Yolo County 1998-1999 - California Grand Jury Reports

June 30, 1999 — Uniny of YO Woodland, Galiifornia, 95(595)*

65 pages 20 findings 33 recommendations

Findings & Recommendations 20 findings

F1: Animal Services is a section of the Administrative and Special Services Division of the Sheriff's Department.

F2: The shelter has a capacity of up to 100 dogs and 50 or more cats. In addition, the shelter can board horses, goats, reptiles, emus, and other exotic species.

F3: The staff consists of nine Animal Control Officers, three clerical staff, and one supervisor. Inmates from the Monroe Detention Center assist in maintaining the grounds and cleaning cages.

F4: Animal Control Officers are authorized to make arrests but do not normally take anyone into custody. Officers do carry a weapon in their vehicles.

F5: Yolo County Board of Supervisors All recommendations and their corresponding findings Yolo County Planning and Public Works Department

F6: Euthanized animals are picked up by a private rendering company at a cost of $600 per month.

F7: Animal Services issued 12,403 licenses this year.

F8: A spay/neuter program is operated by Animal Services. A $20 deposit is required for adopted 1998-1999 Yolo County Grand Jury Final Report Animal Services (Findings continued) animals. Upon submission of evidence of spay/ neuter, the deposit is refunded. Approximately 65- 70% of adopted animals are spayed.

F9: Total operating budget for Animal Services was $749,159. Income in the amount of $689,793 was received from licensing fees, the Veterinary Department at the University of California, Davis and from incorporated cities in Yolo County that Animal Services provided services to under contract. In addition, donations of pet food are received from many local businesses.

F10: Both the office and animal retention facilities are cramped and lacking space.

F11: Until recently, MDIT meetings were not held on a regular basis and when meetings were held, there was not full attendance by all the participating agencies.

F12: At the present time, a police detective is chair of the MDIC Steering Committee.

F13: As with most criminal cases, child sexual abuse cases are resolved prior to actual jury trial. Investigation of Child Sexual Abuse Cases (Findings continued)

F14: There is no computerized case management system to track child sexual abuse cases between participating county agencies.

F15: Families of alleged child sexual abuse cases are not always informed of the disposition of their case.

F16: The MDIT has developed The Multi-Disciplinary Interview-A Parent's Guide: How Can I Help My Child Through the MDI? brochure for parents and/or caretakers of sexually abused children. This guide informs them of the MDIC interview procedure and the investigative process in child sexual abuse cases and available support services.

F17: The Yolo County Victim-Witness Program is under the jurisdiction of the District Attorney's office. This program serves as a liaison between the District Attorney's office and the victim to assist people who have cases pending in the courts.

F18: The Sexual Assault and Domestic Violence Center is a privately funded agency that provides advocacy, counseling, and treatment for victims and families of sexual abuse.

F19: In certain circumstances, there is a lack of support services for families and victims of child sexual abuse between the time of reporting of the incident and determination of charges.

F20: The Yolo County Board of Supervisors has approved the formation of the Yolo County Child Molestation Task Force. The task force is charged with the following: a. Continue to examine the current procedures and protocols for handling alleged child molestation cases b. Review the experience of the Yolo County Multi-Disciplinary Interview Team c. Investigate Sacramento/UC Davis protocols and others as appropriate d. Make recommendations for change and Yolo County Board of Supervisors Minutes, February 16, 1999 possible grant funding sources2 1998-1999 Yolo County Grand Jury Final Report Investigation of Child Sexual Abuse Cases

Additional Recommendations 33

Not linked to specific findings.

R99-01: Plans should be made for expansion of the Animal Shelter, which should include an animal isolation area, more space for animal retention, and additional office space. [Finding 10] Respondents Yolo County Board of Supervisors Recommendation 99-01 and its corresponding finding Yolo County Sheriff's Department Recommendation 99-01 and its corresponding finding 1998-1999 Yolo County Grand Jury Final Report page \mathbf{2} Department of Social Services Turnover Rate

R99-02: Management should continue to address management style issues with their staff. [Findings 4, 5, and 6]

R99-03: The Department of Social Services and the County Administrator's Office should continue to lobby the Board of Supervisors for better pay and benefits for employees. [Finding 6a] Department of Social Services Turnover Rate

