You may contact the Civil Grand Jury at:
P.O. Box 542, Santa Cruz, CA 95061
Room 318, 701 Ocean Street, Santa Cruz
Telephone 831-454-2099
E-mail sup723@co.santa-cruz.ca.us
TABLE OF CONTENTS
Instructions for Respondents............................................................................................ 1
Letter from His Honor, Judge Yonts,
Superior Court of Santa Cruz County............................................................................ 3
Letter from Civil Grand Jury Foreperson, Thomas Sprague......................................... 4
Grand Jury Roster 1998-1999.......................................................................................... 5
Grand Jury Committees................................................................................................. 6
Status of Citizen Complaints Received.......................................................................... 7
Special Charge................................................................................................................. 8
Status of Recommendations of the Grand Jury Special Report
on "Youth and Substance Abuse"................................................................................. 9
Youth Coalition Response.............................................................................................14
Committee Reports
Cities and Other County Agency Reports:
The City of Santa Cruz...................................................................................................16
Budget.......................................................................................................................... 18
Parks and Recreation.................................................................................................... 20
Redevelopment............................................................................................................ 22
Social Services............................................................................................................ 26
Water Department....................................................................................................... 28
Open Meeting Law...................................................................................................... 31
Criminal Justice:
Blaine Street Women's Facility.................................................................................... 33
Child Death Review Team.......................................................................................... 36
Domestic Violence Death Review Team..................................................................... 37
Main Jail - Water Street Facility................................................................................. 38
Medium Security Detention Facility........................................................................... 41
Minimum Security Detention Facility......................................................................... 43
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Health & Human Services:
Above the Line........................................................................................................................ 45
Calworks - Human Resources Agency..................................................................................... 47
Homeless Shelter..................................................................................................................... 49
Schools and Libraries:
Live Oak School District........................................................................................................ 52
Santa Cruz City Schools District............................................................................................. 54
Scotts Valley Middle School................................................................................................... 57
Special Districts:
Santa Cruz Metropolitan Transit District............................................................................... 59
Appendix
A - Letter to the Board of Supervisors in Support for
Juvenile Hall Expansion Grant Application, January 4, 1999...................................................61
B - Youth and Substance Abuse Report, January 20, 1999.................................................... 64
C- Youth Coalition Recommendations to Grand Jury........................................................... 77
D - Santa Cruz County Youth Survey, 1998......................................................................... 79
E - County Office of Education Call For Action.................................................................... 91
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All Respondents Please Note:
Effective January 1, 1997, there is an extensive change in the law affecting respondents and responses to Grand Jury findings and recommendations. The new legal requirements are contained in Penal Code Section 933.05. The full text of the law is printed herewith on a separate page in this report. Each respondent should become familiar with these new legal requirements and, if in doubt, should consult legal counsel prior to responding.
For the assistance of all respondents, Section 933.05 of the Penal Code is summarized as follows:
How to Respond to Filings
The responding person or entity must respond in one of two (2) ways: (1) That you agree with the finding
(2) That you disagree wholly or partially with the finding, in which case the response shall specify the portion of the finding that is disputed and shall include an explanation of the reasons for the disagreement.
How to Report Action in Response to Recommendation
Recommendations by the Grand Jury require action. The responding person or entity must report action on all recommendations in one of four (4) ways:
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Budgetary or Personnel Recommendations
If either a finding or recommendation deals with budgetary or personnel matters of a county
department headed by an elected officer, both the elected officer and the Board of Supervisors
shall respond if the Grand Jury so requests. While the Board of Supervisors' response is
somewhat limited, the response by the department head must address all aspects of the findings or
recommendations.
Advance Release of Grand Jury Report
Disclosure Prohibited Prior to Public Release
Two (2) working days prior to release of the Final Report, the Grand Jury will provide a copy of
the portion of the report to all affected agencies or persons. No officer, agency, department, or
governing body of a public agency shall disclose the contents of the report prior to its public
release.
