Shasta County Grand Jury
2018-2019
Findings & Recommendations
4 findings
F1:
Respect between Camp staff and inmates provide a positive and supportive work environment.
F2:
Sugar Pine provides a training ground for low-risk inmates to learn critical skills for reentry into the community.
F3:
Sugar Pine provided valuable fire suppression services during the 2018 major wildland fires that devastated Shasta County and the surrounding area at minimal cost to local government.
F4:
Sugar Pine crews provide much needed services to local governments and districts at a much reduced cost. COMMENDATION The Grand Jury commends the Sugar Pine Conservation Camp for being a positive force in our County and the State correctional system.
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Findings & Recommendations
8 findings
F1:
Correctional and medical staff complete the intake medical screening process in a consistent and uniform manner, leading to equal treatment for all intakes.
F2:
All intakes are subject to the same procedure and are evaluated by qualified staff, failing to substantiate alleged bias.
F3:
Primary medical care for all inmates, including referrals for specialty care, are coordinated in a timely fashion, providing optimal medical services.
F4:
State correctional regulations (Title 15) for inmate medical care are being met, thus assuring that inmates receive appropriate, standardized care.
F5:
Protocols for emergency, prolonged, and end-of-life care are followed by medical and correctional staff providing avenues for compassionate care.
F6:
The allegation that medical staff is required to work beyond their licensed skill level was not supported. Protocols are in place to provide 24-hour medical care by appropriately licensed staff.
F7:
Medical and correctional staff work together to strive to provide quality assurance through a cohesive medical services program for the benefit of the inmates.
F8:
Compensation for medical services was found to be within the contracted budget for fiscal years 2016/2017 and 2017/2018, allowing services to be provided as required within a fiscally responsible manner. COMMENDATIONS C1: The Grand Jury commends the medical and correctional staff of the Shasta County Jail on providing efficient and compassionate medical care for the inmates at the Jail. C2: The Grand Jury commends the medical and correctional staff of the Shasta County Jail for meeting or exceeding its contractual obligations during fiscal years 2016/2017 and 2017/2018. REQUEST FOR RESPONSES Pursuant to Penal Code Section 933.05, the following response is required from the following elected county officer (within 60 days): Shasta County Sheriff: F1-F8 16 SOURCES CONSULTED • Personal Services Agreement between the County of Shasta and California Forensic Medical Group, Inc., June 16, 2016 • State of California. Title 15: Minimum Standards for Local Detention Facilities, April 1, 2017 (Title 15 Hyperlink) • State of California. Business and Professions Code. Division 2. Healing Arts. Chapter 6. Article 2. Scope of Regulation (2725-2742) (Division 2 Hyperlink) • California Government Code Title 3, Division 2, Part 3, Chapter 2, Article 1 (26600 – 26616) • Shasta County Jail Medical Sick Request Slip • First Amendment to the Agreement Between the County of Shasta and California Forensic Medical Group, Inc., Dec. 4, 2018 • Shasta County Correctional Facility Medical Pre-screening Form (CFMG–MPS-SH). • CFMG Medical Intake Triage/Receiving Screening Form. • Shasta County Jail Inmate Grievance Log (June 2018-November 2018). • County of Shasta. Financing Sources and Uses by Budget Unit by Object Governmental Funds, Fiscal Year 2018-19. Budget Unit: 260-Jail (Fund 0195) • Shasta County Sheriff’s Office Main Jail Annual Report of Medical Services, 2016 and 2017 • 2017 Quarterly Quality Assurance minutes (Feb.14, May 16, Aug. 15, and Nov. 21) • CFMG Shift Schedule (Aug.2018 – Jan. 2019) • Shasta County Sheriff Policy 503: Safety and Sobering Cells, 2019 Released June 27, 2019 When there is a perception of a conflict of interest involving a member of the Grand Jury, that member has been required to recuse from any aspect of the investigation involving such a conflict and from voting on the acceptance of or rejection of that report. No members of the Grand Jury were recused from this report. Reports issued by the Grand Jury do not identify individuals interviewed. Penal Code Section 929 requires that reports of the Grand Jury not contain the name of any person or facts leading to the identity of any person who provides information to the Grand Jury. 17 “ 9 1 1 , W H A T ’ S Y O U R E M E R G E N C Y ? ” SUMMARY Over the past 23 years, Shasta County Grand Juries have produced six reports on the Shasta Area Safety Communications Agency (SHASCOM): 1995/96, 2000/01, 2003/04, 2005/06, 2007/08, 2009/10. This year’s report brings the total to seven. As the County’s emergency communication provider, SHASCOM is responsible for a vital public service. Similarly, the