/or reviewed: Enrollment Guide: "Excellence for All, 2004/2005" . www.sfusd.edu • California Department of Education's DataQuest website • "Educational Alternatives in Public Schools," Fact Book, California Department of Education (www.cde.ca.gov) "Core Elements for Describing a Community Day School," California Department of Education "County Community Schools: A Profile of the County Community Schools, SFUSD” SFUSD DOES NOT PROVIDE SAFE LEARNING ENVIRONMENTS FOR I. ALL OF THE COUNTY COMMUNITY SCHOOLS FINDINGS When the Grand Jury arrived at 1950 Mission Street, the County Community 1.1 Schools' Phoenix Campus, for its first interview, committee members were disconcerted by what they saw. The neighborhood, with a crime rate second only to San Francisco's Tenderloin, is disreputable. It is obvious to even the most unenlightened observer that drug use and prostitution are thriving here with impunity. In addition to an apparent lack of safety, the twelve outdated and obsolete brown bungalows, the asphalt schoolyard, and the one broken basketball backstop loom as an indication of the District's lack of interest in the CCS students' welfare. The school is surrounded by a very necessary chain-link fence, which promotes safety, but hardly a positive learning environment. It does not help that the school day ends at 1:30 PM, when "business" is brisk. A police officer told committee members that, at the local police station, this school has the nickname of "Heroin High." 1.2 On another school visit, CGJ interviewers noted that one of the one-room county schools (Community Youth Center) is located on the second floor of a building that houses a strip joint on the first floor. While the school's access is on a different street, the area would be deemed unsuitable for a city public school, as it should also be for CCS. As in the case of the Phoenix campus, SFUSD again ignores one of its stated goals (http://portal.sfusd.edu): "Maintain school environments that are safe, secure and attractive." (Emphasis added.) 1.3 One-room schools may soon become unfeasible—due to the change in the state's credentialing of new teachers.
Related Recommendations (1)
R3:
SFUSD should, with increased funding that would be provided by the State of California, make plans to upgrade the County Community Schools program to the more challenging Community Day Schools program. SFUSD should educate administrators, School Board members, the general public
F4:
SFUSD SHOULD EDUCATE ADMINISTRATORS, SCHOOL BOARD MEMBERS, AND THE GENERAL PUBLIC ABOUT THE MISSION, NEEDS, POTENTIAL, AND AMAZING SUCCESS OF THE COUNTY COMMUNITY SCHOOLS FINDINGS 4.1. On its website, the School District has a section entitled, "About SFUSD." While it is not specifically addressing the County Community Schools, the clear implication is that the article addresses all schools under its jurisdiction. These are some points that are made: [San Francisco's comprehensive plan for improvement is] a commitment to providing an excellent education to all public school students. We have established rigorous academic standards indicating what all students are expected to know and be able to do. If we are to achieve our vision of an excellent education for all students, we • must provide more intensive help to struggling schools and students. Additional funds are provided to schools for each English Language Learner, • each Special Education student, and each student living in poverty. These students are recognized as having greater educational needs. Our comprehensive, five-year plan, Excellence for All, identifies several • needed task forces to address important issues facing SFUSD, including high school and middle school reorganization . . . [Emphasis added.] Notwithstanding its good intentions, SFUSD has made no mention of its dual role as city and county administrations. A reasonable inference to be drawn is that this five-year plan applies only to the district's city schools and does not provide for excellence in the CCS. Civil Grand Jury members spoke to an assistant administrator of Phoenix. The 4.2 person did not know that there is no information on the District's website about County Schools. S/he could not recommend any publications with information and said, "Call the district." S/he was even unaware of the handout CGJ members had received on which are listed the eighteen schools and their teachers and/or contacts. 4.3 Several telephone conferences were conducted with teachers and/or directors. Most were followed up with school tours by CGJ members. The results are as follows: A representative of RAP/Hilltop Campus and RAP High School, said that there are actually two separate schools—one for pregnant teenagers, designed to meet their special needs; and RAP High School for students who are suspended, expelled or have dropped out. The representative is very enthusiastic about the good job they are doing at RAP with 75-80 students yearly. Approximately 25% of the students graduate with a regular SFUSD diploma. The school day is 8:30 AM-2: 30 PM, and the campus is located in a safe neighborhood. The person encouraged the CGJ to "drop by for a visit" and gave the committee copies of handouts that are distributed to incoming students. A representative of Community Scholars of Success Campus has been a part of County Schools since their inception in 1988. This person said that the program began with 18-20 youths in a single location and has grown to over 1300 children at eighteen locations. 72 students are currently enrolled at Community Scholars of Success Campus, and 10-15 earn diplomas each year. Wrap-around services (mental health, social workers, medical care) are available on campus. The representative agreed with CGJ members' impression that the work of these dedicated teachers is pretty much ignored, and the achievements of graduating seniors are not celebrated. Community Youth Center has 19-20 students, from grades 6-12. Achievements are a source of pride—especially the graduation of 18 students in 2003. A teacher will be retiring in June of 2004, and worries about whom the District will find as a replacement. Before coming to CYC, the instructor taught at Phoenix High School for two frustrating years, hating the location and the drug trading and prostitution that were carried on openly in the area. This person found the students to be very distracted (and, in some cases, corrupted) by the environs. By comparison, the Chinatown location of CYC "is ideal." The interviewee would like to see the school better supplied, especially since probation students bring more money to the district than do students who are not part of the Juvenile Justice System. A Walden House Schools employee discussed the basic difference between locked facility schools and the other County Day Schools. Boys and girls attend separate schools. Almost all of the students have criminal records, and most have serious mental health problems. The school is frustrated in attempting to get appropriate IEPs (Individual Education Plans) for students; the District is dilatory and resistant. The representative described the situation of one student who needed an IEP that would provide a resource specialist for him. It took nearly six months to get that IEP, and the resource specialist who was assigned is so burdened that she rarely makes an appearance. (Instead of 2 schools, she is assigned to 8). Nevertheless, teachers are proud of Walden's achievements; 12-13 seniors graduate every year. Four alumni are enrolled in college. CGJ members were warmly thanked for their interest in County Day Schools and members were assured that all CCS teachers and principals will be grateful for any light this committee can shine on their genuine needs and their unheralded achievements. At Ella Hutch Community Center, there are 30 students, grades 9-12, ٠ aged 15-18. Conditions are crowded, but the area is safer than Phoenix's, and CGJ visitors were told, "We got all new textbooks just this year." For the first time ever, County Day Schools will soon be getting a school nurse and a truancy officer—one of each to serve all eighteen schools. The interviewee said that students respond to a nurturing approach; for some, school is the only place where someone is kind or caring. Last year, six students earned SFUSD diplomas. Each year, there are good reports from alums who have gone on to colleges and vocational schools. They want to share their progress and achievements. A teacher at Bay High School for some time laments that there are no physical education classes, no drivers' education, no music or art classes. The school is really a group of schools, including Impact High School (a Juvenile Hall school) and a group of students from group homes. Teachers and students find the lack of resources enormously discouraging. The location of the school is safe and only a few blocks from the ocean. Even though a number of students have a 1 ½ -hour commute, they enjoy the safe and attractive location. At County Community Schools Middle School Academy the mood is ٠ enthusiastic and upbeat. Middle schoolers usually are there for the better part of a semester, then return to their former schools or are given a new placement. There was disappointment when district officials nixed an idea for a mural and some planting projects. One teacher said the biggest problem with the district is that they seem to regard the County Day Schools as punitive. The teacher believes it would be more correct to regard them as therapeutic. "These are not throw-away children." Many are disappointed that there is no vocational training for the students who do not want to go on to college but who aspire to learn a trade. It was suggested that training children how to fix and maintain bicycles could teach mechanical skills; at the same time children could be learning about protecting environmental resources.
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R4:
about the mission, needs, potential and amazing successes of The County Community Schools.
Findings & Recommendations
7 findings
F1:
time performance of 85% and service delivery of 98.5% set for July 2004 mandated by Proposition E (1999).
Related Recommendations (1)
R1:
time performance of 85% and service delivery of 98.5% set for July 2004 mandated by Proposition E (1999).
F2:
The Executive Director of MTA, the General Manager of MUNI, and other senior management personnel should adopt a proactive and highly visible leadership role to improve the administration of MUNI.
Related Recommendations (1)
R2:
The Executive Director of MTA, the General Manager of MUNI, and other senior management personnel should adopt a proactive and highly visible leadership role to improve the administration of MUNI.
F3:
Management should compare MUNI to other metropolitan transit agencies of comparable size.
Related Recommendations (1)
R3:
Management should compare MUNI to other metropolitan transit agencies of comparable size.
F4:
Controls are needed to ensure that only employees that meet the required provisions of the light-duty and battery-pay plans, and workers' compensation benefits receive remuneration for periods when their ability to perform at full capacity is legitimately compromised.
Related Recommendations (1)
R4:
Controls are needed to ensure that only employees that meet the required provisions of the light-duty and battery-pay plans, and workers' compensation benefits receive remuneration for periods when their ability to perform at full capacity is legitimately compromised.
F5:
Management should justify the cost of providing benefit payments to those employees who cannot perform their assigned duties.
Related Recommendations (1)
R5:
Management should justify the cost of providing benefit payments to those employees who cannot perform their assigned duties.
F6:
Office of the Controller and the Budget Analyst's Office should conduct an independent audit of the light-duty and battery-pay plans and workers' compensation benefits.
Related Recommendations (1)
R6:
Office of the Controller and the Budget Analyst's Office should conduct an independent audit of the light-duty and battery-pay plans and workers' compensation benefits.