Time to Respond
Where and to Whom to Respond
Section 933(c), Penal Code, depending on the type of respondent, provides for two (2) different
response times and to whom you must respond:
The Presiding Judge of the Santa Cruz County Court is, at this time:
The Honorable Heather D. Morse
Presiding Judge
Santa Cruz County Superior Court
701 Ocean Street
Santa Cruz, CA 95060
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Chambers of
The Superior Court
701 Ocean Street
Santa Cruz, California, 95060
May 19, 1999
To the Citizens of the County of Santa Cruz:
Enclosed is the Grand Jury Report of the County of Santa Cruz for 1998-1999. Previously the Grand Jury has filed a separate interim report in response to my special charge relating to the problem of Drugs and Our Youth. Both reports were rendered in accordance with the highest standards of excellence. The interim report relating to Drugs and Our Youth has already received many accolades from the media and from public officials and private citizens who are concerned with these issues. On behalf of the Judges of Santa Cruz County, I salute our present Grand Jury for all of their fine efforts during the last year.
The Grand Jury has also provided for continuity with succeeding Grand Juries not only by the detailed comments and recommendations appearing in this report, but also by the unprecedented carryover of eight members of the 1998-1999 Grand Jury to 1999-2000. This will ensure that the recommendations of this year's reports will be carried out.
Once again, we thank the Grand Jury for their much appreciated efforts on behalf of the Citizens
of Santa Cruz County. A special thanks also is given to Foreperson Thomas L. Sprague for his
inspiration and achievement. So far as is known, he is the longest serving Grand Juror in the
history of Santa Cruz County and the State of California. Mr. Sprague has served the Grand Jury
as Foreperson Protem in 1987-1988, and Foreperson of the Grand Juries of 1988-1989,
1997-1998 and 1998-1999. He is to be applauded for his exemplary display of public service.
Respectfully,
Robert B. Yonts, Jr.
Judge of the Superior Court
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June 3, 1999
Honorable Robert B. Yonts, Jr.
Judge of the Superior Court
701 Ocean Street
Santa Cruz, CA 95060
Dear Judge Yonts:
On behalf of the 1998-1999 Grand Jury, I present our final report. It is the combined effort of 19
very dedicated citizens of Santa Cruz County.
The 1998-99 Civil Grand Jury was sworn in with a special charge from your honor to consult with
and inquire with members of law enforcement, our criminal justice system, our health officials, our
mental health officials, our educators and interested persons at large in the community, or
otherwise, to assess any problem of drugs and our youth and to recommend solutions for the
intervention, prevention and treatment of this heinous problem within our community.
We issued a special report in February 1999 on the special charge which was well received. Since
the report was released, we have presented this report in person before school boards, city
councils and public bodies. We have gone on the record recommending county approval for State
funding for the Juvenile Hall construction program.
This year's Grand Jury has eight people that want to hold over for the 1999-2000 Grand Jury. I
feel this year's Grand Jury was extremely dedicated to the citizens of Santa Cruz County. I feel,
with eight holdovers, it will be a great asset to the incoming 1999-2000 Grand Jury.
The Grand Jury would like to thank the many county employees who took extra time to answer
our questions and explain the operation of their respective departments. Santa Cruz County is
very fortunate to have so many dedicated employees.
Judge Yonts, on behalf of the Grand Jury, thank you for your help and support.
Respectfully submitted,
Thomas L. Sprague
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SANTA CRUZ COUNTY
CIVIL GRAND JURY
1998-1999 ROSTER
C. STONEY BROOK
BILL FINCH
JOHN HOPE
STUART HOWELL
CURT JEWELL
ELAINE KINCHEN
JUDY MYERS
PAM NELSON
HELEN PAUL
HOLLY PERRUCCI
AL RICHARD
DOMINICK SACCULLO
RICH SHAFFER
KEN SMITH
TOM SPRAGUE
COLLEEN TIFFIN
MIKE VASSER
JAMES WHITTOME
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SANTA CRUZ COUNTY
CIVIL GRAND JURY COMMITTEES
CITIES AND OTHER COUNTY AGENCIES
CONTINUITY
CRIMINAL JUSTICE
HEALTH AND HUMAN SERVICES
SCHOOLS AND LIBRARIES
SPECIAL DISTRICTS
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CITIZEN COMPLAINT STATUS
Date Received No. Subject Status
5/10/98 1 Municipal Wharf Closed
5/29/98 2 Capitola Police Closed
9/10/98 3 Personnel Dept. Withdrawn
9/28/98 4 Parks & Rec. Closed
10/27/98 5 Political Practice Closed
12/07/98 6 County Planning Closed
12/22/98 7 Sheriff's Dept. Closed
10/19/98 8 False Imprisonment Closed
1/19/99 9 District Attorney Closed
1/27/99 10 Sheriff's Dept. Closed
10/27/98 11 Sheriff's Dept. Open
2/10/99 12 County Planning Withdrawn
2/25/99 13 Child Abuse/Custody Closed
3/19/99 14 Sheriff's Dept. Closed
4/06/99 15 Reg. Transportation Bd. Open
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DATE: July 15, 1998
TO: TOM SPRAGUE, Grand Jury Foreman
FROM: Judge Robert B. Yonts, Jr.