Grand Jury provides an important public service by periodically assessing SHASCOM. After nine years, a thorough, fresh assessment with recommendations of SHASCOM’s operations was overdue. The 2018/19 Shasta County Grand Jury found that many concerns highlighted in past reports are still significant today. In particular, vacant dispatcher positions continue to be a chronic and debilitating issue. Unfilled dispatcher positions lead to excessive overtime and low employee morale. Inadequate recruitment efforts fail to meet staffing needs. Dispatching is a difficult job. Excessive overtime is an added burden that increases stress. Overtime and related personnel management issues need to be resolved for the good of the employees and for the good of SHASCOM. SHASCOM has adopted the standards for training from the California’s Commission on Peace Officer Standards and Training (POST). However, not all training required by POST gets completed, in part because dispatchers have insufficient time to complete their training. We recommend that an outside consultant be hired to analyze SHASCOM’s operational needs and propose fixes for staffing and related personnel management issues. S H AS C O M 9 1 1 S E R V I C E S 18 The Grand Jury also identified issues related to SHASCOM’s technical support systems. The Agency has a new Computer-Aided Dispatch (CAD) system that became operational in October 2018 and is still undergoing modification and fine tuning. Because the new CAD does not yet meet the complex, multi-agency dispatching needs of SHASCOM, it is imperative that member agencies and SHASCOM’s Board receive regular updates on CAD performance and system integration. This information will aid the Board in determining if the CAD system is adequate. CodeRED is the County’s emergency alert system. It warns the public of emergencies and advises on how to respond. The system communicates information that is critical to everyone’s safety. Citizens of the County increase their options for receiving emergency alerts by registering for CodeRED. Our primary concern is that CodeRED is underutilized because it is poorly advertised to the public and is minimally user-friendly. We are especially concerned about citizens with disabilities or other conditions that limit their ability to receive and respond to emergency alerts. SHASCOM needs to promote CodeRED to the public. Read further to learn more about this important public service. The SHASCOM Board is ultimately responsible for how well the Agency functions. Ongoing issues suggest the Board needs to be more proactive in its oversight of SHASCOM. To be more effective, the Board needs regular updates on performance-related issues, data to analyze the issues, and options on how the issues can be resolved. We found no clear process of how the Board makes recommendations for improvement. An outside consultant could recommend how best to optimize the communication of performance data and other important issues between the Board and the Director. We recommend a stepwise process to advance Board oversight: • Hire a management consultant to analyze SHASCOM / Board operations. • Schedule a workshop including the Board, Director, and consultant to address important issues, and review and clarify the roles and expectations of the Director and Board Members. • Establish a standing Advisory Board composed of community volunteers to assist the Board. The Grand Jury believes outside eyes can help the Board and management of SHASCOM find new ways of addressing important issues and improve transparency. BACKGROUND With the Carr Fire fresh in Grand Jurors’ minds, the 2018/19 Shasta County Grand Jury decided to look more closely at the County’s emergency response services and infrastructure. This devastating fire presented emergency response challenges never before experienced within Shasta County. The Grand Jury recognizes that first responders did their best to manage the challenges through tireless and professional work. Still, responders and the public were at times overwhelmed, particularly by the explosive fire behavior of July 26th when an unprecedented number of lives and structures were lost in Shasta County. All Grand Jury members know people who lost their homes, and some knew people who lost their lives. The Grand Jury started its research by looking at various aspects of emergency response. We ultimately focused on SHASCOM (911 service). When 911 is called, most of us know and expect that the call will be answered, our emergency issue addressed, and appropriate responders dispatched. All this is done with speed and professionalism. Similarly, if an area-wide emergency threatens us, our expectation is that we will be alerted to the threat in a timely and effective manner. SHASCOM is the conduit for communications between first responders and the public – communications that are critical to our safety. Most of us take this service for granted, but how many of us know how the service works and how best to