F7:
In order to establish a program to reduce both the number and the associated costs of settlements, management needs to establish a program to record, analyze and determine the cause of all accidents and incidents. GLOSSARY AC Transit – Alameda-Contra Costa Transit District that serves most of the East Bay communities in Alameda and Contra Costa County. Accident – Usually an unexpected undesirable event or collision resulting in damage to person(s) or property. Battery pay – San Francisco Civil Service Commission Rule 20.15 and Administrative Code Section 16.170 provide that an employee injured as the result of a criminal act of violence while on duty is eligible to receive full pay for a period of up to twelve months. Incident – An event which is considered a minor occurrence or disruption. Light-duty - Also known as Transitional Work or Transitional Work Program. A work plan that allows employees injured on the job to work reduced hours and/or in assignments requiring reduced physical activity while still receiving full pay for a period of up to 180 days. An employee can be on light duty as often as every other year. AC Transit has a similar program (limited to three days); it is referred to as the modified work program. Light-duty job assignments – Tasks that can be performed by light-duty workers include: "reduced hours driving, loader, receiver, passenger service clerk, service quality teams, training department clerk, central control clerk, yard starter, expediter, finance department assistant, auto attendant, station operations assistant, discount I.D clerk, Pac Bell (sic) park revenue collection and cable car turn-table assistant." MUNI CAC – Citizens' Advisory Council formed by Proposition E. Municipal Railway (MUNI) – The San Francisco public transportation system. Municipal Transportation Agency (MTA) – The governing body responsible for the management of Municipal Railway (MUNI) and the Department of Parking and Traffic (DPT). Proposition E - Passed by San Francisco voters in 1999 to incorporate MUNI and DPT into the MTA [proposition E, Section 8A.103 (c)] and to establish the following service standards: 1. On-time performance: of at least 85% of vehicles must run on-time, where a vehicle is considered on-time if it is no more than one minute early or four minutes late as measured against a published schedule that includes time points; and 2. Service delivery: 98.5 percent of scheduled service hours must be delivered, and at least 98.5 percent of scheduled vehicles must begin service at the scheduled time. In this report the above referred to as "on-time performance" and "service delivery" SamTrans - Part of the San Mateo Transit Authority that serves all of San Mateo County. Statistician – A mathematician specializing in data analysis. Third Party Administrator (TPA) – A person who processes claims and provides administrative services. Valley Transit Authority (VTA) – VTA serves all of Santa Clara County. OVERVIEW The San Francisco Municipal Railway (MUNI) is the seventh-largest public transit system in the United States, operating a fleet of approximately 1,000 vehicles consisting of subway/surface light-rail trains (Metro), vintage street cars, electric trolley buses, diesel buses, and the world famous cable cars. There are, on average, approximately 700,000 passengers boarding each weekday. (This information was acquired from MUNI) The 2003-2004 Civil Grand Jury investigated the operations of MUNI with respect to progress in meeting the goals mandated in Proposition E. This year, the MUNI administration will not meet on-time performance and service delivery goals as set out in Proposition E. The Grand Jury was unable to obtain from MUNI a timeframe in which they plan to achieve the original goals. The Grand Jury concluded that these failings result from management's lack of effective leadership--by not making the necessary changes and failing to develop new plans to meet goals, either through lack of competence or lack of will to do so. The Grand Jury also looked into the administration's control over the light-duty and battery-pay plans, training program and effectiveness of overall management. It was determined that light-duty and battery-pay plans are not effectively managed and are subject to abuse. Management is aware of the situation but has done nothing to eliminate infractions. The CGJ also questioned the effectiveness of the existing training program, in light of the significant number and costs of claims that have occurred over the years.
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R7:
In order to establish a program to reduce both the number and the associated costs of settlements, management needs to establish a program to record, analyze and determine the cause of all accidents and incidents. GLOSSARY AC Transit – Alameda-Contra Costa Transit District that serves most of the East Bay communities in Alameda and Contra Costa County. Accident – Usually an unexpected undesirable event or collision resulting in damage to person(s) or property. Battery pay – San Francisco Civil Service Commission Rule 20.15 and Administrative Code Section 16.170 provide that an employee injured as the result of a criminal act of violence while on duty is eligible to receive full pay for a period of up to twelve months. Incident – An event which is considered a minor occurrence or disruption. Light-duty – Also known as Transitional Work or Transitional Work Program. A work plan that allows employees injured on the job to work reduced hours and/or in assignments requiring reduced physical activity while still receiving full pay for a period of up to 180 days. An employee can be on light duty as often as every other year. AC Transit has a similar program (limited to three days); it is referred to as the modified work program. Light-duty job assignments – Tasks that can be performed by light-duty workers include: "reduced hours driving, loader, receiver, passenger service clerk, service quality teams, training department clerk, central control clerk, yard starter, expediter, finance department assistant, auto attendant, station operations assistant, discount I.D clerk, Pac Bell (sic) park revenue collection and cable car turn-table assistant." MUNI CAC – Citizens' Advisory Council formed by Proposition E. Municipal Railway (MUNI) – The San Francisco public transportation system. Municipal Transportation Agency (MTA) – The governing body responsible for the management of Municipal Railway (MUNI) and the Department of Parking and Traffic (DPT). Proposition E - Passed by San Francisco voters in 1999 to incorporate MUNI and DPT into the MTA [proposition E, Section 8A.103 (c)] and to establish the following service standards:
Findings and recommendations not yet extracted.
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Findings & Recommendations
2 findings
F1:
The Sheriff’s Department Needs to Improve Its Inmate Grievance Process and Procedures
F2:
Community-Based Programs Are Not Beneficial
Additional Recommendations
8
Not linked to specific findings.
R1a:
Review and Amend Current Policy and Procedures Manual The Department should review and amend, if needed, the current “Policy and Procedure” manual. Response Michael Hennessey Sheriff Office of the Sheriff July 28, 2005 The Sheriff’s Department has reviewed and rewritten, where appropriate, the Policy and Procedures Manual regarding grievances, to reduce the possibility of prisoner issues being overlooked.
R1b:
Purchase or Develop Software to Automate the Grievance Procedure The Department should purchase/develop software to automate the grievance procedure. Response Michael Hennessey Sheriff Office of the Sheriff July 28, 2005 The Sheriff’s Department is in the process of implementing a new jail management system which will automate many aspects of jail operation. Where applicable within that system, it will be used to track grievances.
R1c:
Assign a Full-Time Employee to Track Grievances and Assign a Senior Officer to Oversee the Program The Department should assign a full-time employee to input data. A senior officer should be assigned to oversee the program and provide periodic reports to designated senior staff. Response Michael Hennessey Sheriff Office of the Sheriff July 28, 2005 We disagree with the recommendation that one deputy be assigned full time to input grievances into a database because it is not a practical use of scarce resources. However, the Undersheriff does monitor grievances and provides periodic reports to the Sheriff and to appropriate department staff.
R1d:
Respond to Grievants Within 10 Days of Filing a Complaint Every grievant should receive a written response to a complaint within ten (10) days of the date of filing. Response Michael Hennessey Sheriff Office of the Sheriff July 28, 2005 We disagree with this recommendation because it will lengthen response time to many easily resolved grievances. Therefore, we have no plan to implement it.
R1e:
Make Available Grievance Forms to Inmates Grievance forms should be placed by the inmate in a locked box or other secure location. Response Michael Hennessey Sheriff Office of the Sheriff July 28, 2005 We disagree with this recommendation because there is no place in the jails where prisoners could access a locked grievance box. Further, in my view, the more interactive the process between prisoners and staff, the greater likelihood of grievances being resolved quickly and fairly. Therefore, we have no plan to implement it.
R1f:
Maintain a History of Grievances Against Each Deputy A history of grievances against a deputy should be maintained and forwarded when the deputy moves to another facility. Response Michael Hennessey Sheriff Office of the Sheriff July 28, 2005 We disagree with this recommendation because it is violative of City procedures and state law regarding employee discipline.
R1g:
Simplify the Grievance Form The grievance form should be simplified. Response Michael Hennessey Sheriff Office of the Sheriff July 28, 2005 This recommendation has been implemented. General Responses Adele Destro Assistant Clerk of the Board Board of Supervisors September 24, 2004 The following is a response to the 2003-2004 Civil Grand Jury Report, San Francisco Sheriff’s Department Grievances: A Solution, in accordance with Penal Code Section 933 and Administrative Code Section 2.10. The Board of Supervisors’ City Services Committee held a hearing on Thursday, September 23, 2004 on the Civil Grand Jury Report. Representatives from both the Civil Grand Jury and the Sheriff’s Department were present at the hearing. The Sheriff’s Department agreed with most of the findings and recommendations. The matter was continued until Thursday, October 21, 2004 to hear a progress report from the Sheriff’s Department. Adele Destro Assistant Clerk of the Board Board of Supervisors October 26, 2004 The following is a progress report to the 2003-2004 Civil Grand Jury Report, San Francisco Sheriff’s Department Grievances: A Solution, in accordance with Penal Code Section 933 and Administrative Code Section 2.10. The Board of Supervisors’ City Services Committee continued the hearing on Thursday, October 21, 2004 to hear a progress report from the Sheriffs Department. The Department reported it is modeling a policy similar to Alameda County in order to track grievances, responses and corrective action taken. It will modify the grievance form and procedures, which will simplify the process for both the inmates and staff. What remains unresolved is the accessibility of a locked box where inmates drop off grievances. The Department is exploring alternatives to provide inmates confidential submission of grievances and the assurance of directing grievances to the appropriate individual(s). Target date for the completion of a revised policy and procedure is December 31, 2004. The Committee was satisfied with the progress report and the matter was filed. Adele Destro Assistant Clerk of the Board Board of Supervisors June 29, 2005 The Board of Supervisors’ City Services Committee continued the hearing on Thursday, October 21, 2004 to hear a progress report from the Sheriffs Department. The Department reported it is modeling a policy similar to Alameda County in order to track grievances, responses and corrective action taken. It will modify the grievance form and procedures, which will simplify the process for both the inmates and staff. What remains unresolved is the accessibility of a locked box where inmates drop off grievances. The Department is exploring alternatives to provide inmates confidential submission of grievances and the assurance of directing grievances to the 179 appropriate individual(s). Target date for the completion of a revised policy and procedure is December 31, 2004. The Committee was satisfied with the progress report and the matter was filed. TERMS Grievance- a complaint made by an inmate against an employee of the Sheriffs Department. Grievant- an inmate who makes a complaint. Ombudsman -a person employed by an institution to investigate complaints against that institution. Civil Grand Jury Recommendations Sheriff and Department Reponses The Department should review and amend, if 1a needed, the current "Policy and Procedure" Implemented manual. The Department should purchase/develop 1b In Process software to automate the grievance procedure. The Department should assign a full-time employee to input data. A senior officer should be 1c Disagree assigned to oversee the program and provide periodic reports to designated senior staff. Every grievant should receive a written response 1d to a complaint within ten (10) days of the date of Disagree filing. Grievance forms should be placed by the inmate 1e Disagree in a locked box or other secure location. A history of grievances against a deputy should 1f be maintained and forwarded when the deputy Disagree moves to another facility. 1g The grievance form should be simplified. Implemented For each recommendation, the Civil Grand Jury did not require responses from all departments. The table only identifies those departments that responded to specific recommendations. This page intentionally left blank. CHAPTER 6 INCARCERATION AND BEYOND: WHERE DO WE GO FROM HERE?
R2a:
Effective Programs Need to Be Formulated The Mayor's office should determine the needs of individuals exiting the jails to assist in formulating effective programs 184
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Findings & Recommendations
3 findings
F1:
The Department of Child Support Services Needs to Improve Its Communications About Its Role and Processes
F2:
The Department of Child Support Services Does Not Prominently Display Printed Information
F3:
Community-Based Programs Can Reduce Homelessness
Additional Recommendations
10
Not linked to specific findings.
R1:
The Department has developed new flyers, posters and scripts designed to inform and convince obligors to participate in their cases. These written materials use 7th grade English to foster better communication and have been translated into Spanish. Listed below are the written materials currently in use by the EPIC Project that were developed specifically for the NCP that is in 7th grade English or Spanish that is less formal and therefore less intimidating.