RE: Special Charge
_____________________________________________________________________________
I have a special charge that has been worked on and suggested, it's a special problem in our
community which you're all aware of, that I'm asking you to look into as part of your report for
the coming year of 98/99, and that concerns this special charge, and it concerns drugs and our
youth in this community. I will direct you to hold hearings either in your secret status, or public
as you, in your discretion as foreman, determines.
I request that you consult with and inquire of members of law enforcement, our criminal justice
system, our health officials, our mental health officials, our educators and our interested persons
at large in the community, or otherwise, to assess any problem of drugs and our youth and to
recommend solutions for the intervention, prevention and treatment of this heinous problem
within our community.
This is a special additional charge and instruction to you to accomplish during the next year. I
know that you will be diplomatic. There are many organizations that are presumably in charge of
this area, but I think that your ability to synthesize and inquire will educate the public and perhaps
provide solutions or some solutions for intervention and prevention and treatment of drug
problems and our youth.
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STATUS OF RECOMMENDATIONS
PREVENTION:
1) The Together For Youth (TFY) drug use prevention plan, as proposed to and accepted by the
Board of Supervisors, serve as the model for all County drug prevention programs.
2) The Board of Supervisors, and the city councils of Capitola, Santa Cruz, Scotts Valley and
Watsonville direct the appropriate department heads to work with Youth Services and the County
Office of Education to secure funds to continue and to expand the alternative drug free schools in
the county.
The Santa Cruz County Office of Education (COE) has developed a thirteen-point plan to reduce
use of Heroin and other emerging drugs by the youth of Santa Cruz County.
See Appendix E.
3) The County Office of Education and School District Boards of Santa Cruz County establish
policies that require Safe School plans to include a comprehensive drug education prevention
program for all schools and parent seminars with consideration given to the Parent Education
Series designed by Pajaro Valley Prevention and Student Assistance, Inc. as a model.
See Appendix E.
4) The County Office of Education and Santa Cruz city schools boards establish, in conjunction
with the county District Attorney, truancy mediation to consider cases where there has been
failure to comply with conditions of the School Attendance and Review Board directives and
mandates.
See Appendix E.
5) Truancy abatement programs county-wide.
-Representatives from COE, Pajaro Valley Unified School District (PVUSD), Santa Cruz City
School District, the County Sheriffs Department and the Watsonville and Santa Cruz Police
Departments met in March (School Attendance Awareness Month) to initiate a county wide
truancy program. It was agreed that minors on the street during school hours will be cited
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on a county wide basis unless they have a valid reason for being away from school. This county
wide effort was in response to the recommendation related to expanding truancy abatement
efforts in all school districts in the county.
6) Vocational education programs be expanded or developed to provide a continuum of courses,
both vocational and academic, to allow high school students to pursue their career interests.
See Appendix E.
7) The County Office of Education and school district boards of Santa Cruz County make the
expansion of the counseling and nursing functions in middle and high schools a high priority.
See Appendix E.
The first, entitled 'Drugs, Alcohol and Teenagers', has already been released and is being distributed to schools, service agencies, parent organizations, church and neighborhood groups throughout the county.
The second, 'Heroin Use Among Young People', is currently being edited and will be reviewed by the TFY.
9) The county Human Resources Agency/Career Works continue to offer and secure funding to
expand their Independent Living Skills program for youth from foster care, group homes and
Juvenile Hall.
See Appendix E.
10) TFY Survey Results of 1998 Youth Survey published and released 2/99.
The 1998 youth survey represents a random sampling of 8th, 9th, and 11th grade students from
throughout the county. Santa Cruz County is striving to attain the lowest youth drug use
state-wide and nationally. The trend in the use of some substances is down. The increased use
of heroin remains a major concern.
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See Appendix D for a Youth Survey summary and charts.
ENFORCEMENT:
1) The community and its elected officials must express their support for aggressive law
enforcement.
2) Parents/guardians be required to make restitution for the crimes committed by juveniles. The
juveniles themselves must face the consequences of their actions, in particular by participating in
the restitution.