use it? In an emergency, you might wish you knew more. SHASCOM was created in 1990 through a Joint Powers Agreement (JPA) between the County of Shasta and the cities of Anderson and Redding. SHASCOM answers 911 calls, issues emergency alerts to the public, and provides emergency dispatch and communication for the Shasta County Sheriff’s Office, City of Redding Police Department, City of Redding Fire Department, City of Anderson Police Department, and two emergency medical service / ambulance companies (EMS) in the County. The California Department of Forestry and Fire Protection (CAL FIRE) and the California Highway Patrol provide separate emergency dispatch, but interface directly with SHASCOM. Redding Fire is the only City fire department in the County. The County contracts with CAL FIRE to serve as the County’s fire department. Fire Districts within the County are dispatched by CAL FIRE. Full-time staff at SHASCOM include (as of March 2019): • Director • Support Manager • Operations Manager • Systems Analyst • Administrative Assistant • Five Dispatch Supervisors, including an Administrative Supervisor • Thirty-one Dispatchers / Call Takers SHASCOM is overseen by a five-member Board composed of the City Managers of Redding and Anderson, the Shasta County Administrative Officer, the Shasta County Sheriff, and a fifth member that alternates between the Police and Fire Chiefs of Redding. Board meetings are scheduled bimonthly and are open to the public. This Grand Jury’s first contact with SHASCOM was during a site visit to the Agency’s headquarters and dispatch center in August 2018. Shasta County Grand Juries have often taken a tour of the SHASCOM facility as a standard part of the Jury’s orientation to local government services. There are reports of these prior tours, as well as more in-depth investigations that were undertaken. These Grand Jury reports provide a track record of the issues that were interpreted as significant in the past. With the Carr Fire fresh in everyone’s mind, this Grand Jury’s tour was especially poignant and thought-provoking. The Grand Jury felt that it was necessary to once again to take a closer look at SHASCOM’s operations. METHOD OF INVESTIGATION Refer to Sources Consulted section for documents and reports reviewed. Interviewed: Shasta County Sheriff’s Office personnel Redding Fire Department personnel Redding Police Department personnel Anderson Police Department personnel Anderson Fire Protection District personnel Community Notification / Alert System vendor OnSolve (CodeRED) SHASCOM personnel Members of the SHASCOM Board of Directors EMS (Emergency Medical Services) personnel Shasta County Health and Human Services Agency (HHSA) personnel Site visit: SHASCOM offices DISCUSSION In the course of the investigation, the Grand Jury was impressed by the hard work and dedication of staff at SHASCOM. Dispatchers work behind the scenes performing a service that few of us have the ability or fortitude to do. The job includes long shifts, overtime, focus, skill at multitasking, and a demeanor that remains calm and professional during periods of intense activity. Dispatchers are among the many unsung public servants that help to keep us safe. Dispatchers often enjoy the challenges and diversity of their work. Dispatching is a unique and demanding job. The task of running a dispatch center is also quite demanding. This task falls on many shoulders, including managers, the Director, participating agencies, and the SHASCOM Board. It is a complex task involving sophisticated technology, people management, and accountability to different agencies and ultimately the public. Some of the significant issues identified during the investigation were also identified by previous Grand Juries. The issues involve: personnel management, technical support systems, and Board oversight and administration. Are these unresolved issues destined to continue, or are there ways to effectively resolve them? PERSONNEL MANAGEMENT Maintaining full staffing is one of the ongoing and challenging personnel issues faced by SHASCOM managers. Previous Grand Jury reports have identified unfilled dispatcher positions as a chronic issue. While a college degree is not required, interviews revealed that only a small percent of the population is capable of performing the demanding job of a dispatcher. Recruitment efforts have not met the staffing needs of SHASCOM. Furthermore, extensive ongoing training is a requirement of the job and places additional strain or shortages on the pool of experienced dispatchers available to work. Overtime, both mandatory and otherwise, is necessary to meet SHASCOM’s dispatch needs and to ensure that an essential public service is fulfilled. Management utilizes overtime as a response to unfilled positions and this impinges upon a critical element of morale - the work / life balance of employees. Excessive overtime is a reason for employee dissatisfaction and stress. Recruitment, training, and overtime are intertwined