R1a:
Provide written materials explaining its in-take process. Written materials (in translation when appropriate) to be presented and explained at in-take should include a flow chart outlining the process to be undertaken from start to finish. Specifics should describe all of the players in the process and their roles-especially including DCSS, their computer and phone systems, and all its divisions: in-take, DSOs, attorneys and the ombudsperson. Responses Karen M. Roye Assistant Director Department of Child Support Services July 23, 2004 Agree: The Department plans to develop a flow chart that clearly outlines the steps necessary to handle regular actions such as opening a case, paternity establishment, modifying an order, stipulation agreements, and closing a case. The flow chart will be translated into Spanish and Cantonese for improved understanding. The Department has also increased its request of outreach materials for FY2005 solely provided by the California Department of Child Support. The department is required to use only state-approved materials for outreach and reprints state documents at its own expense. Karen M. Roye Director Department of Child Support Services June 27, 2005 Agree/Implemented: The Department developed several flow charts that clearly outline the steps necessary to handle regular actions such as opening a case, paternity establishment, modifying an order, stipulation agreements, and closing a case. The flow charts will be translated into Spanish and Cantonese for improved understanding by the end of the August, 2005. The Department has also increased its request of outreach materials for FY2005 solely provided by the California Department of Child Support. The department is required to use only state-approved materials for outreach and reprints state documents at its own expense.
R1b:
Explain How the Family Court and Family Law Facilitator Can Be Used by Parents. The role of the court and the Family Law Facilitator and how they can be accessed should be explained- especially if it appears that the parents will be unwilling or unable to stipulate a plan for child support. Responses Karen M. Roye Assistant Director Department of Child Support Services July 23, 2004 Agree: The Department plans to collaborate with the Family Law Facilitator to develop a pamphlet to be distributed through all branch offices. Karen M. Roye Director Department of Child Support Services June 27, 2005 Agree/Implemented: The Department is collaborating with the Family Law Facilitator through the Enhanced Parental Involvement Collaborative (EPIC) and has developed several 198 informational fliers which have been translated into Spanish and is distributed through all branch offices and the Family Court to non-custodial parents.
R1c:
Distribute Information to Community Agencies Packet information should be reinforced by the use and distribution of posters, flyers and videos made available in libraries, churches, shops, hospitals and community agencies. Responses Karen M. Roye Assistant Director Department of Child Support Services July 23, 2004 Agree: The Department plans to produce posters, flyers, and videos based on existing state- approved materials to be made available to libraries, hospitals, community residents and community agencies where appropriate. Karen M. Roye Director Department of Child Support Services June 27, 2005 Agree/Implemented: The Department has produced plans to produce posters, flyers, and videos based on existing state-approved materials to be made available to libraries, hospitals, community residents and community agencies where appropriate.
R1d:
Produce Multilingual Educational Videos and Advertisements SFDCSS should add to its long-range plan the production of multilingual educational videos and television and radio advertisements. By collaborating with other agencies and by accessing volunteer time, talent and dollars, DCSS can expand its services to clientele.
R2a:
Display Written Materials at All Offices In an attractive and efficient manner. DCSS should set up, monitor and stock regularly display racks of written materials and handouts at all DCSS offices, law facilitators’ offices and courtrooms. Responses Karen M. Roye Assistant Director Department of Child Support Services July 23, 2004 Agree: The Department has purchased and installed display racks in its main office, BVHP office, and Mission Office to be regularly stocked by the in-take supervisor. The Department plans to provide handout material to the law facilitators’ office and the court for distribution through their offices. The Department’s legal supervisor will be responsible for the regular distribution and re-ordering current materials. Karen M. Roye Director Department of Child Support Services June 27, 2005 Agree/Implemented: The Department has purchased and installed display racks in its main office, BVHP office, and Mission Office to be regularly stocked by the in-take supervisor. The Department plans to provide handout material to the law facilitators’ office and the court for distribution through their offices. The Department’s legal supervisor will be responsible for the regular distribution and re-ordering current materials.
R2b:
Develop a Computer Program to Track Recidivism Develop a computer program to track recidivism of individuals entering and exiting the county jail system. Response Michael Hennessey Sheriff Office of the Sheriff July 28, 2005 I agree with the recommendation that a computer system should be devised to track recidivism, however, I have concluded that until a national body, like the federal Department of Justice’s National Institute of Corrections, provides direction and standards, the considerable investment of time and information technology expertise required to produce such a program would not be justified by the limited local use of the results. It is hoped that the jail management system currently being implemented will provide some useful recidivism information. 185
R2c:
Prioritize Services for Individuals Released From Jail Prioritize services needed by individuals released from the county jails when planning for the homeless. Response Michael Hennessey Sheriff Office of the Sheriff July 28, 2005 I agree with this recommendation and support the Department of Public Health’s discharge planning efforts aimed at the homeless jail population.
R3a:
Create a Mentor Program to Assist Recently Released Inmates A mentor/sponsor program should be created to assist this population for a limited period after they return to the community from the jails. Responses Gavin Newsom Mayor Office of the Mayor September 7, 2004 As recommended by the Grand Jury, I welcome a review of best practices and other research that could be provided on the efficacy of mentorship or sponsorship programs for persons returning the community after leaving custody. The 10-Year Plan for Ending Chronic Homeless, commissioned by my Administration and released on June 30, 2004, includes a lengthy segment on reducing homelessness among persons released from custody. The plan calls for creating more supportive housing services for formerly incarcerated homeless San Franciscans, as well as increased SSI advocacy. Michael Hennessey Sheriff Office of the Sheriff July 28, 2005 I agree with the recommendation and would support and participate in a combined effort of the several City departments that deal with services to the homeless population. While the Sheriff’s Department is currently funded to provide some mentoring services, such an effort specifically targeting homeless ex-offenders is not, to my knowledge, under discussion at this time.
R3b:
Audit Agencies Providing Services to the Homeless An audit of all agencies currently charged with providing services to the homeless should be undertaken. Responses Michael Hennessey Sheriff Office of the Sheriff July 28, 2005 This recommendation is not directed at the Sheriff’s Department. Ed Harrington Controller Office of the Controller July 29, 2005 The recommendation has been implemented in part. In May 2002, this office issued a comprehensive performance audit of the City’s system for delivering services to the homeless and 187 recommended how the City can improve its system for planning, delivering, and evaluating homeless services in San Francisco. As part of the City Services Auditor Division’s audit plan, we will be conducting audits of organizations that receive funds from the City to provide various services. Agencies providing services to the homeless will be included as those subject to audit. The recommendation will require further analysis to identify the number of agencies specifically providing homeless services and identifying the priority for conducting these specific audits. General Responses Adele Destro Assistant Clerk of the Board Board of Supervisors September 24, 2004 The following is a report on the 2003-2004 Civil Grand Jury Report, San Francisco Sheriff’s Department: Incarceration and Beyond, in accordance with Penal Code Section 933 and Administrative Code Section 2.10. The Board of Supervisors’ Rules Committee held a hearing on Wednesday, September 22, 2004 on the Civil Grand Jury Report. Representatives from the Civil Grand Jury and the Sheriff’s Department were present for the hearing. Per Jack McNulty, Civil Grand Jury Foreperson, a written response from the Sheriff’s Department had not been received and requested to continue the matter. The hearing is continued until October 6, 2004. Adele Destro Assistant Clerk of the Board Board of Supervisors October 25, 2004 The following is a follow-up report on the 2003-2004 Civil Grand Jury Report, San Francisco Sheriff’s Department: Incarceration and Beyond. The Board of Supervisors’ Rules Committee continued the hearing on Wednesday, October 6, 2004 on the Civil Grand Jury Report. Sheriff Mike Hennessey commended the Civil Grand Jury for its findings and recommendations. The Sheriff discussed the Five Keys Program High School for incarcerated juveniles, which is a Charter High School in county jails, and several of the programs that they have in jails that could be a resource after release. Sheriff Hennesey also pointed out due to budget reductions they are faced with a 15% reduction in jail programs. Public comment was heard and the matter was filed. Adele Destro Assistant Clerk of the Board Board of Supervisors June 29, 2005 The Board of Supervisors’ Rules Committee held a hearing on Wednesday, September 22, 2004. Per Jack McNulty, Civil Grand Jury Foreperson, a written response from the Sheriff’s Department had not been received and requested to continue the matter. The hearing was continued to October 6, 2004. The Board of Supervisors’ Rules Committee continued the hearing on Wednesday, October 6, 2004. Sheriff Mike Hennessey discussed the Five Keys Program High School for incarcerated juveniles, which is a Charter High School in county jails, and several of the programs that they have in jails that could be a resource after release. Sheriff Hennessey also pointed out due to budget reductions they are faced with a 15% reduction in jail programs. Public comment was heard and the matter was filed. TERMS Recidivism - habitual or chronic relapse, especially into crime or antisocial behavior Misdemeanant - an individual found to have committed a misdemeanor RSVP- Resolve to Stop the Violence Project Roads to Recovery - an in-custody drug treatment for men SISTER - an in-custody drug treatment for women 190 Civil Grand Jury Recommendations Office of the Sheriff Mayor and Department Reponses Controller The Mayor and Board of Supervisors should 1a find in-custody programs at current or higher Agree Agree levels. The Mayor's office should determine the 2a needs of individuals exiting the jails to assist Agree Agree in formulating effective programs Develop a computer program to track 2b recidivism of individuals entering and exiting Agree the county jail system. Prioritize services needed by individuals 2c released from the county jails when planning Agree for the homeless. A mentor/sponsor program should be created to assist this population for a limited period 3a Agree Agree after they return to the community from the jails. An audit of all agencies currently charged with Not Directed by Implemented in 3b providing services to the homeless should be Sheriff Part. undertaken. For each recommendation, the Civil Grand Jury did not require responses from all departments. The table only identifies those departments that responded to specific recommendations. This page intentionally left blank. CHAPTER 7 SAN FRANCISCO DEPARTMENT OF CHILD SUPPORT SERVICES: PUTTING THE CHILDREN FIRST
Findings & Recommendations
4 findings
F1:
The San Francisco Unified School District Does Not Provide Safe Learning Environments for all of the County Community Schools
F2:
The San Francisco Unified School District Should Ensure That County Community Schools Per-Student Allotments Are Being Used for Intended Purposes
F3:
6: According to staff interviews, this 20-30% of BVHP students often come from the most troubled and dysfunctional families. A number of parents are incarcerated or are drug users. These children do not have the family support structure that allows for "a signed parental participation contract". Hence, most of these children will not be attending the newly converted Dream School but will, in fact, be assigned or reassigned to other unenriched schools. The CGJ could find no specific plan for relocation of these children. Response to Finding Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 The District disagrees with the statement that the 20-30% of BVHP students who allegedly do not return paperwork come from troubled and dysfunctional families, have parents that are incarcerated or drug users, and do not have a family support structure. These assumptions are purportedly based on “staff interviews,” and could be interpreted to be stereotypical generalizations about an entire neighborhood. As noted above, a signed parental participation contract is not a prerequisite for enrolling in a Dream School. In fact, any student that attended a school that is being converted into a Dream School has been assigned to remain at the newly converted Dream School, unless they affirmatively requested reassignment to a new site.