The Probation Department and Juvenile Court provide parents/guardians with written and oral
notice of their liability for victims' losses. The Court orders restitution whenever a victim can be
identified.
3) All county law enforcement agencies conduct a thorough analysis of local arrest, prosecution,
and sentencing statistics, and the relevant policies and practices.
4) All juveniles arrested while intoxicated be tested for the presence of illegal substances and
identified, including fingerprinting and photos, prior to release. Refusal to be tested lead to
consequences similar to those which apply to suspected drunk drivers.
The Probation Department is researching this issue.
5) A central registry of youths who have been involved in drug-related law enforcement actions,
through fingerprints and photos, be maintained to enhance the ability of the relevant authorities to
recognize serious and repeat offenders.
6) Each local law enforcement agency participate in a collaborative youthful offender diversion
program.
Neighborhood Accountability Boards (NAB) are being formed in several of our communities for
youthful offenders who commit misdemeanor crimes. A contract is agreed upon between the
accused youth and the NAB. The youth will agree to fulfill certain conditions in lieu of other
action by the Criminal Justice System.
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The Probation Department has an officer stationed at the Santa Cruz Police Department who
investigates all referrals on juveniles and diverts appropriate youths from Juvenile Court, while
providing supervision and referral to agencies and programs that enhance the youth's ability to
remain out of the criminal justice system.
A grant through the Office of Criminal Justice Planning (OCJP) has been applied for which
would fund a similar program in collaboration with the Watsonville Police Department and
Pajaro Valley Prevention and Student Assistance (PVPSA).
7) Reduce unstructured home supervision and overcrowding at Juvenile Hall
An eight-member task force has since been convened to find ways to reduce the growing
population of Juvenile Hall. The Board of Supervisors approved county funding and authorized
a bid for the Board of Corrections (BOC) grant funding. This funding was subsequently denied
by the BOC.
8) The current juvenile drug court be expanded so that youth substance abusers throughout the
county can benefit from the structure and engagement which it now provides to only a small
number of juveniles.
The Juvenile Court Judge, Probation Department and other agencies involved with Juvenile
Court are investigating the expansion of this program to north county and enlarging the
program in south county.
9) The county make a higher priority of budget provisions to ensure that recommendations for
probation placements and sentencing decisions of the courts are not unduly influenced by
budgetary constraints.
TREATMENT:
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2) The Board of Supervisors fund treatment services, including a detox facility for drug-involved
juveniles being held at Juvenile Hall.
4) Treatment programs for juveniles be made available under the management of the public
agencies, supported by fees paid by the juveniles receiving treatment or by their parents/guardians.
5) The Board of Supervisors maintain funding beyond the current budget year for the
recommendations of the County High-Risk Drug Task Force.
COOPERATION AND COORDINATION:
1) County-wide standards be established in the fight against youth substance abuse. These
standards must reflect one attitude and one message.
2) The Board of Supervisors and the city councils of Capitola, Santa Cruz, Scotts Valley and Watsonville appropriate funds to support the implementation of the Comprehensive Substance Abuse Prevention Plan proposed in April 1997 by TFY.
3) The TFY plan be used to demonstrate and publicize county unity.
4) Pajaro Valley Prevention and Student Assistance currently offers anti-drug abuse programs for
students, parents and Pajaro Valley Unified School District staff. These programs be reviewed by
school districts, community organizations and the Board of Supervisors for possible use as a
model for programs throughout the county.
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YOUTH COALITION RESPONSE TO THE GRAND JURY SPECIAL REPORT ON
"YOUTH AND SUBSTANCE ABUSE"
After the release of the Grand Jury report on Youth and Substance Abuse, one of our community youth leaders wrote a letter to the Santa Cruz County Sentinel. The letter cited a concern that the Grand Jury had not adequately interviewed members of the youth community on how to solve youth drug problems. However, the Grand Jury had talked with youth including those in the alternative schools. A meeting was arranged with the author of the letter and Youth Coalition Santa Cruz to address their concerns.
OBJECTIVE:
To discuss issues with representatives of the youth in our community, and to accept their written response to the Grand Jury Report.
BACKGROUND:
Youth Coalition Santa Cruz (YCSC) is a collaboration of YouthSERVE/Volunteer Center, City
of Santa Cruz, Friday Night Live, Resource Center for Nonviolence, and the Boys and Girls Club.