elements of the staffing issue. Dispatcher Staffing at SHASCOM, 2016-2019 Public Safety Dispatcher I Public Safety Dispatcher II PSD I and II Fiscal Year Budgeted Filled Vacancy Budgeted Filled Vacancy Total Vacancies per FY 2016-2017 13 7 6 22 19 3 9 2017-2018 13 12 1 22 19 3 4 2018-2019* 13 10 3 22 21 1 4 * as of 3/26/19 Recruitment Advertising for SHASCOM dispatcher positions is handled through various media, with Craigslist being consistently mentioned by interviewees. The Grand Jury did not find an effective recruitment plan. Some applicants knew little about public safety dispatching as a career when they applied and their application was more or less a chance decision. Job applications are accepted by SHASCOM on an ongoing basis, however to hire a permanent, full-time dispatcher is a lengthy process. Four applicants are hired to start a training and probationary period of up to 18 months. Because in-house training is time consuming and removes personnel from their normal dispatcher duties to do the training, typically only one group of four is trained at a time. Ideally, all four are hired permanently. However, not all trainees successfully complete probation. As few as one dispatcher may complete probation and be hired during a recruitment cycle from a pool of 20-25 qualified applicants. Due to the lengthy 22 recruitment, training, and hiring process, many qualified applicants may withdraw from the process to seek employment elsewhere. Recruitment efforts fail to meet staffing needs and contribute to excessive overtime. The process deserves a closer look to determine how it can be improved. Training No one can step into a dispatcher position without a significant amount of training. In-house training is essential as each dispatch center has its own set of employee expectations, procedures, and technical support systems to be learned. In-house training of new dispatchers involves a standard set of milestones. Employees transferring from another dispatch center also require in- house training. Multi-agency dispatch centers, like SHASCOM, require that dispatchers learn the jargon and idiosyncrasies of separate agencies. SHASCOM dispatches for three law enforcement departments, two EMS (ambulance) companies, and one fire department. The dispatch world is ever changing. Initial and on-going training is required to build and maintain competency. SHASCOM uses experienced dispatchers to train new employees. A defined course of milestones must be attained before the trainee is hired permanently. While the training has defined goals, trainers receive little instruction on how to conduct the training they are expected to provide. Since milestones must be attained in a given amount of time, failure to meet goals could be due to a lack of consistency among trainers. A better defined and standardized approach to “training the trainer” would ensure that all new hires get the same quality instruction. SHASCOM utilizes California’s Commission on Peace Officer Standards and Training (POST) program for additional training and certification of its dispatchers. The program requires a Basic Course for Public Safety Dispatchers of 120 hours. In addition, Continuing Professional Training (CPT) of 24 or more hours is required every two years. All dispatchers at SHASCOM complete the Basic POST Course. SHASCOM is out of compliance with the CPT requirement. POST certification is geared toward law enforcement. SHASCOM has two Public Safety Dispatcher (PSD) classifications, PSDI and PSDII. Only PSDIIs handle law enforcement dispatch. There are other available public safety dispatcher certification programs. The SHASCOM Board is currently reviewing whether to continue with POST and/or to use, in whole or in part, another certification program that provides more flexibility. Overtime Training, whether in-house or POST, reduces the number of staff available to work. This in turn compounds overtime and staffing issues. Unfilled positions exacerbate the need for overtime. A typical shift is 12 hours with eight dispatchers and a supervisor. Even with overtime, it's not unusual for either night or day shifts to be understaffed. When positions are not filled, supervisors are required to perform dispatcher duties as well as provide break relief. Overtime rules are governed by SHASCOM’s Memorandum of Understanding (MOU) with the dispatchers’ union. There is no cap on overtime stated in the MOU. The overtime burden falls disproportionally on the most qualified dispatchers (PSDIIs). PSDIIs are required to have the 23 skills to perform all dispatch functions, notably law enforcement dispatch, which PSDIs are not qualified to do. The vast majority of calls at SHASCOM are for law enforcement. If a PSDII calls in ill, another PSDII must be available to fill the vacancy. Thus, the majority of overtime goes to PSDIIs. Overtime for PSDIIs commonly exceeds 40 hours per month or the equivalent of an entire week or more of extra work. Added to this burden is the uncertainty