F4:
Many Students in the Bayview Hunters Point Schools Do Not Receive Available Free or Low-Cost Lunches BVHP schools have the highest percentage of children who qualify for free or reduced-fee lunch programs. A large portion of these children-- SFUSD staff estimate up to 30%--do not return the required paperwork, and there is very little outreach to assist them and their families. [The Civil Grand Jury Report did not list a finding numbered 4.1]
Additional Recommendations
12
Not linked to specific findings.
R1a:
Study the Availability of Other Suitable School Sites to Relocate the Phoenix Campus SFUSD owns properties that are not presently being used for city schools. The Board and Administration should study the availability of suitable sites for relocation of Phoenix. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 This recommendation requires further analysis. Within the next six months, SFUSD will analyze whether there are other available and appropriate sites for Phoenix High School. However, it should be noted that SFUSD attempted to relocate Phoenix High School to a new location on Evans Street during the 2002-2003 school year, and the students and staff from the school vigorously opposed the move before the Board. Therefore, the Board opted to retain the school’s location at 1950 Mission in recognition of the articulated wishes of Phoenix High School students and staff. In addition to going through SFUSD’s Program Placement Committee, any program or site change must comply with Board Resolution 46-8A10 (“Resolution to Increase Public Input in Program and School Placement”), which requires opportunities for community input into proposed site changes. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 In February 2005, the Director of County Community Schools re-evaluated whether an SFUSD facility located on Evans Street in San Francisco would be a suitable location to relocate Phoenix High School. The location was found to be unsuitable because the facility’s classrooms are located around a machine shop that is operated by a Junior College during the school day. The noise generated from the machine shop would be distracting and would interfere with classroom instruction. District staff also investigated whether it would be possible to relocate Phoenix High to one of the school sites that were closed during the school year to help address the District’s budget deficit. One of the main criteria for school closures was the underutilization of the school site due to low enrollment numbers. In order to fully utilize facility space and to satisfy legal obligations to the District’s charter schools under Proposition 39, these sites will house a combination of several District and/or charter schools. It is not feasible for Phoenix High to share space in this manner, because it would require the District to commingle students in comprehensive programs with students who have been expelled for a serious violation of District rules.11 11 In the context of Community Day Schools (which also serve students who have been expelled), the Education Code acknowledges the problem of commingling students in comprehensive schools with students who have been expelled. Cal. Educ. Code Section 48661(a). 155
R1b:
Relocate Immediately the Phoenix Campus SFUSD should move immediately to relocate the CCS Phoenix School campus. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 This recommendation requires further analysis, as described above. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 As noted above, the District determined that relocation of the Phoenix High School site is not currently feasible. However, the Director of County Community Schools has taken action to improve the physical quality of the facility located at 1950 Mission. The entire facility has been cleaned, reorganized and enhanced to increase the physical resources available to Phoenix High School students. The facility has been updated to include a computer lab with an LCD screen that is used for classroom instruction, online courses (such as Drivers Education) and Cooperative Vocational Education. The site also has a new library, and a multipurpose room that houses health and wellness information, as well as information about community resources for students, parents and guardians. This room is also used to house a social worker that works directly with students and also refers them to outside community resources. The room is used to hold girls counseling groups, and will be used as a recreational area with a ping pong table and other games for students. The site also includes space that is used for parent group meetings. The site includes offices for a secretary, counselors, and an office for a parent liaison assigned to county community schools. Two curriculum specialists will be hired for the 2005-2006 school year to support teachers in the county community schools, a Program Administrator to oversee English Language Learner programs in county schools, and an English Language Development teacher will be hired as well. As part of the reorganization, the Director distributed new textbooks that were located at this site to all county community schools, and created a textbook room to store extra copies of these resources. The external areas of the facility have been improved to provide a tented eating and gathering area, a basketball court and a volleyball court, and flower boxes have been added around classrooms. During the summer of 2005, the entire outdoor area of the school will be re-surfaced. The Director has also worked with San Francisco Police Department Captain Goldberg to arrange for officers to closely patrol the areas surrounding the schools, and the school has posted prominent signs that warn of enhanced penalties for drug activity within a school zone. 156
R1c:
The New Phoenix Campus Should Be Ready by the 2004-2005 school year. Ideally, a new Phoenix School campus would be ready for the 2004-2005 school year. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 This recommendation requires further analysis, as described above. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 As noted above, the District determined that relocation of the Phoenix High School site is not currently feasible. The physical improvements made to the Phoenix High School site are described above.
R1d:
Relocate the Community Youth Center From Polk Street A secondary priority is the relocation of the Community Youth Center's one- room school from its location on Polk Street, above a strip joint. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 This recommendation is in the process of implementation. CYC is currently in the process of negotiating a new lease for their site to be relocated to Van Ness and Sutter. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 The Community Youth Center one-room school that was located on Polk Street has been closed, and in the 2004-2005 school year students were relocated to a new site.
R1e:
Prepare to Replace All One-Room Schools in the County System The five-year plan should include preparations to replace all one-room schools in the county system. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 This recommendation is currently in the process of implementation. The District agrees that single site classes should be eliminated and is in the process of evaluating those sites for relocation. In addition to taking steps to move CYC to a new location, the Potrero Hill Neighborhood Center school site has been moved to the Principal’s Center Collaborative Campus. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 The District has closed all county community single room schools, and has consolidated these small schools into four main campuses that are able to provide more comprehensive support and resources. The single room schools that were closed include Community Youth Center, Potrero Hill Neighborhood Center, and Ella Hill Hutch. Under this new reorganization, each campus delivers comprehensive core curriculum with a strong academic focus. The four campuses are listed below: • Phoenix Campus: Provides core 9-12 curriculum, Special Day Class, Resource Specialist, English Language Learner support, and a middle school component. • Principal Center Collaborative: This collaboration between SFUSD and Juvenile Probation provides core 9-12 curriculum, Special Day Class, Resource Specialist, and English Language Learner support. The campus holds three programs including: Project Impact, Youth Treatment Education Court (education and youth substance abuse treatment), SF Girls and Boys Group Home (Bay High). The site also holds a new Youth Guidance Transition Center, which provides a transition program for students who are re-entering the District after being confined to the Youth Guidance Center for a short period of time. • Community Scholars of Success: Provides core 9-12 curriculum, Resource Specialist, English Language Learner support. • Sunshine Campus: Provides core 9-12 curriculum, Special Day Class (Hilltop), Resource Specialist, English Language Learner support. This site houses the Real Alternatives High School and the Hilltop School (for pregnant minors). The county programs have partnered with Pupil Services to develop an Intake Center located at the School of the Arts. This three week program offers assessment, counseling, school review, case management and enrollment options. This program was created to support appropriate academic placement, and to ease the student’s return to school after being referred to Pupil Services due to habitual truancy or behavioral issues. Students obtain 5 credits for successful completion of the Intake program. Next year, county teachers will receive more curricular support through the county’s newly developed instructional reform model. The model’s design has each site administrator assigned to a specific academic department. Each administrator, in conjunction with two new curriculum specialists, is responsible for conducting monthly meetings to align all county programs to standardized instruction. The curriculum will be mapped to core assessments that will be used to measure what students have learned, and to track teaching strategies employed by the teachers. All county teachers have obtained CLAD certification.
R2a:
Make Budgets Available for Authorized Agencies SFUSD should make its budget readily available for inspection by authorized agencies, in particular, the Civil Grand Jury. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 The Grand Jury Report acknowledges that the Civil Grand Jury has obtained budget print outs for SFUSD. With regard to other agencies, SFUSD will implement this recommendation through its compliance with the applicable provisions of the Public Records Act, California Government Code Section 6250 et seq. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 SFUSD continues to comply with the provisions of the Public Records Act, California Government Code Section 6250 et seq.
R2b:
Present Clear Budget Information Budget information should be presented clearly, if possible, with explanatory summaries. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 SFUSD will implement this recommendation to the extent that it is consistent with the applicable provisions of the Public Records Act, California Government Code Section 6250 et seq. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 SFUSD continues to comply with the provisions of the Public Records Act, California Government Code Section 6250 et seq.
R2c:
Keep Separate Budgets for the Two School Systems To insure the equitable distribution of funds and to avoid co-mingling of assets, two separate budgets should be kept for the separate school systems of city and county. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 This recommendation is unnecessary because the District current budget system separately tracks county community funds. The District’s financial accounting is maintained in accordance with the Standardized Account Code Structure (SACS) as required by California Education Code. As such, the District tracks all revenue, budgets, and expenditures by fund, resource, goal, function, object and organization code. In this structure, County funds are designated as Fund 05. Furthermore, County / Community Schools, Log Cabin, Woodside Learning Center, and the Hilltop Program have separate organization codes that allow for tracking of budgets and expenditures within each organization code. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 As noted in the original response, this recommendation is unnecessary because the District current budget system separately tracks county community funds.
R3:
Undertake Greater Outreach to Ensure Eligible Students Are Enrolled in Dream Schools. SFUSD should undertake greater outreach in order to insure that eligible students get enrolled in Dream Schools and that students not eligible are given every opportunity to attend their current school next year with equal or improved resources. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 This recommendation has already been implemented, as described in Section 3.8, above. Over 280 new students have been assigned to the Dream Schools, and there is a wait list for the entering kindergarten class. The District will continue its efforts to inform families and students about the Dream Schools Initiative. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 As noted in the District’s original response, the District took detailed and thorough action to ensure that students were aware of their opportunities and choices within the District, including the opportunity to attend a Dream School. Students who were attending a school that was converted to a Dream School were assigned to remain at that site unless they affirmatively chose to transfer to another school. There were no eligibility requirements to enroll in a Dream School.
R3a:
Replace County Community Schools with Community Day Schools Replace the minimum-service County Community Schools with the more challenging Community Day Schools. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 This recommendation requires further analysis over the next six months to determine whether the development of more Community Day Schools would be appropriate and effective within the District. However, the District has already increased the school day for county community students, and has increased support to these students, as described above in section 3.1. It is unclear whether the Community Day School system is the most effective way to provide increased service to county community students. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 The Director of County Community Schools and three of the CCS site administrators attended a conference in Sacramento to learn more about Community Day Schools. In May 2005, the CCS Director and the four CCS administrators made a presentation to the SFUSD Board of Education Curriculum Committee regarding the programs and services provided by county community schools. Among the topics discussed was the possibility of developing Community Day Schools in the District. Daniel Sackheim, the Community Day Schools consultant for the California Department of Education, made a presentation on this topic and distributed detailed information about the benefits and requirements associated with Community Day Schools. CCS staff determined that developing Community Day Schools was not necessary, because the District has already taken action to provide many of the enhanced resources available through Community Day Schools. For example, the District has extended the instructional minutes provided in CCS, has provided a low pupil-teacher ratio, school counselors, individualized instruction, and specified services for youth on probation. The District has also provided enhanced support and resources such as a social worker, parent liaison, and attendance liaison. Additionally, the District is planning to hire two curriculum specialists, a Program Administrator to oversee English Language Learner programs in county schools and an English Language Development teacher for the 2005-2006 school year. Finally, the District already receives enhanced per-student apportionments for students on probation, many of whom are in county community schools.