Youth Experiencing Success (YES) provides a drug-free alternative education for students in
recovery.
YCSC is a youth-run group that encourages empowerment and support of all young people(ages
12 through 20). Adult allies work along with the youth. YCSC provides an outlet for youth ideas,
and concerns. Their vision is to manifest these ideas into social changes within our community.
FINDINGS:
Although the Grand Jury may not agree with everything that is included in the response, it is
important for the community to read their response. The Grand Jury would like to thank the
YCSC and YES School focus group participants for their consideration of our report. Their
comments and insights are greatly appreciated.
See Appendix C for the Youth Coalition Recommendations to the Grand Jury.
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RECOMMENDATIONS:
Actively solicit more youth input for community problems that involve youth.
Include the representation of a youth spokesperson or advocate on any "youth-focused task
force" formed within the county.
RESPONSE REQUIRED: Yes
Juvenile Justice Commission: 60 days
Board of Supervisors: 60 days
Capitola City Council: 60 days
Santa Cruz City Council: 60 days
Scotts Valley City Council: 60 days
Watsonville City Council: 60 days
School Boards: 60 days
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THE CITY OF SANTA CRUZ
The Santa Cruz County Civil Grand Jury is charged with the task of reviewing the policies and
procedures of city and county government within its jurisdiction. The City of Santa Cruz was
selected for review during the 1998/99 session.
OBJECTIVE:
To obtain an overview of the City of Santa Cruz operations, finances, policies, major projects,
programs, problems and related issues along with insight into potential solutions to problems.
BACKGROUND:
The City Manager, the Mayor and selected members of the City Council were interviewed along
with Directors of the Finance Department, the Water Department, the Redevelopment Agency
and the Parks and Recreation Department. Documents such as the General Plan, the 1998/99
Budget, other reports and statistical data were reviewed for specific detailed information.
FINDINGS:
Santa Cruz is a full service city of approximately 54,800 people. It is the largest city in Santa Cruz
County and the seat of county government.
Population growth is projected at an annual rate of 1.22%, which will result in a population of
approximately 60,000 people by 2005. The biggest single factor in the City's population growth is
the expansion of the University of California's Santa Cruz student body from approximately
11,000 in 1999 to 15,000 in 2005.
The budget for 1998/99 is approximately $110M of which about $39M is derived from the
general fund.
The number one industry is tourism. Other industries include agriculture, manufacturing, food
processing and high-tech hardware and software companies.
Major sources of revenue include sales and use taxes, property taxes, utility taxes, collections,
rents, property usage fees, service fees, and miscellaneous grants in support of city service
programs and projects.
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The city's economy has been healthy over the last few years and is expected to remain stable for the foreseeable future. Whether or not
the economy will remain strong enough to support the city's needs over the next three to five
years remains to be seen.
The City Council and City Manager participated in the Grand Jury study of Youth and Substance
Abuse, as did members of the Parks and Recreation, Police Department, and representatives of
city schools and libraries. In 1998, the former mayor established a committee to review youth
drug issues. In 1999, the new administration is continuing these efforts under the direction of the
Chief of Police and the Recreation Superintendent. The mayor or a representative City Council
member will host committee meetings.
In addition to Youth and Drug issues, the Grand Jury reviewed the following:
(Scotts Valley and Soquel Creek Water Districts were also reviewed and are included in a combined report)
The five reports follow and include findings and recommendations.
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CITY OF SANTA CRUZ - BUDGET
OBJECTIVE:
Review Santa Cruz City budget for 1998/99, future budget projections, anticipated changes, exposures and related issues.
BACKGROUND:
Budget is critical to city operations. Fact gathering interviews were conducted in July and August of 1998 with the City Manager, acting Director of Finance, the then current Mayor and selected City Council members. Issues were reviewed with the new Mayor and the City Manager in March of 1999.
FINDINGS:
Expenditures for 1998/99 total approximately $110M (General Fund ~ $39M). Anticipated potential deficit is $.5M due to projected final cost of solving Y2K problems and cost of new telephone systems.
The City's Comprehensive Annual Financial Report continually receives an "excellent" rating from the Government Finance Officers Association.
The City also has an excellent audit record over the last three years conducted by Arthur Anderson Consulting.
Financial operations seem to be well managed, and the Grand Jury commends the City of Santa Cruz for continually receiving excellent state financial reviews and consultants audits.