of not knowing when overtime might be required. The overtime expectation is a disincentive for advancing from PSDI to PSDII. SHASCOM’s overtime totals are currently running in excess of 1,000 hours per month and have exceeded 2,000 hours. During a two-week work schedule, SHASCOM dispatchers work six 12-hour shifts and one 8- hour shift. The benefit of this schedule is that there are more days off in a two-week work schedule. This benefit, however, can be negated by having to work overtime on days off. Days off are essential for work / life balance. Overtime is an expectation of any job that involves public safety / emergency response. Dispatchers expect and accept this. However, chronic, excessive overtime with no end in sight should not be the norm. It creates a sense that employees have no control over their lives and lowers morale. TECHNICAL SUPPORT SYSTEMS Computer-Aided Dispatch (CAD) CAD is an acronym for the computer software that stores, manages, and retrieves information essential to the dispatcher’s job. The current CAD system from Spillman Technologies (Motorola Solutions) became operational in Shasta County in October 2018 and is still undergoing modification to meet local needs. The previous CAD was outdated and did not meet contemporary needs. An important attribute of the Spillman CAD is that it integrates a variety of functions that previously were handled separately. Thus, a greater amount of information is available to dispatchers and agencies in real time, and information can be shared more readily among different levels within an organization. Other useful features are: 24 • An increased capacity for mapping incident locations. • Automated Vehicle Locator (AVL) which automatically tracks and routes emergency vehicles. • The ability to capture information (flag) that alerts first responders to potential hazards, persons with specific needs, or individuals requiring a cautious approach. Spillman is working with SHASCOM and its participating agencies to resolve issues and fine tune the new CAD. This is a necessary, critical, and time-consuming aspect of bringing any complex software system up to the client’s specifications. This process has been productive. Our investigation into CAD covered all sectors that utilize or oversee the system – law enforcement, fire, EMS, supervisors, managers, and SHASCOM Board members. Law enforcement had the greatest input into the selection of the Spillman CAD system and has the greatest satisfaction with its performance. Redding Fire Department (RFD) has the greatest dissatisfaction. There is concern that the new CAD was inadequate for fire or multi-agency dispatching. A significant issue for RFD is that the AVL feature does not consistently identify the closest available or correct type of fire engine and crew to dispatch to an incident. The AVL routing function is not accurately calculating fire unit response times. This dispatching /response issue is further compounded by the fact that many RFD engines are currently staffed with only two- person crews. Engine staffing may require that a second engine be dispatched, adding to response time and reducing the number of resources available for other incidents. RFD is dispatched by SHASCOM, while all other fire departments in the County are dispatched by Shasta County Fire (CAL FIRE) which uses fire-trained personnel in its dispatch center. In addition to CAD-specific issues, firefighters have reservations with the dispatchers’ understanding of the wide range of incident types and scenarios to which RFD responds. Fire- related training for dispatchers could be improved. Suggestions include dispatcher ride-a-longs with firefighters and having a firefighter at the dispatch center to interact directly with dispatchers. The Spillman CAD can create flags by location, but it cannot automatically retrieve such data from the old CAD. Information transfer must be done manually. To transfer all the old flagged data would be prohibitively time consuming. Not all the old information is useful or valid. High priority information is being identified and transferred. The Spillman CAD is undergoing operational review and modification, but has yet to meet the needs of SHASCOM’s member agencies. The new system experiences downtimes (crashes). Written performance data from SHASCOM on the new CAD was not available. The problems with fire / multi-agency dispatch still require revisions.
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Findings & Recommendations
16 findings
F1:
Chronic understaffing necessitates excessive overtime, creating stress and negative morale.
F2:
Public Safety Dispatchers II (PSDII) have a disproportionate overtime burden because they are qualified for all dispatcher functions.
F3:
The amount of overtime required of PSDIIs is a disincentive for Public Safety Dispatchers I (PSDI) to advance.
F4:
Current recruitment efforts are inconsistent and limited, thus contributing to unfilled dispatcher positions and excessive overtime.