R3b:
Use All Available Funding to Upgrade to Community Day Schools Use all available funding for county schools by upgrading and making the necessary commitment to Community Day Schools. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 This recommendation requires further analysis over the next six months to determine whether the development of more Community Day Schools would be appropriate and effective within the District. However, the District has already increased the school day for county community students, and has increased support to these students, as described above in section 3.1. It is unclear whether the Community Day School system is the most effective way to provide increased service to county community students. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 See update to 3a, above.
R4:
Undertake Greater Outreach to Ensure Eligible Students Receive Free or Low-Cost Lunches. SFUSD should undertake greater outreach in order to insure that students who are eligible for free or low- cost lunches are receiving them. Responses Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 This recommendation has already been implemented, as described in Section 4.3, above. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 As noted in the District’s original response, the District took detailed and thorough action to ensure that parents and guardians filled out free and reduced lunch applications. Additionally, the District explained that SFUSD does not deny any student a free or reduced price lunch due to their parent’s failure to return the appropriate documentation. If a parent fails to return such documentation, the result is that the District will not be reimbursed for the lunch that is provided to the student. In the fall, the free and reduced cost lunch program application will be included in the August welcome packet sent home to all students. The forms in this packet all must be filled out and returned at the beginning of the school year, and are stapled together to ensure that parents understand that all of the enclosed forms must be filled out and returned. General Responses Dan Kelly, M.D. President Board of Education August 30, 2004 After receiving the Civil Grand Jury reports on the School District's programs in the Bayview Hunter Point and in the County Community Schools, I requested the Superintendent of Schools and her staff to review the Civil Grand Jury's findings and prepare the required responses. I greatly appreciated the Civil Grand Jury's interest in the education of the children of San Francisco and in particular in these two critical and important areas of our work. Having reviewed the Civil Grand Jury reports and the staffs responses, I am confident that you and the Civil Grand Jury will be reassured about the integrity and quality of the District's services both in the County Community Schools and in the Bayview Hunter's Point programs. As the responses we are submitting indicate, the District shares and even anticipates many of the concerns expressed by the Civil Grand Jury and is taking steps to address those concerns. In other areas, however, the Civil Grand Jury's expressed concerns did not represent accurate portrayals of the District's efforts or the community's desires. On the whole, the Civil Grand Jury has been a helpful exercise for us and the community in drawing attention to the importance that we place on the education of every child in San Francisco. Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 The issues raised in the Civil Grand Jury Report are subject to active, ongoing federal court jurisdiction in the cases of SFNAACP v. SFUSD and Ho v. SFUSD. A Consent Decree was entered in the former case in 1983, and was amended as a result of settlements reached in the latter case in 1999 and most recently in 2001. The Consent Decree addresses a wide range of issues related to student assignment and educational equity. The District’s current student assignment system is mandated by the Consent Decree, as amended in 2001, and can only be changed by agreement of the parties or by order of the Court. The case is under the active supervision of Judge William Alsup of the United States District Court for the Northern District of California. Adele Destro Assistant Clerk of the Board Board of Supervisors October 25, 2004 The following is a follow-up report on the 2003-2004 Civil Grand Jury Report The More Things Change, The More They Stay The Same: The City and County of San Francisco and The San Francisco Unified School District Are Failing to Address the Educational Needs of the Bayview Hunters Point Community. The Board of Supervisors’ City Services Committee held a hearing on Thursday, October 21, 2004 on the Civil Grand Jury Report. The hearing was continued to the call of the Chair to be held at a time to allow for the attendance and participation of Supervisor Maxwell, parents and students. Adele Destro Assistant Clerk of the Board Board of Supervisors December 6, 2004 The following is a follow-up to the 2003-2004 Civil Grand Jury Report The More Things Change, The More They Stay The Same: The City and County of San Francisco and The San Francisco Unified School District Are Failing to Address the Educational Needs of the Bayview Hunters Point Community. The Board of Supervisors’ City Services Committee held a hearing on Thursday, December 2, 2004 on the Civil Grand Jury Report. Representatives from the San Francisco Unified School District responded to all the recommendations by the Civil Grand Jury. Parents and members of the community were heard during public comment and the matter was filed at the conclusion of the hearing. Adele Destro Assistant Clerk of the Board Board of Supervisors June 29, 2005 The Board of Supervisors’ City Services Committee held a hearing on Thursday, December 2, 2004. Representatives from the SFUSD responded to all the recommendations by the Civil Grand Jury. Parents and members of the community were heard during public comment and the matter was filed at the conclusion of the hearing. TERMS SFUSD -San Francisco Unified School District BVHP -Bayview Hunters Point HP -Hunters Point CGJ -Civil Grand Jury 151 Civil Grand Jury Recommendations Board of San Francisco SFUSD and Department Reponses Education Redevelopment Agency SFUSD should provide the Bayview Hunters Students have right to select Point district with neighborhood schools 1 schools from any neighborhood commensurate to its population of eligible within the District. (Disagree) local students. SFUSD and the Redevelopment Agency Based on consultant should forge a plan to build additional schools The SFUSD Master Facilities Plan data, SFUSD has not 2 in the Bayview Hunters Point region in order projects excess capacity at the determined that to address projected needs arising from District. additional schools will development of new housing. be required. SFUSD should undertake greater outreach in order to insure that eligible students get enrolled in Dream Schools and that students 3 Implemented not eligible are given every opportunity to attend their current school next year with equal or improved resources. SFUSD should undertake greater outreach in order to insure that students who are eligible 4 Implemented for free or low-cost lunches are receiving them. For each recommendation, the Civil Grand Jury did not require responses from all departments. The table only identifies those departments that responded to specific recommendations. CHAPTER 4 COUNTY COMMUNITY SCHOOLS: POOR STEPCHILDREN OF THE SAN FRANCISCO UNIFIED SCHOOL DISTRICT
Findings & Recommendations
3 findings
F1:
The San Francisco Unified School District and the City and County of San Francisco Do Not Provide Educational Resources and Opportunities for Bayview Hunters Point Students
F2:
The Bayview Hunters Point Has the Lowest Ratio of School Seats to Student Population of Any San Francisco School District The Civil Grand Jury investigated educational resources available to residents of the Bayview Hunters Point district and found that BVHP has lowest ratio of school seats to student population of any San Francisco school district. Additionally, the need for schools in this region is increasing, especially with the upcoming housing development being planned for an area that was the Hunters Point Shipyard.
F3:
6: MUNI employees claim that safety standards have been relaxed in order to meet operating schedules. Response to Finding Cleopatra Vaughns Chair Board of Directors Municipal Transportation Agency Michael T. Burns Executive Director of Transportation Municipal Transportation Agency August 25, 2004 Wholly Disagree Muni has not relaxed its safety standards and has never trained operators to sacrifice safety to meet the schedules. Our goal/motto has always been “Safety First”. The most recent Triennial Review conducted in 2001 by the Federal Transit Administration reviewed our safety and security practices and found no deficiencies. Reference: Operator Bulletins
Additional Recommendations
4
Not linked to specific findings.
R1:
Provide the Bayview Hunters Point District With Neighborhood Schools SFUSD should provide the Bayview Hunters Point district with neighborhood schools commensurate to its population of eligible local students. Response Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 This recommendation does not acknowledge the existence of the SFUSD student assignment system mandated by Consent Decree, which provides students with the right to select schools from any neighborhood within the District. Therefore, students are not limited to available seats in the schools within their own neighborhood. This student assignment system may only be changed by agreement of the parties or by an order of the Court. Currently, there is adequate capacity within the schools in BVHP for students who opt to attend those schools. The SFUSD Master Facilities Plan provides objective criteria for planning educational facilities to meet the changing needs of the community, and to provide options in allocating facility resources to achieve the district’s goals and objectives. The Master Plan includes a capacity study for the District, and included the following conclusion: “The 10-year enrollment projections, in 135 conjunction with the Capacity Study, forecast excess capacity at San Francisco Unified School District’s school facilities of nearly 7,600 seats, or more than 12%, on a district-wide basis for the time frame addressed in this Master Plan.” As of August 25, 2004, there remained 363 open spaces across all grades in K-12 schools located in the 94124 zip code area. Only 6 of the 35 grades offered in the 94124 zip code area are at capacity. However, in order to maximize the quality of the schools located within the BVHP area, SFUSD has initiated the Dream Schools Initiative, and has participated in the STAR Intervention Program and the Secondary School Redesign Initiative. Dream Schools The first three Dream Schools are all located in Bayview/Hunters Point. These schools will provide a pre-kindergarten to grade 12 continuum housed on three campuses: Charles Drew, Twenty-First Century, and Gloria R. Davis. The pre-kindergarten to third grade campus at Charles Drew will be focused on early learning and literacy. The fourth to sixth grade campus at Twenty-first Century will focus on academic development in the upper elementary and middle grades, and the seventh to 12th grade campus at Gloria R. Davis will be focused on academic attainment and college and career preparation. These Dream Schools will be based in part on the Frederick Douglass Academy in Central Harlem, New York started by Dr. Lorraine Monroe. Each of the Dream Schools will incorporate seven core components: (1) Academic Achievement, (2) Varied Learning Opportunities, (3) Parent Empowerment and Support, (4) Alternate Learning Models, (5) College Connections, (6) Career Preparation, and (7) Safe and Friendly Learning Environments. In particular, each of these Dream Schools will provide additional assistance and resources to students and parents to improve academic achievement and transform previously under- performing schools into models for other schools in the District. For example, these Dream Schools will use a longer school day, which will run approximately from 8 a.m. to 5 p.m., and will incorporate after-school tutoring and enrichment programs to help students who need mentoring in particular areas and to provide different kinds of learning experiences to students and families who might not otherwise have them. A wide range of extracurricular activities – including several kinds of dance, drama, employment development, chorus, and sports – will be offered to students attending these Dream Schools at all grade levels. In addition, these Dream Schools will offer various personal development programs, including through partnerships with community organizations such as the Career Resource Development Center, Enterprise for High School Students, Job Corps, and others, to assist students with career and college planning. These Dream Schools will provide students experiential learning opportunities as well – such as internships, job shadowing, and other off-site programs. Each of these Dream Schools also will provide additional resources and activities to encourage parental involvement and build parents’ capacity to support student learning. For example, the pre-kindergarten curriculum at Charles Drew will be delivered through home visits and group 136 meetings that facilitate parent education and development. Parents will be trained by means of sample activities and role-playing, and will be paid to deliver services to other parents through weekly home visits or group meetings. In addition, these schools will offer Saturday sessions that will include family programs that emphasize parental empowerment to permit parents to participate actively in their child’s education. Parents at these Dream Schools may also be able to participate in General Educational Development (“GED”) test preparation, computer training, job skills and employment search skills programs. Faculty members and other administrators at these Dream Schools will be held to the highest standards. For example, all faculty members will be required to participate in designated development activities, including the “Dream School Institute” and an intensive academic professional development training program. Each faculty member also will be expected to sponsor or supervise an after-school activity, communicate with parents extensively, including through at least two parent conferences per year, and participate in schoolwide and community activities. STAR Intervention Program The central goal of the STAR Intervention Program is to increase student achievement at currently underperforming schools. SFUSD provides three categories of targeted interventions – site personnel, District support, and additional resources – to improve student achievement. Each school in the STAR program receives additional site personnel, including an instructional reform facilitator, parent liaison, and volunteer tutors/mentors, to support instructional improvement. In addition, the STAR program provides additional resources to establish new parent centers at each school, transportation services to increase the accessibility of after-school programs, and extended learning packets for distribution to parents and families. Several BVHP schools have participated in the STAR Initiative, including schools such as Charles Drew Elementary, 21st Century Elementary, Hillcrest Elementary, Malcolm X Elementary, Gloria R. Davis Middle School, Martin Luther King Middle School, and Thurgood Marshall Academic High School. Secondary School Resdesign Initiative Finally, Gloria R. Davis has been selected to be part of the Secondary School Redesign Initiative next year, which utilizes funding from the Bill and Melinda Gates Foundation in order to provide small, personalized learning communities, rigorous academic curriculum, opportunities for applied learning, and access to qualified teachers. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 As noted in the District’s original response, the recommendation does not acknowledge the existence of the SFUSD student assignment system mandated by Consent Decree, which provides students with the right to select schools from any neighborhood within the District. Therefore, students are not limited to available seats in the schools within their own neighborhood. This student assignment system may only be changed by agreement of the parties or by an order of the Court. Currently, there is adequate capacity within the schools in BVHP for students who opt to attend those schools. The District continues to be subject to the Consent Decree. The District continues to provide additional support and resources to the Bayview Hunters Point community through the provision of Dream Schools, the STAR Initiative and the Secondary 137 School Redesign Initiative, as described in the original response. Despite severe budget limitations, the District has offered summer school for all elementary students in BVHP Dream Schools, while elementary schools in the rest of the city only had the option to provide summer school for the 5th grade.