R99-04: Management should continue to look for ways to improve morale and include staff in decision making. [Finding 6]

R99-05: The Department of Social Services should continue looking into an attractive reinstatement program for employees who may wish to return to Yolo County. [Findings 2, 3, and 6d] Respondents Yolo County Department of Social Services All recommendations and their corresponding findings Yolo County Board of Supervisors Recommendations 99-03 and 99-05 and their corresponding findings Yolo County Chief Administrative Officer Recommendations 99-03 and 99-05 and their corresponding findings THIS IS INTENTIONALLY BLANK THE NEXT PAGE IS PAGE \mathcal{I} • . - . 1998-1999 Yolo County Grand Jury Final Report Investigation of Child Sexual Abuse Cases Background As part of its oversight duties, the Grand Jury elected to investigate the handling of child sexual abuse cases by the involved agencies in Yolo County. Particular emphasis in this study was placed on the degree in which these agencies follow the protocol of the countywide Multi-Disciplinary Interview Center for the investigation of child sexual abuse cases. Law enforcement representatives from the cities of Davis, West Sacramento, Winters, and Woodland, and the Sheriff's Department were interviewed, in addition to representatives from Child Protective Services, the Sexual Assault and Domestic Violence Center, the District Attorney's office, and private citizens. Findings 1. Early in 1996, the District Attorney's office established a countywide Multi-Disciplinary Interview Center (MDIC). A representative from each law enforcement jurisdiction in the county, including the District Attorney's office, Yolo County Department of Social Services, Yolo County Sheriff's Department, Woodland Police Department, West Sacramento Police Department, Davis Police Department, UC Davis Police Department, and Winters Police Department participated in the steering committee. The stated goals of the MDIC are1: 1 Multi-Disciplinary Interview Center Memorandum of Understanding, To reduce the number of interviews of a March 1996 child victim. To promote interagency cooperation ٠ between agencies for criminal and dependency investigations. To reduce potential trauma to child victims by using a child-friendly environment for forensic interviews. To maximize opportunities to obtain valid and reliable information from child victims through the use of forensically-sound, and developmentally appropriate interview techniques. Investigation of Child Sexual Abuse Cases (Findings continued) 2. The March 1996 MDIC Memorandum of Understanding also specifies: The Steering Committee of the MDIC, a. comprised of representatives from each of the participating agencies, serves as the administrative body. b. The District Attorney's office is responsible for scheduling and chairing the Steering Committee's meetings. The Multi-Disciplinary Interview Team c. (MDIT) is comprised of representatives from the District Attorney's office, law enforcement agencies and the Department of Social Services. These representatives are to participate in an approved MDIC training program for forensic interviewing of children and the coordination of investigative procedures.

R99-06: All law enforcement agencies should participate fully in the MDIT in order to maximize the effectiveness and proficiency of Yolo County's Multi- Disciplinary Interview Center. [Finding 5]

R99-07: All participating agencies should give high priority to providing MDIC approved training for child sexual abuse investigators. Prior to personnel changes, the replacement investigator should be trained in MDIC approved protocol and procedures. [Findings 5 and 9]

R99-08: As recommended by the Child Victim Witness Investigative Pilot Project, Research and Evaluation Final Report3, the MDIC should be staffed with a 3 California Attorney General's Office, Daniel E. Lundgren, Attorney General, permanent, trained, interview specialist. Grant Child Victim Witness Investigative Pilot funding should be sought for this position. [Findings Project, Research and Evaluation Final Report, June 1994 5 and 9]

R99-09: To provide management and continuity, the District Attorney's office should resume direction of the MDIT and the MDIC Steering Committee. [Findings 10, 11, and 12j

R99-10: A uniform countywide data collection system should be established to track child sexual abuse cases and to provide case management information and statistics. [Finding 14]

R99-11: All law enforcement agencies should keep families of child sexual abuse victims informed of the progress and disposition of their case. [Finding 15]

R99-12: The Multi-Disciplinary Interview-A Parent's Guide: How Can I Help My Child Through the MDI? brochure should be distributed to the concerned parent and/ or guardian upon initiation of the investigation and prior to the MDI process. [Finding 16]