A major budget consideration for the near term is the need to upgrade all computer systems (mainframes and PCs). This is impossible to do in one year and will have to be accomplished as the budget permits over two or more fiscal years.
The single most significant near-term challenge for the City is to solve the problem of a potential serious water shortage. A sustained drought (three years or more) could deplete water system reserves. The only current solution would require major usage restrictions. The cost of a new reservoir or dam is beyond budget limits.
In addition to the above items, the Grand Jury's main budgetary concern, at this time, is the
possibility of revenue shortfalls within three to five years. It appears that new revenue sources
will be needed to meet projected expense increases. Without new sources of revenue, the City
could exhaust surplus and emergency
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funds within five years. Propositions 13, 62, and 218 restrict tax increases. New taxes, which are
not popular, require voter approval.
RECOMMENDATIONS:
The City Council set a priority to determine new sources of revenue in order to avert a future
financial crisis.
Continue examination and evaluation of current programs to determine areas where cutting costs
may be feasible.
RESPONSE REQUIRED: Yes
Santa Cruz City Council: 60 days
Santa Cruz City Manager: 90 days
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CITY OF SANTA CRUZ PARKS AND RECREATION
OBJECTIVE:
Assess progress of Santa Cruz City Parks and Recreation Department programs and the new Measure G Park Project.
BACKGROUND:
The Recreation Superintendent was interviewed in August 1998 in conjunction with the Youth
and Substance Abuse study. A follow-up interview in November included the Youth Program
Director. Youth programs were the main focus. A city teen center, a proposed skateboard park,
Parks and Recreation managed youth job training program, Measure G, and the Santa Cruz Youth
Coalition were the major topics discussed.
Measure G was passed by voters and includes funds for the development of a new park on the former railroad depot site.
FINDINGS:
The teen center is a most challenging project for Parks and Recreation. Two major obstacles will be difficult to overcome: a suitable location, i.e., central and easy to get to, and adequate funding. A Federal Housing and Development block grant of $228,000 is available for site purchase and development only. The funds cannot be used for rental or lease. Additional funding is being pursued from United Way and other potential sources. In the 1999/00 budget hearings, the Santa Cruz City Council will consider a $30,000 Community Development block grant to enable Parks and Recreation to engage engineers and planners when a site is found.
The skateboard park project is progressing with "fresh energy" by Parks and Recreation planners. An Environmental Impact Report has been completed and is being reviewed as to the effect of a skateboard park at Neary Lagoon. A consulting biologist has already conducted a study and determined that there are no problems as far as wildlife is concerned. Also, an acoustic study was conducted on three surrounding streets, and findings must be reviewed prior to approval. If the Neary Lagoon site is determined to be an acceptable location, construction of the skateboard park could begin as early as October 1999.
A committee has been formed to review the former railroad depot site as a location for a new
park. The Recreation Superintendent has stated "there will be a park at the depot site because of
Measure G." The measure, approved by voters in November of 1998 includes funding for the
new park.
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Another important Parks and Recreation-managed program is the Student Training and Education
Partnership program. S.T.E.P. employs youth, ages 14 to 19, from limited income families in a job
readiness training program, including one-on-one adult mentoring, practical life skills workshops,
and an ongoing education component. During the school year, 12 youths participate for 10 hours
a week, and 24 youth work up to 24 hours per week in the more intensive eight-week summer
program. S.T.E.P. appears to be an excellent program for only a limited number of qualified
youth.
Another youth program is the Santa Cruz Youth Coalition currently made up of approximately 55
young adult leaders (ages 12 to 20) and adult mentors. They conduct leadership workshops at the
Louden Nelson Center, media and arts workshops, and recreational events. They also hold youth
retreats and participate in the Teen Fair each spring. They have responded to the Grand Jury
Special Report on Youth and Substance Abuse and are currently working to be recognized as a
source of information for City and County youth programs.
RECOMMENDATIONS:
The City of Santa Cruz acknowledge the need for a Teen Center, make it a priority, and do
everything possible to make it happen.
A backup site should be found to assure the skateboard park will be constructed in the event the
Neary Lagoon site does not work out.
Expand the S.T.E.P. program or devise other similar training for the many other youth who need
this opportunity.
Appropriate City and County agencies contact Youth Coalition leaders to discuss the possibility
of youth advisory boards.