R2:
Build Additional Schools in the Bayview Hunters Point District. SFUSD and the Redevelopment Agency should forge a plan to build additional schools in the Bayview Hunters Point region in order to address projected needs arising from development of new housing. Responses Marcia Rosen Executive Director San Francisco Redevelopment Agency August 25, 2004 The Agency acknowledges that a key point being made in Recommendation 2 of the Report is the need for the Agency to work more closely with the SFUSD as the implementation of the Hunters Point Shipyard Redevelopment Plan moves closer to realization. The Agency, however, does not believe additional schools will be required as a result of housing to be developed on Parcel A and Parcel B of the Shipyard. The Agency has recently commissioned a fiscal and economic impact analysis with San Francisco-based Seifel Consulting Inc. (“SCI”) for Phase I of the Shipyard. The report is currently in draft form and is being reviewed by Agency staff. The study includes an analysis of the SFUSD’s June 2003 Facilities Master Plan. The SFUSD projections assume that new housing will be built at Hunters Point Shipyard, including 360 affordable housing units. As the proposed number of affordable housing units is different than projected in 2002 by SFUSD, SCI consulted with SFUSD regarding how to project student enrollment from the Shipyard based on the latest Phase I development projections. At the direction of Myong Leigh, Chief of Policy and Planning for SFUSD, SCI utilized the same methodology described in the 2002 SFUSD demographic forecast to project SFUSD student enrollment from Phase I. Based on this methodology, the SFUSD student generation is projected to be greater from the affordable, non-age restricted, housing units than the market rate housing units. Approximately 288 students are projected to be generated by the 411 affordable housing units that are not restricted to occupancy by age, based on the SFUSD forecast of 0.7 students per 140 affordable housing unit. No SFUSD students are projected from the 102 age-restricted, senior affordable housing units. SFUSD does not make a separate effort to estimate the student generation from market rate housing, since a regular level of enrollment growth from new housing is already included in the historical student grade progression. To account for the total impact from Phase I, the student yield from market rate housing units is projected based on the citywide student yield rate of 0.19 students per housing unit according to SFUSD forecasts. Thus, approximately 206 SFUSD students are projected from the 1087 market rate units. At the build-out of Phase I, 494 SFUSD students are projected from Phase I, or an average yield of 0.31 students per housing unit. The Agency relies on SFUSD’s experience and expertise in assessing the capacity of its facilities and notes that the draft SCI report also states: San Francisco public school enrollment has been steady over the past two decades, but declines in the elementary level have been observed during the past few years and are anticipated to continue as the number of births continues to drop in the city. By 2011, total public school enrollment is projected to decrease by between 9 and 13 percent from its current enrollment of 60,900. Thus, the anticipated 494 students from Phase I development at the Shipyard will not trigger a need for new school facilities. Arlene Ackerman Superintendent of Schools San Francisco Unified School District August 30, 2004 The SFUSD Master Facilities Plan provides objective criteria for planning educational facilities to meet the changing needs of the community, and to provide options in allocating facility resources to achieve the district’s goals and objectives. The Master Plan includes a capacity study for the District, and included the following conclusion: “The 10-year enrollment projections, in conjunction with the Capacity Study, forecast excess capacity at San Francisco Unified School District’s school facilities of nearly 7,600 seats, or more than 12%, on a district-wide basis for the time frame addressed in this Master Plan.” SFUSD will cooperate with the Redevelopment Agency in order to remain informed about its plans for development and its impact on District schools. As of August 25, 2004, there remained 363 open spaces across all grades in K-12 schools located in the 94124 zip code area. Only 6 of the 35 grades offered in the 94124 zip code area are at capacity. Marcia Rosen Executive Director San Francisco Redevelopment Agency June 22, 2005 In 2004, the Agency hired Seifel Consulting Inc. (“SCI”) to conduct a fiscal and economic impact analysis for Phase I of the Shipyard. Included in the study is an analysis of the SFUSD’s June 2003 Facilities Master Plan. Additionally, SCI consulted with SFUSD regarding how to project student enrollment for the Phase I development at the Shipyard. Based upon SCI’s analysis, approximately 494 SFUSD students are projected from Phase I. Additionally, by the year 2011, total public school enrollment in the SFUSD is projected to decrease by between 9 and 13 percent from its current enrollment of 60,900. Based on the aforementioned facts and data, SFUSD has not determined that additional schools will be required as a result of housing to be developed during Phase I of the Shipyard. If in the future, SFUSD determines that additional schools are necessary in the Bayview Hunters Point region as a result of future development at the Shipyard, the Agency will cooperate with the school district to address the need for additional educational facilities. Arlene Ackerman Superintendent of Schools San Francisco Unified School District June 30, 2005 As noted in the District’s original response, the Master Facilities Plan did not identify a short- term need to develop new schools. Moreover, the Redevelopment Agency’s economic impact analysis similarly did not project a short term need for new schools based on the development of the Hunters Point Shipyard. Finally, the Consent Decree includes a plan for Bayview Hunters Point, and therefore the issue of opening new schools would have to be vetted with the parties to the lawsuit and be approved by the federal Court. However, the District will cooperate with the Redevelopment Agency in order to remain informed about its mid and long term plans for development and the impact on District schools, and will continually re-evaluate the need for new schools based on changing circumstances in the District.
R3a:
Establish a Program to Record and Analyze All Incidents and Accidents MUNI should establish a program to record and analyze the causes of all incidents/accidents. The system would categorize each incident/accident by type, operator, transit line, division, claims and/or settlement costs and whether avoidable or unavoidable. The system should be designed to prevent multiple accident entries. The data should be readily available so that it can be used to establish procedures to reduce claims and their associated costs. Response Cleopatra Vaughns Chair Board of Directors Municipal Transportation Agency Michael T. Burns Executive Director of Transportation Municipal Transportation Agency August 25, 2004 Implemented. Muni has already done so. 121
R3b:
Evaluate the Effectiveness of Its Training Program. MUNI should evaluate the effectiveness of the current training program with an emphasis on accident prevention. Response Cleopatra Vaughns Chair Board of Directors Municipal Transportation Agency Michael T. Burns Executive Director of Transportation Municipal Transportation Agency August 25, 2004 Implemented. This is done on an ongoing basis. The Executive Director of the MTA reviews all accidents/incidents daily and meets weekly to review employee accident records and retraining steps taken. General Responses Adele Destro Assistant Clerk of the Board Board of Supervisors August 12, 2004 The following is a report on the 2003-2004 Civil Grand Jury Report regarding the Municipal Transportation Agency in accordance with Penal Code Section 933 and Administrative Code Section 2.10. The Board of Supervisors’ City Services Committee held a hearing today on the Civil Grand Jury Report, On-Time Performance and Service Goals Remain a Fiction: MUNI’s Mismanagement and Worker Problems. Representatives from the Civil Grand Jury addressed their findings and recommendations, and the Municipal Transportation Agency addressed certain disagreements with the Civil Grand Jury Report. Per Michael Burns, Executive Director, Municipal Transportation Agency, a formal written response to the Civil Grand Jury will be submitted within the required deadlines. Cleopatra Vaughns Chair Board of Directors Municipal Transportation Agency August 23, 2004 On behalf of the Municipal Transportation Agency Board of Directors, I am responding to a Civil Grand Jury report released in June 2004. We fully concur with the response to the recommendations and findings as provided to you by the Executive Director of Transportation. While the report appears to have taken a superficial look at three areas, we wish to focus on comments made by the Civil Grand Jury relative to management performance, in particular, the claim that the organization lacks leadership. We take exception to the claim that a strong leadership presence is non-existent. The remarkable turn around of this Agency over the past five years is proof positive of the strong leadership provided by Mr. Burns and his leadership team. Prior to Mr. Burns’ arrival, Muni was in a serious condition, having experienced over a decade of systematic defunding, a demoralized staff and factions throughout the organization who were working contrary to the best interests of the organization. Since his arrival in 1999: • Muni has had five consecutive years of balanced budgets. • Muni has initiated major construction projects, such as the Third Street Light Rail Project and the Ocean Avenue Reconstruction Project. • Muni has completed many projects on time and within budget, such as the Ocean Avenue Reconstruction project. • There has been continuous improvement in service, from 48% on-time performance to 71.5% today. • Muni has received public acknowledgement, on many occasions, for providing reliable service to major events. Most notably the opening of SBC Park and the World Series. • Muni has passed every California Highway Patrol inspection and has had positive audits by the California Public Utilities Commission, Federal Transit Administration, and the Metropolitan Transportation Commission. 123 • Muni has a Mission, Vision, Values statement that reflects the deep commitment of its employees to provide a transit agency that is internationally recognized for excellence. Mr. Burns has had to make many difficult decisions over the past few years but none so difficult as raising Muni fares for the first time in eleven years and in light of a continued economic downturn, the unpleasant task of laying off employees. Mr. Bums has earned national recognition and many accolades from the public sector and has received numerous national, regional and state awards including: The Metropolitan Transportation Commission Grand Award in 2002; California Transportation Foundation “Tranny” Award for Top Manager in 2003 and the Clean Air Champion Award from the Bay Area Air Quality Management District in 2002. The report also alleges that Mr. Bums and his staff have no plans to achieve an 85% on-time performance delivery. Mr. Bums and the MTA Board have had numerous discussions regarding staff s efforts and strategic plans to attain the goal of 85% on-time performance. Those plans have been presented and discussed with the MTA Board of Directors at meetings, which are open to the public. We are disappointed that the Civil Grand Jury concluded that no plans exist when a quick review of our meeting minutes, readily available on Muni’s website, provides evidence to the contrary. The MTA Board of Directors and the City and County of San Francisco are proud to have an experienced, effective, and nationally recognized leader at the helm of the Municipal Transportation Agency. We find that this report is in no way an accurate reflection of the Agency nor it's leadership. Michael T. Burns Executive Director of Transportation Municipal Transportation Agency August 25, 2004 Attached are the responses to the June 2004 Civil Grand Jury Report as required by California Penal Code Sections 933 and 933.05. In addition to my responses to their recommendations and
Findings & Recommendations
7 findings
F1:
Funding for in-custody programs in the jails should be continued.