R99-13: The Multi-Disciplinary Interview-A Parent's Guide: How Can I Help My Child Through the MDI? brochure should contain a contact phone number for further information. [Finding 16] Investigation of Child Sexual Abuse Cases (Recommendations continued)

R99-14: Parents of alleged child sexual abuse victims should be informed of support services available to them between the time the incident is reported and the time charges are determined. [Finding 19]

R99-15: The Yolo County Child Molestation Task Force should examine the MDIC Memorandum of Understanding and make recommendations for amendments where it deems necessary. [Finding 20]

R99-16: The resources of the Sexual Assault and Domestic Violence Center should be more fully utilized by the MDIC. [Findings 18 and 19] Police Departments: City of Davis Respondents City of West Sacramento City of Winters City of Woodland University of California, Davis All recommendations and their corresponding findings except Recommendation 99-15 Yolo County Sheriff's Department All recommendations and their corresponding findings except Recommendation 99-15 Yolo County District Attorney All recommendations and their corresponding findings except Recommendation 99-15 Yolo County Board of Supervisors Recommendations 99-06, 99-08, 99-09, 99-10, and 99-16 and their corresponding findings Yolo County Child Protective Services All recommendations and their corresponding findings except Recommendation 99-15 Sexual Assault and Domestic Violence Center Recommendations 99-10, 99-13, and 99-16 and their corresponding findings 1998-1999 Yolo County Grand Jury Final Report Investigation of Child Sexual Abuse Cases Yolo County Child Molestation Task Force Recommendations 99-08, 99-12, 99-13, 99-14, 99-15, and

R99-17: A plan needs to be developed addressing how the Laboratory will meet the growing and changing needs of the county. [Finding 6]

R99-18: Efforts to replace the autoclave should continue. [Finding 7]

R99-19: The Laboratory's computer and software should be consistent with the statewide Public Health Laboratory computer network. [Finding 8] 1998-1999 Yolo County Grand Jury Final Report Yolo County Public Health Laboratory _______________________________________ Respondents Yolo Courty Health Department, Director All recommendations and their corresponding findings Yolo County Public Health Laboratory All recommendations and their corresponding findings Yolo County Board of Supervisors All recommendations and their corresponding findings . . . . THIS IS INTENTIONALLY BLANK THE NEXT PAGE IS 1998-1999 Yolo County Grand Jury Final Report City of Davis Traffic Light

R99-20: Safety retirement is a benefit that could be pursued by the Correctional Officer's bargaining unit. [Finding 1]

R99-21: Any complaints of disrespect arising between employees should be handled through the established chain of command. [Finding 3] 1998-1999 Yolo County Grand Jury Final Report Correctional Officers Respondents Yolo County Board of Supervisors Recommendation 99-21 and its corresponding finding Yo lo\ County\ Sheriff's\ Department Recommendation 99-21 and its corresponding finding 1998-1999 Yolo County Grand Jury Final Report County Counsel's Role in Juvenile Dependency Representation Background In response to a citizen's complaint, the Grand Jury examined the role of the County Counsel representing both the child and the Department of Social Services in some juvenile proceedings. Findings 1. Dual representation in Yolo County occurs in Welfare and Institutions Code Section 300 cases. Iuveniles can come before the court in Section 300 cases when they are abused, neglected, or in danger of becoming so. 2. Juvenile 300 petitions are filed in the court after review and investigation by the Department of Social Services. Once the petition is filed, the attorney for County Counsel represents both the Department of Social Services and the minor in cases where the child is under the age of four, has no older siblings, and the court has not declared an actual conflict. This dual representation causes a perceived conflict of interest. 3. If the court finds there is an actual conflict of interest, separate counsel is appointed for the minor to serve as a conflict attorney. Conflict attorneys are appointed from a group of private attorneys. 4. The Public Defender's office represents the parents of the minor and therefore can not represent the minor. 5. In Sacramento County, County Counsel represents the Department of Social Services and conflict attorneys are appointed for all minors. Sacramento County pays for all the conflict attorneys and is reimbursed from the State through the State Trial Court Funding Measure. County Counsel's Role in Juvenile Dependency Representation (Findings continued) 6. Yolo County also receives reimbursements from the State Trial Court Funding Measure; however, the County may not be currently receiving all of the funding that is available through the Measure. Recommendations 99\text{-}22 \quad \text{Yolo County should provide separate counsel from} \\ the County Counsel for all minors in Welfare and Institutions Code Section 300 cases. [Finding 2] 99\hbox{-}23 \, Yolo County should evaluate the need to increase the number of conflict attorneys if there is an increased caseload. [Findings 3 and 6]