RESPONSE REQUIRED: Yes
Santa Cruz City Council: 60 days
Santa Cruz Parks and Recreation: 60 days
Santa Cruz County Supervisors: 60 days
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CITY OF SANTA CRUZ - REDEVELOPMENT
OBJECTIVE:
Review Santa Cruz City Redevelopment Agency role and responsibilities and discuss major
projects plans and status.
BACKGROUND:
The City has several large projects planned or in progress including the beach area, downtown
area, river levee, Mission Street, Terrace Point and a new police station.
City voters have also approved a bond measure (Measure G) that includes funding to refurbish
fire stations, build a new Fire Department Administration Building, and build a new park on the
former railroad depot site.
Although the focus of this review is primarily the Redevelopment Agency, the aforementioned
projects were reviewed in meetings with the Mayor, the City Manager and the Redevelopment
Director.
FINDINGS:
A Redevelopment Agency has existed in the City of Santa Cruz for about 40 years. The current
full-time Agency was established by the City Council in 1990 to oversee redevelopment of the
downtown area after the 1989 Loma Prieta earthquake. A full time Director was appointed at that
time and the Redevelopment Board was disbanded. The City Council has since acted as the
Board. Hence, the Planning Commission makes their recommendations to the City Council and
the Redevelopment Agency manages assigned projects and associated funds.
The department consists of five people, a Director and a staff of four - currently one staff member short. The Agency's role also includes the management of city-owned properties, i.e., wharf structures, kiosks, parking facilities and other city buildings. They perform appraisals for the city, including acquisitions and relocations.
The Agency is self-supported from collections and management fees.
Redevelopment projects reviewed include the following:
The Beach Area/South of Laurel:
In October 1998, the City Council approved a Redevelopment Plan which included low cost
housing in the Beach Flats area,
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realignment of Third Street, a community park at the former railroad depot site, a new conference
hotel and city owned parking facility (the historic La Bahia to be preserved), a new commercial
center, bike lanes on Beach Street, limited Boardwalk expansion and redirected traffic patterns to
improve access to the wharf and downtown.
Due to community pressure, the present City Council has chosen to dismantle this redevelopment
plan and approach each project on the basis of individual merit.
A new 275-room conference hotel plan is being worked on with a potential developer who would buy the La Bahia property from the Seaside Company and work with the City on the hotel and parking facility plan.
A new park at the former railroad depot site is in the planning stage and will be built since the
funding was included in a bond measure approved by city voters in November of 1998.
Plans for other Beach Area projects are not known at this time.
Downtown Area:
Since the Loma Prieta earthquake, downtown redevelopment has been progressing steadily. The
Redevelopment Agency has represented the city in the development of several new buildings and
is managing a city-sponsored incentive program for building owners.
The program offers $10,000 grants to improve building facades and storefronts. Up to an
additional $5,000 in matching funds is also available for architectural and project costs.
The Agency also sponsors 50% of the cost of a mental health worker to work with transients in
the downtown area.
River Levee and Bridges:
The San Lorenzo River levee is to be reconstructed by the Army Corps of Engineers for improved
water flow and flood control. The levee will be raised approximately four feet and will be
landscaped with new trees and shrubs. Project completion is expected in the year 2000.
The Redevelopment Agency monitors the river levee, water levels and water flow. They will work
with the Corps to assure City interests are considered throughout the project.
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The Laurel Street Bridge is the final bridge to be reconstructed. The reconstruction is currently in progress and completion is expected in early fall.
Mission Street:
Another major project is the widening of Mission Street. The start has been delayed awaiting the
necessary relocation of telephone poles. A related issue is the placing of utility lines underground.
The current plan calls for this task to be done after road construction, but before the final layer of
asphalt.
Terrace Point:
The 60-acre site has been sold to University of California at Santa Cruz (UCSC). The University
may develop that property independent of Santa Cruz City or County rules.
Police Station:
Other than a few delays, this project has progressed generally problem free. The police
department is currently scheduled to occupy the new facilities in June, 1999.
Measure G Projects:
The Measure G bonds were approved for the former railroad depot park site, the upgrading of
city fire stations and the development of a new Fire Department Administration Building.
Measure G also provided funds for the purchase of the Bombay property.
A three-person citizens committee is being organized by the City Manager to monitor progress
and assure that the funds are expended in accordance with voter-approved Measure G.
To date, fire station projects are under way and a site on Walnut Street has been selected and
obtained for the new Fire Department Administration Building.