Related Recommendations (1)
R1:
Funding for in-custody programs in the jails should be continued.
F2:
The needs of people exiting the county jails should be studied to help formulate effective programs for the homeless.
Related Recommendations (1)
R2:
The needs of people exiting the county jails should be studied to help formulate effective programs for the homeless.
F3:
A comprehensive continuum of services to assist this population should take priority in planning for the homeless.
Related Recommendations (1)
R3:
A comprehensive continuum of services to assist this population should take priority in planning for the homeless.
F4:
The Sheriff's Department should utilize a computer program to track recidivism.
Related Recommendations (1)
R4:
The Sheriff's Department should utilize a computer program to track recidivism.
F5:
A sponsor/mentor program, which would provide assistance to this population for a limited of time after they are released from custody, should be developed.
Related Recommendations (1)
R5:
A sponsor/mentor program, which would provide assistance to this population for a limited of time after they are released from custody, should be developed.
F6:
One agency overseeing all homeless programs should be developed to maintain a registry of services, act as a clearinghouse for requests for services, and audit all programs involved with the homeless.
Related Recommendations (1)
R6:
One agency overseeing all homeless programs should be developed to maintain a registry of services, act as a clearinghouse for requests for services, and audit all programs involved with the homeless.
F7:
An audit of all agencies, City departments, and community-based organizations that are charged with providing services to the homeless, should be undertaken. GLOSSARY Recidivism: habitual or chronic relapse, especially into crime or antisocial behavior • Misdemeanant: an individual found to have committed a misdemeanor • RSVP: Resolve to Stop the Violence Project • Roads to Recovery - an in-custody drug treatment for men • SISTER – an in-custody drug treatment for women OVERVIEW The San Francisco County jails house an average of 2,200 people per day at a cost of $98, or $35,770 per person per year, which is nearly $80 million annually. During the course of their incarceration, inmates have available to them a number of programs, including a Charter school established by the Sheriff. These programs are Roads to Recovery, SISTER and RSVP. The programs are geared toward helping inmates become crime free and better equipped to cope with life outside the jails. The majority of inmates are awaiting trial, while others have been committed by the Courts to county jail time (up to one year). Some have been committed to the state prison system and await transportation. Many of these programs are suited to all inmates, regardless of their status, while others are aimed at those who will be returning to the community. The vast majority of people incarcerated will be released to the community within a relatively short period. By all accounts, most programs are farsighted, innovative and beneficial to those who attend them. The Sheriff is to be commended for such extraordinary efforts. After release from the jails, a few additional programs, sponsored by the Sheriff's Department, are available. These offer job training, placement and counseling services to a limited number of people. Additionally, other programs are scattered throughout the community, offering a variety of services intended to assist people in establishing themselves in the community. Once released from custody, people must seek out these services. Post-release services provided by the Sheriff are, understandably, limited. It is not the responsibility of the Sheriff to continue to provide for released individuals. That is the responsibility of the City. There does not appear to be a comprehensive list of programs that would help people locate appropriate services. The greatest need expressed by the majority of inmates interviewed is for permanent housing. Finding employment without an address, and at least a message telephone number, is nearly impossible. Remaining crime-free becomes a staggering challenge when people are forced to sleep on the streets for lack of adequate shelter. The current shelter system is difficult to access due to limited beds. People staying in the shelters must leave early each morning and remain on the streets until late afternoon, when they must stand in line again to gain access to food and a bed. Frequently, an individual may attempt to find a bed at several shelters, only to find that there is no space. They then revert to living in doorways or any other place that seems reasonably safe. All of the education, counseling and good intentions forged while in jail are swept away by the reality of trying to survive. It is a great irony that in order to get services people need to be incarcerated. Many of the people in the county jails are misdemeanants who cycle in and out of the jails frequently. The Sheriff's Department does not track recidivists in the jails. There is, therefore, no reliable means of assessing how many people in jail have been there before. Agencies which work with individuals exiting the jails estimate that 40 - 60% of this population is homeless. This estimate coincides with the statements of approximately 80% of interviewed inmates who list housing as their first priority. An accurate picture of who comprise the homeless would assist the City in planning for and providing services to this population. If, in fact, a large number of the homeless are individuals released from the jails, planning around their needs is indicated. The logical repository of this data would be the Sheriff's Department. Many of the community-based agencies that receive funding from a variety of sources, including City funds, offer similar services to the homeless population. These services typically include counseling, twelve-step programs (for alcohol and drug addiction), job preparation and placement, as well as a smattering of other services. Programs are limited in their funds and tend to spread themselves too thin by offering a panoply of services rather than developing one area of expertise, such as job preparation and placement. The staffs of the programs tend to be by young people, either in school and getting academic credits for their work, or by recent graduates who will move on to better jobs when possible. Many programs rely heavily on volunteers who stay with the program for a limited period. Hence, there is little continuity for people in the programs, people who need consistency and personal contact with a reliable person. Many of these programs enjoy success, while others appear to be ineffectual and inconsistent in their services. There is little significant oversight of these programs. Anecdotal evidence, as reported by individuals who work with people released from the county jails, suggests that a large number of the homeless living on the streets of San Francisco are individuals who have been in and out of the jails. The Sheriff's Department has provided them with education, counseling, and other tools to help them upon release from custody. They report feeling renewed and empowered by the in- custody programs. Once released however, people find that services, for the most part, are hard to access. These individuals frequently have substance abuse problems, which have contributed greatly to their situations. They have self-esteem issues and may easily become frustrated and discouraged. Without short-term assistance upon release, many quickly return to their old habits and haunts because the system they are expected to access is daunting at best. When possible, mentors could be assigned to a person prior to their release, in order to set in place services - such as housing, counseling and job preparation and search - needed to enable a person to remain crime free. Most of the interviewed inmates were enthusiastic about the concept of a "mentor' or "sponsor" who could help them for a limited period of time following release. The savings accrued from keeping the person out of the jail system could provide funding for this program. The expense to the taxpayers of San Francisco in terms of incarceration, crime, medical care, the negative effect on tourism, and quality-of-life issues attributed to this population is exorbitant. Providing funding for programs which address their needs could prevent further offenses while significantly reducing the number of people living and dying on the streets, benefiting both the individual and the citizens. Providing relevant, quality programs will require political resolve. Significant oversight of existing and future programs is necessary. Programs not performing satisfactorily should be denied City funding. Agencies should be encouraged to develop specialties rather than trying to be all things to all people. A central clearing point for all services should be developed so that anyone can access available services with a telephone call. Permanent housing should quickly replace shelter beds. Estimates of the homeless population in San Francisco range from 6,000 to 10,000. If, in fact, 40-60% of these individuals (2,400 -6,000) are "graduates" and repeat "graduates" of the county jails, studying their needs and gearing services toward those needs can do much towards alleviating the problem. Significant reduction of the homeless population and its attendant problems will be difficult but possible. The Mayor and Board of Supervisors need to have the political will to demand quality service for money provided and a cessation of "turf wars" between agencies vying for this money. Careful monitoring of services is needed. Agencies not meeting a high standard of service should be denied access to City and County funding. A concerted effort by all agencies, both public and private, can make the difference between San Francisco's continuing to be a second-class city or reclaiming its rightful place as a first class environment for residents and visitors alike. BACKGROUND The Civil Grand Jury reviewed the in-custody programs provided to inmates by the Sheriff's Department. These programs are: Roads to Recovery, SISTER Program, RSVP (Resolve to Stop the Violence Project) and the 5 Keys Charter School. The Sheriff's Department has kept statistics on recidivism rates for these programs. Roads to Recovery is an in-custody drug treatment program that includes acupuncture, academic classes, life skills, relapse prevention, 12-step groups, anger management, family issues, community planning and recovery process groups (Attachment 1). Groups meet Monday through Friday from 7:30 AM to 3:00 PM. The 2000 recidivism study indicates that 55% of the non-treatment control group recidivated; while 44.8% of program graduates relapsed. Significantly the recidivism rate for program graduates who were transitioned into residential programs was only 35.7%. The SISTER program, the only one for women in the jails, collaborates with the Walden House Drug treatment program to provide a substance abuse course similar to Roads to Recovery. The recidivism rate for women inmates who completed the program was 40%, and 55% for the control group (Attachment 2). RSVP is the first violence prevention program of its kind in the nation (Attachment 3). Participants are held accountable for their violence as well as for refocusing and restructuring their attitudes, beliefs and behaviors. A 2002 study of recidivism, subsequent to release, for this group found the following: 2 months or more in the program: a 42.4% reduction in re-arrest for violent crimes; 3 months or more: a 50.7% reduction 4 months or more: a 79.7% reduction (Attachment 3). The Sheriff's Department received $1,352,491 for these programs in 2003 - 2004. In September 2003, the 5 Keys Charter School was opened in the jail (Attachment 4). It is believed to be the first such school in a jail nationwide. It was developed when the public schools withdrew their educational support due to budget cuts. Classes take place from 7:00 AM to 3:00 PM, Monday through Friday. Subjects are taught in three and four-hour blocks since only about 10% of the students remain in the program (and in custody) for a month or more. Participants can improve their grade-point average by 1.7 grades in thirty days. Inmates and deputies are equally enthusiastic about the benefits of this program. Funding comes from a variety of sources, largely grants and State funds for ADA (Average Daily Attendance). As a natural adjunct, the post-release programs were also examined, which led the jurors to explore other options available to this population when they are released from custody. Although the Sheriff's programs are laudable, they are necessarily limited in scope. Once an individual is released from jail and on their own, there is precious little assistance to be had. Post-release programs include the Garden Project, electronic home detention and monitoring, court diversion (own recognizance) and graffiti cleanup (Attachment 5). The budget for these services for FY 2003-2004 was $1,601,034. Of these programs, The Garden Project holds the most promise. Whereas the other services, i.e., home detention, court diversion and graffiti cleanup are established for people going through the Court process or fulfilling a Court order, the Garden Project is geared toward people in the community who have been released from custody after the conclusion of their court case. The Project, begun in 1982 as an in-custody program, trained inmates in organic farming and landscaping at the facility in San Bruno. Due to budget cuts, the in-custody portion of the Project was eliminated. Increased