R99-24: Yolo County should appropriately budget all juvenile dependency cases so that the county will be reimbursed properly out of the State Trial Court Funding Measure. [Finding 6] Respondents Yolo County Superior Court All recommendations and their corresponding findings Yolo County Counsel All recommendations and their corresponding findings Yolo County Board of Supervisors All recommendations and their corresponding findings . . 1998-1999 Yolo County Grand Jury Final Report Knights Landing Cemetery Background A citizen's complaint was received regarding the Knights Landing Cemetery District. The Grand Jury investigated the policies and procedures of the District. 1. Cemetery plots cannot be reconciled with the Findings current plot maps. The District lacks a comprehensive and detailed plot map showing the accurate location of all interred human remains. 2. In the past, burials have been performed in plots belonging to parties other than the person being buried therein. 3. The District is hampered by lack of personnel and resources to reconcile plot maps with actual burial sites. 4. The March 7, 1997 Auditor-Controller's Report recommended that the Cemetery District contract with an engineering firm to update the cemetery map and the plot lot book to be consistent with the actual layout of the cemetery. 5. The Cemetery District contracted with an engineering firm to survey and update the cemetery map. 6. The most recent audit (October 1998) of the District's records by the County Auditor-Controller's office has ascertained that proper management practices are now in effect. Knights Landing Cemetery Recommendations 99\text{-}25 \quad \text{The Knights Landing Cemetery District should} \\ continue their efforts to update the cemetery map to correctly show the identity and location of all interred remains. [Findings 1 and 5] 99\text{-}26 The District Board should insure that the engineering firm completes the update to the cemetery map as soon as possible. [Finding 5]

R99-27: The Knights Landing Cemetery District should continue to follow the procedures outlined in the Auditor-Controller's Report of October 1998, in all future proceedings. [Finding 6] Respondents Knights Landing Cemetery Board All recommendations and their corresponding findings 1998-1999 Yolo County Grand Jury Final Report Rights of Victims of Crimes in Yolo County Background A citizen's complaint was received asking if victims of violent crimes have any rights such as notification of case progress. Representatives from local law enforcement agencies were interviewed to ascertain if any policies are available outlining the rights of victims of crimes and informing them of the procedures to seek help. Findings 1. There are services available to victims once the case has gone to prosecution. The District Attorney's office makes available information on the Victim- Witness Assistance Program. 2. If cases do not reach the District Attorney's office, there are no policies about keeping victims informed or disseminating information on counseling. 3. Each agency has its own ideas on how to respond to victims. In addition, the responses of individual officers may vary. 4. Transfers and shortages of personnel have hampered the flow of information to victims in the past. 5. Lack of funds, manpower, procedures, and training are often mentioned as problem areas. 6. Grants, V.I.P. (Volunteers in Police) programs, and Police Chaplaincy programs have been used in some agencies. These programs have helped to reduce the workload of officers by providing telephone answering, records updating, and follow-up calls to victims of crimes. Rights of Victims of Crimes in Yolo County Recommendations

R99-28: A standard procedure should be developed by all law enforcement agencies in the County to inform victims of case progress and provide information on the Victim-Witness Assistance Program. A guidebook with sources of assistance should be given to the victims whether the crime is prosecuted or not. [Findings 1, 2, and 3]

R99-29: Officers should attend victim-sensitivity training to better understand the needs of victims of violent crimes and to help the victims cope with the situation. [Finding 5]