F5:
The limit of four training slots restricts the number of vacancies that can be filled in a training cycle.
F6:
Training efforts are not standardized among the trainers resulting in an inconsistent training program.
F7:
The SHASCOM Board has not effectively dealt with the overtime and recruitment issues which have caused chronic staffing problems.
F8:
Overtime and staffing issues limit SHASCOM’s ability to timely comply with all Peace Officer Standards and Training (POST) accreditation requirements. 29
F9:
The Computer- Aided Dispatch (CAD) system does not satisfactorily meet the needs of Redding Fire Department and Emergency Medical Services (ambulances) which causes dispatch and first responder complications.
F10:
SHASCOM has no systematic process for utilizing CAD system’s capability for flagging specific information on populations with access and functional needs, leaving this group vulnerable in emergency situations.
F11:
CodeRED is underutilized due, at least in part, to a lack of systematic effort to increase registrations.
F12:
SHASCOM and participating agencies’ websites lack adequate information about the function of CodeRED alerts and the registration process, leaving the public with insufficient information as to why or how to register.
F13:
The current CodeRED registration process is not sufficiently effective at enabling or achieving registration of people with access and functional needs. This may leave this population vulnerable to future emergencies for lack of receiving a CodeRED alert.
F14:
There has been no available comprehensive testing or analysis by SHASCOM to determine if CodeRED meets the County’s needs for an emergency alert system.
F15:
The Board does not receive standardized, system-wide reporting or documentation from the various Operational meetings between participating Agencies and SHASCOM, impacting their ability to make informed decisions.
F16:
There is not a shared understanding of roles and responsibilities among Board members and the Director, which results in less than effective governance. This lack of consistent and comprehensive oversight of SHASCOM allows chronic issues, as outlined in the report, to persist. COMMENDATION Thank you to Agencies that put links to CodeRED on their websites.
Additional Recommendations
12
Not linked to specific findings.
R1:
By September 30, 2019, the SHASCOM Board will begin the process of hiring a subject matter expert (management consultant) to review and analyze personnel management issues related to overtime, staffing levels, and dispatcher responsibilities and classifications (PSDI and PSDII). Funding could come from current-year budget savings or be allocated to the following year’s budget.
R2:
By October 31, 2019, the SHASCOM Board will instruct the SHASCOM Director to prepare a comprehensive recruitment plan that analyzes appropriate targets and details the timing and methods of recruitment. 30
R3:
Beginning January 31, 2020, the SHASCOM Board will require the SHASCOM Director to provide quarterly reports on recruitment efforts and outcomes, based on the comprehensive recruitment plan.
R4:
By January 31, 2020, the SHASCOM Board will require the SHASCOM Director to have prepared and initiated the Request For Proposals (RFP) process for hiring the management consultant.
R5:
By November 30, 2019, the SHASCOM Board will require the SHASCOM Director to present a timeline for achieving compliance with accreditation certification of the dispatch center, either through POST or an alternate accreditation organization.
R6:
By November 30, 2019, the SHASCOM Board will require that each employee’s annual evaluation include continuing education requirements and provide a reasonable timeframe to complete the training.
R7:
By November 30, 2019, the SHASCOM Board will instruct the SHASCOM Director to conduct an in-house audit on the effectiveness of the training program and report the results to the Board by January 31, 2020.
R8:
Beginning at the September 2019 SHASCOM Board meeting, and at each bi-monthly meeting thereafter, the Board will require written updates on the performance of CAD until all issues are resolved to the satisfaction of participating Agencies.
R9:
By January 31, 2020, the SHASCOM Board will instruct the SHASCOM Director to present a project plan for incorporating information on people with access and functional needs into the CAD database.
R10:
By January 31, 2020, the SHASCOM Board will instruct the SHASCOM Director to plan the implementation of an annual performance test of CodeRED with a subsequent report to the Board on the system’s effectiveness within 60 days of the test.
R11:
By January 31, 2020, the SHASCOM Board will instruct the SHASCOM Director to appoint a staff member of SHASCOM to improve the CodeRED registry website and expand public registration, including persons with special access and functional needs.
R12:
By May 31, 2020, the SHASCOM Board will establish an operational, standing Advisory Board, composed of community volunteers as outlined in this report.