funding to restore this program in the jails is a very desirable priority of this Civil Grand Jury. The current program trains individuals in landscaping and gardening at two sites away from the jail. Participants are paid $8 per hour and work 32 hours per week. While most of the produce is donated to local senior centers, homeless shelters and family centers, a part of each harvest is sold at the Ferry Plaza Farmer's Market. The proceeds help pay salaries and fund program operation. A second part of this Project is the Tree Corps, which pays the same amount for the same length workweek. Individuals plant and maintain street trees throughout City neighborhoods. Additionally, the Project has a third component, Garden Project Trainees. These are people who are not ready to join the work force because they lack the skills to do so. Trainees work on various jobs; e.g., planting flowers in neighborhoods, delivering produce to agencies and beginning to work in the Hunter's Point Garden. The recidivism rate for all of the Jail Alternative Programs (post release) is 60% (Attachment 6). The recidivism rate for the Garden Project is 6% four months after release and 24% two years after release. These statistics are far better than those for any other post release program and suggest that actual job training that develops skills and rewards the person for achievements is a powerful tool. After investigating the in-custody and post-release programs, jurors turned to community services available to this population. There appear be numerous agencies, both public and private, which receive funding for and provide various services to the homeless population. Descriptions for most of the programs identified as service providers offered similar or identical services; e.g., counseling, job training and preparation, alcohol/drug programs, etc. According to people who accessed and are knowledgeable about these programs, their effectiveness varies widely. Jurors, with the resources to identify and locate agencies that offer services to the homeless, were unable to find a comprehensive list of all available services. Both users of the system and professionals in the field reported that accessing services is incredibly difficult. When asked about programs for the homeless in general, and for people exiting the county jail population in particular, one professional stated, "There is nothing going on out there." Additionally, agencies contracted to provide services often engage in "turf wars" over provision of those services and funding to support them. In many instances, the result is poor service delivery. Agencies need to be held accountable for funding; they should be denied City and County funding when found in violation of their contract. Careful oversight of all providers is warranted in order to ensure proper expenditure of funds and provision of services. A Life "Walter" is a Viet Nam veteran who has an alcohol problem. He lives on the Tenderloin streets and reports having been in county jails ten times. Currently in the Roads to Recovery Program, he has participated in other jail programs during previous incarcerations. He receives a monthly check from the Veteran's Administration that he admits he spends unwisely. As a result, he frequently cannot afford housing in low-rent hotels. Sleeping on the street is frightening and dangerous. He has seen people robbed and bludgeoned in their sleep. On more than one occasion, others sleeping on the streets in his vicinity have died during the night. When he tries to find space in the shelter system, he says, he is frequently turned away because the shelters are full. When he is able to get into a shelter, he can stay there from 4:00 or 5:00 PM until 7:00 the following morning. These temporary and unreliable situations are frustrating and demeaning. During the wet and cold winter months, he may commit a petty crime or be arrested for public drunkenness so that he can go to jail where he knows he will be warm and fed in a clean environment. When he is incarcerated, the Veteran's Administration is notified and his check is withheld. Upon release, he must go to the VA office to have the checks reinstated. It takes two months for the new check to arrive, during which time he has no income and is again on the streets. Thus goes the cycle for the thousands of "Walters" in San Francisco. INVESTIGATIVE PROCESS The Civil Grand Jury investigated programs provided by the Sheriff's Department for individuals incarcerated in the county jails. The Jury also investigated a number of community- based services designed to serve the homeless. The investigation included interviews with senior Sheriff's Department staff, deputies, inmates, community-based providers, a member of the Mayor's office, judges and attorneys. The Jury reviewed program descriptions and statistics related to this population. IN-CUSTODY PROGRAMS I. FINDINGS 1.1. In-custody programs administered by the Sheriff's Department are beneficial to the inmates and should be retained. Inmates participating in these programs are low- risk, non-violent offenders, most of whom are incarcerated for alcohol and drug offenses. 1.2. The 5 Keys Charter School, although in operation for less than a year, holds great promise. Students enrolled in the school are enthusiastic about this program, respond well to the teachers and are eager to learn and achieve. They report a renewed sense of accomplishment and self-esteem.
Related Recommendations (1)
R7:
An audit of all agencies, City departments, and community-based organizations that are charged with providing services to the homeless, should be undertaken.
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Additional Recommendations
11
Not linked to specific findings.
R1:
The SFFD and the DPH should establish specific criteria for measuring the success of the merger and for determining when it is complete.
R2:
There should be stronger medical oversight of the SFFD Emergency Medical Services (EMS).
R3:
SFFD leadership should define and communicate the values of the Department to ensure that EMS is at least on a par with fire suppression.
R4:
Resource allocation should reflect the shift in workload from fire suppression to EMS. The Mayor, Board of Supervisors and Fire Commission should direct and support the Chief to make the necessary resource allocation changes.
R5:
SFFD needs to take immediate action to address the shortage of firefighter/paramedics through recruitment, retention and cross training.
R6:
The Department should provide comprehensive leadership and command training for all officers prior to their assumption of command. Periodic training should emphasize professionalism, responsibility and accountability and be given on a regular, ongoing basis. Training should include conflict resolution and team building. REQUIRED RESPONSE: Fire Chief – 60 Days VII. PROMOTIONS AND TEMPORARY OFFICER APPOINTMENTS
R7:
SFFD should provide better management training for all officers. It should hold officers accountable for carrying out their supervisory duties.
R8:
The Mayor should investigate why promotional examinations have not been given in SFFD.
R9:
The Mayor should investigate why the Civil Service Commission implemented a certification rule favored by neither management nor labor; in effect, the new rule makes everyone who takes the examination eligible for promotion.
R10:
SFFD needs to determine the extent of all on-duty alcohol consumption and drug abuse problems and should institute policies and procedures to deal with the problem effectively. There must be no tolerance for on-duty substance abuse.
R11:
The Mayor should initiate a comprehensive, in-depth review of SFFD by outside professionals, similar to those conducted in Chicago and Boston. GLOSSARY Acting Officer - An officer or other member designated by Department order to perform duties at the next higher level of authority. An acting officer is paid at the higher level. ALS - Advanced Life Support. Persons trained in ALS can provide high-level emergency medical service. This includes the ability to start intravenous lines, administer medications, place endotracheal tubes (artificial airways that pass through the larynx), provide advanced cardiac monitoring, and apply manual defibrillation. ALS engine – An engine staffed with an officer, a driver (firefighter), one firefighter-EMT and a firefighter/paramedic. An ALS engine is equipped with a locked drug box containing medications needed in providing ALS care. Twenty-one of the City's 42 fire stations are equipped with ALS engines. Ambulance - A vehicle equipped to assess, treat and transport medical patients. Also known as Medic Units, they carry some firefighting equipment to provide medical and rescue support. The SFFD has 19 such units that are staffed by one firefighter/paramedic and one firefighter/EMT. The SFFD also staffs one or two ambulances per day with two paramedics. These ambulances provide ALS treatment and medical transport and carry less fire suppression equipment than Medic Units. BLS - Basic Life Support. Persons trained in BLS can provide Cardio-Pulmonary Resuscitation (CPR), basic first aid and patient transport, and can use an external defibrillator. DPH – Department of Public Health. EMS – Emergency Medical Services. EMT - Emergency Medical Technician. A person trained and certified in BLS. SFFD requires that all new firefighters must have EMT-1 licensure. Currently, 74% of SFFD firefighters are EMT-1 certified. Emergency Medical Response Times – The San Francisco Emergency Medical Services Agency of the DPH has performance standards governing the maximum allowable elapsed time, from call to arrival of the first responder to medical emergencies. The SFFD responds to two types of calls, Code 2 and Code 3. Code 2 calls are non-life threatening; Code 3 calls are those that are life threatening. The SFFD measures 3 responses to Code 3 calls: • Responders capable of performing BLS and defibrillation. Response time is 5 minutes. • Responders capable of performing ALS. Response time is 10 minutes. • Responders capable of patient transport. Response time is 12 minutes. Engine – A fire suppression apparatus staffed by an officer and three firefighters and equipped with a pump, hose and a water supply. Each of the 42 fire stations in San Francisco has an engine. Firefighter – A member trained in fire suppression. Firefighter-EMT – A member trained in fire suppression and BLS. Firefighter-Paramedic – A member trained in fire suppression who is also a licensed paramedic capable of delivering ALS emergency medical care as well as BLS. Heavy Rescue Squad - Staffed by an officer, a driver (firefighter) and two firefighter EMTs, the Department's two rescue squads are first responders on medical calls. The Rescue Trucks are specially equipped with infrared camera, Jaws of Life and scuba gear, as well as medical equipment and defibrillators. Rescue squad members are trained in scuba, surf, hazardous materials, cliff, tunnel and confined space rescue. Like Work Like Pay - A short-term acting officer assignment, usually for a day at a time. The pay is at the higher rate for time worked only. Medic Unit - A staff of either two firefighter/paramedics or one firefighter/paramedic and one firefighter-EMT: medic units provide ALS treatment and transport of ALS and BLS patients suffering in medical emergencies. Medic units also carry firefighting equipment and can provide medical and rescue support at fires and other emergencies. The SFFD has 19 such units. The term "ambulance" is used in this report to mean Medic Unit. Member – Officers and other personnel of the SFFD. MOU - Memorandum of Understanding between the City and County of San Francisco and San Francisco Firefighters Union, Local 798, IAFF, AFL-CIO. Provisional Officer - A temporary officer who is a step closer to permanent status than an Acting Officer. The member is appointed by the Chief for up to 3 years or more with approval of the Human Resources Director. A physical examination is required for a provisional officer appointment. Provisional officers are paid at the higher level when on duty and on vacation or sick leave. A provisional officer who retires will receive retirement benefits based on the higher salary. Truck - Called "hook and ladder" by laymen, trucks are staffed with an officer (lieutenant or captain), one driver firefighter, one tiller firefighter, one firefighter-EMT and one firefighter. Trucks carry ladders and other equipment and are used to provide ladder access, rescue and ventilation. Technical definitions derived from SFFD data and the City and County of San Francisco Office of the Controller's report, "A Review of the San Francisco Fire-EMS System, April 28, 2004. OVERVIEW The San Francisco Fire Department (SFFD) consists of a diverse group of brave men and women, the majority of whom are dedicated to protecting the lives and property of the citizens of San Francisco. They provide protection from fire and natural disasters, provide life saving emergency medical services and prevent fires. The leaders as well as the rank and file of the Department treated the Civil Grand Jury courteously and helpfully. Our hope is that this report will result in the elimination of the problems that are currently keeping the Department from achieving its potential. The main focus of this Civil Grand Jury investigation is the status of Emergency Medical Services (EMS) that merged with SFFD in 1997. This primary objective led us to focus on eight key areas:
* This report's PDF did not contain easily extractable text and required Optical Character Recognition (OCR) for analysis. There may be minor errors in the extracted findings and recommendations due to OCR limitations with scanned documents.