R99-30: Law enforcement agencies should consider using grants and volunteer citizens groups. [Findings 4, 5, and 6] Respondents Police Departments: City of Davis City of West Sacramento City of Winters City of Woodland All recommendations and their corresponding findings Yolo County Sheriff's Department All recommendations and their corresponding findings . 1998-1999 Yolo County Grand Jury Final Report . Yolo County Flooding Problems Background A citizen's complaint was received asking if the county could help in any way to lower the water levels during flood periods and repair damaged roads when the waters recede. Findings 1. There is no city or county entity responsible for flood prevention and control in Yolo County; however, city or county departments may respond to problems caused by flooding, depending upon the nature of the problem. 2. There is no central place for citizens to inquire about flood issues. 3. Some areas of the county flood nearly every year. Without major changes, these areas will continue to flood and without proper mitigation efforts, the number of residents impacted by the flooding will grow as development continues in flood plain areas. 4. The Yolo County Flood Control and Water Conservation District is not responsible for flood control. The name of the District is misleading. The purpose of the District is to sell water. 5. The Yolo County Flood Control and Water Conservation District does not receive any money for flood control purposes. Some of the flooding occurs around privately owned sloughs, ditches, and creeks. In some areas, private landowners are protecting their property by diverting sloughs, which is legal with proper permits. 7. Building of berms by property owners is acceptable in Yolo County with the appropriate permits. Yolo County Flooding Problems (Findings continued) 8. The Yolo County Planning and Public Works Department is responsible for the maintenance of county roads and ditches that are next to county roads. This includes road or bridge damage caused by flooding. 9. The annual budget for new roads and the maintenance of existing roads and bridges in Yolo County is approximately $6 million. 10. The County does not have adequate funds for properly maintaining all of the roads that flood. Due to the lack of funding, there is a backlog of work on the existing 800 miles of our county road system. This backlog is estimated to be as high as 15-20 years and $100 million behind in maintenance. 11. The Yolo County Planning and Public Works Department's flood control related activities includes cleaning ditches, replacing culverts, and maintaining bridges. The main goal is to keep water flowing. 12. There are currently no discretionary county funds designated for preventative flood control efforts in Yolo County. 13. Due to limited resources, flood damage repairs are prioritized by the number of people who will benefit and the cost of the project. 14. There is cooperative use of equipment during emergency situations between the Yolo County Flood Control and Water Conservation District and the Yolo County Planning and Public Works Department. 15. Impact fees are collected by the county on all new commercial and residential developments. These fees are intended to cover the cost of increased county services. However, none of the impact fees collected are designated for flood control or county road maintenance. 1998-1999 Yolo County Grand Jury Final Report Yolo County Flooding Problems Recommendations

R99-31: Although flood control is not a function of city, county, or local government in Yolo County the dissemination of information regarding flooding can be centralized and coordinated locally. Citizens should be able to contact one agency that can assist with flood-related questions and problems. [Findings 1 and 2]

R99-32: The cities and county should continue to mitigate and/or guide development away from high flood- risk areas. [Finding 3]

R99-33: The Yolo County Flood Control and Water Conservation District should consider changing their name so that there is no confusion about their responsibility for flood control. [Finding 4]

R99-34: The County should aggressively solicit grants and other funding from federal, state, and local sources to help finance preventative flood control projects. [Finding 12] Respondents Yolo County Flood Control and Water Conservation District Recommendation 99-33 and its corresponding finding; Finding 5 Yolo County Board of Supervisors All recommendations and their corresponding findings Yolo County Planning and Public Works Department Recommendations 99-31, 99-32, and 99-34 and their corresponding findings (a,b) = (a,b) THIS IS INTENTIONALLY BLANK THE NEXT PAGE IS 1998-1999 Yolo County Grand Jury Final Report 32 page Follow-up Reports The following five reports are follow-up reviews conducted on last year's studies. Unlike a full investigation, a follow-up review is a status check on the recommendations made by the previous Grand Jury. . . this is intentionally blank . THE NEXT PAGE IS . 1998-1999 Yolo County Grand Jury Final Report Department of Social Services Special Investigative Unit Follow-up report The Grand Jury conducted a follow-up review of the Department of Social Services Special Investigative Unit. The philosophical and personal differences remain a problem between the Welfare Fraud Investigators in the District Attorney's office and the Early Welfare Fraud Investigators and staff of the Department of Social Services. Because of the differences between the offices, the free flow of information and ideas continue to be hindered. The Department of Social Services and the District Attorney's office should act to resolve these differences before the situation gets worse. THIS IS INTENTIONALLY BLANK THE NEXT PAGE IS

R99-35: Filling the position of Chief of Police should be made a priority in order to maintain the quality of leadership. Respondents City of Woodland City Council All recommendations and their corresponding findings THIS IS INTENTIONALLY BLANK THE NEXT PAGE IS 1998-1999 Yolo County Grand Jury Final Report Yolo County Housing Authority Follow-up report The Grand Jury conducted a follow-up review of the Yolo County Housing Authority. Many of the recommendations, including in-service training for new commissioners, special needs accommodations for all commissioners and an update on the Lighthouse Marina project for the residents, have been implemented. Since last year's investigation, a new Executive Director has been appointed. . . THIS IS INTENTIONALLY BLANK THE NEXT PAGE IS . . . 1998-1999 Yolo County Grand Jury Final Report Fouts Springs Ranch Tour Several members of the Grand Jury toured the Fouts Springs Ranch which is located in the Mendocino National Forest about eight miles outside of Stonyford. Yolo County has two to fourteen juvenile wards assigned to this remote ranch at any given time throughout the year. Yolo County contracts with Solano and Colusa counties who operate this facility. Yolo County wards participate in their Snow Mountain Academy program, which is one of three different programs offered at this facility. The boot camp program is 3-4 months in duration. Military dress code applies to both the Correctional Officers and the boys. The boys are placed under a strict regimen emphasizing drill and ceremony, proper hygiene, social skills, and physical education. While in this program, the boys are also required to attend an on-premise school designed to encourage effective study techniques. Because of this system, most students show improvement. The school also provides vocational training with a computer lab, metal and wood shop, welding classes, and career guidance testing and counseling. The physical regimen includes hands-on team leadership courses on a specially designed area of the ranch resembling military confidence courses. These courses are meant to instill pride, self-esteem, respect, and a sense of responsibility. THIS IS INTENTIONALLY BLANK THE NEXT PAGE IS 1998-1999 Yolo County Grand Jury Final Report Monroe Dentention Center and the Leinberger Center Tour The Grand Jury toured the Monroe Detention Center and the Leinberger Center in October 1998 as part of its annual oversight inspection of county jails. The Monroe Detention Center is the main jail for Yolo County. It is equipped to house virtually any classification of inmate: maximum, medium, protective custody; medical and special housing; male and female. The Leinberger Center, located adjacent to the Monroe Detention Center, is a minimum security working facility that houses inmates in a dormitory style. The inmates housed in this area work on and off the Yolo County Detention Facility grounds. Leinberger also uses house arrest technology. Together the facilities have a capacity for 450 inmates. Any time there are more inmates than bed space inmates can be released. The County also has the option of sending them to a Yuba County facility for a fee if needed. There are educational, counseling, and training programs for inmates that are provided by private volunteers and the Inmate Welfare Fund. The Inmate Welfare Fund is generated by the inmates themselves when they purchase candy, sundries, or use the telephone. The profits from the inmate fund are used for maintenance, supplies, and equipment that directly benefit the inmates. Both facilities are clean and well lit with carpeting used in some areas to keep the noise level down. Designed for optimum use of fresh air and sunlight, Leinberger, like Monroe, uses muted colors. The design of the facility benefits not only inmates but also staff who work twelve-hour shifts. Overall, the facilities appear to provide a clean, safe environment for staff and inmates. THIS IS INTENTIONALLY BLANK THE NEXT PAGE IS

R99-36: The Board of Supervisors should investigate the funding, building, and adequate staffing of a new facility to house juveniles. Yolo County Juvenile Hall (Recommendations continued)

R99-37: The 1999-2000 Grand Jury should fully investigate the Yolo County Juvenile Hall. . Respondents Yolo County Board of Supervisors All recommendations and their corresponding findings 1998-1999 Yolo County Grand Jury Final Report Yolo County Morgue Tour The Grand Jury toured the Yolo County Morgue in November 1998. The morgue, which is adjacent to the Sheriff's Department, was relocated from Yolo County General Hospital in July 1997. During the planning stages of the buildings, staff provided suggestions to make the workspace more functional. The facilities appear clean and well equipped. The Sheriff-Coroner's staff consists of four Deputy Coroners, two student interns, and five contracted physicians. Not all staff are full-time employees. On average, the Coroner's office handles 550 investigations a year.

* 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.