The former railroad depot park plan is described in the Parks and Recreation Department report.
RECOMMENDATIONS:
Restore high priority status to the plan for low-cost housing in the Beach Flats area.
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Review all existing Beach Flats area housing units and other buildings to assure that they are in
compliance with all building codes, regulations and city ordinances.
City officials cooperate with the Seaside Company and potential conference hotel developers in
efforts to prevent unnecessary delays in the La Bahia project.
Evaluate Mission Street widening project delays and costs which are borne by the City of Santa
Cruz.
Traffic Commission continue to evaluate short and long-term traffic issues resulting from the
Mission Street widening project, City population growth, and UCSC expansion including the
possible development of Terrace Point.
The 1999/2000 Grand Jury continue to track progress of the major development projects
highlighted above.
RESPONSE REQUIRED: Yes
Santa Cruz City Council: 60 days
Santa Cruz City Manager: 90 days
Santa Cruz City Redevelopment Agency: 90 days
Santa Cruz City Traffic Commission: 60 days
-25-
CITY OF SANTA CRUZ - SOCIAL SERVICES
OBJECTIVE:
Review Santa Cruz City Social Services Program funding, award procedures, allocations, award
usage tracking and total fund management.
BACKGROUND:
Santa Cruz allocates significant amounts of money for social services. These funds are awarded as
grants to private and public non-profit social service agencies.
FINDINGS:
The Social Services Program Fund for the 1998/99 fiscal year totals more than $1.46M, an 11.3%
increase over 1997/98. Approximately 60 non-profit social service programs have been awarded
financial grants for 1998/99.
Service providers must apply for City Social Service Program grants each year. Most agencies
receive funds year after year, but they must provide justification for their programs each year to
receive financial support for the new fiscal period.
A committee of three City Council members reviews potential recipient agency programs and
recommends approval or denial of grant awards to the full City Council.
The Social Services Committee meets monthly to review the status of the grant program. They
also visit many of the agencies each year to gain firsthand knowledge of city supported programs.
Financial grants, awarded for specifically approved programs, are placed in accounts similar to
lines of credit.
The Finance Department provides an ongoing financial audit function. They issue checks to the
recipient agency as payment for approved project expenses only. This process provides a record
of funds used as well as an up-to-date fund balance for each program.
County auditors provide a program evaluation function for which the City allocates a program monitoring fund ($4,000 in 1998/99).
RECOMMENDATIONS:
The Social Services Committee work with service agencies to establish cooperative cross-agency
efforts wherever multiple
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programs are directed at similar issues to eliminate duplication of efforts and duplicate funding.
RESPONSE REQUIRED: Yes
Santa Cruz City Council: 60 Days
-27-
SANTA CRUZ CITY - WATER DEPARTMENT
OBJECTIVE:
Review the Santa Cruz City Water Department and include the water districts of Scotts Valley
and Soquel Creek in a consolidated Santa Cruz area review of common water supply and
requirements issues.
BACKGROUND:
A reliable supply of water is essential for the well-being of area citizens. Interviews were
conducted with the head of the Santa Cruz Water Department and the heads of the water districts
of Scotts Valley and Soquel Creek.
FINDINGS:
Santa Cruz Water Department:
The department serves approximately 88,000 people with more than 23,000 metered connections
as of December 1998. A successful effort to reduce the average individual water usage has been
implemented. Also, great attention is paid to minimize losses from leaks.
Most of the Santa Cruz water supply comes from surface water sources and storage, including the
San Lorenzo River, Loch Lomond Reservoir, Liddell Spring, Majors Creek, and Laguna Creek.
Two Tait wells and Beltz well field are also used.
Despite efficiency measures and volunteer conservation, the continuing resident population
growth and UCSC expansion already impose a strain on available department water supply. In
future drought conditions, very severe restrictions on water usage would have to be imposed.
The finding of new water sources and/or the addition of surface water storage are necessities.
Scotts Valley Water District:
The Scotts Valley Water District serves the city of Scotts Valley and a small number of
contiguous neighborhoods for a total of approximately 3,750 connections. Much of the equipment
and distribution piping is relatively new and leak losses have been held to a minimum.
All of the district water comes from wells. The district has both the highest per person average
daily usage and highest water rates.
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A gray water recycle plant with a capacity of 1 million gallons per day is nearing completion. This
facility will supply separately piped lower cost water suitable for landscaping.
Currently, the population of Scotts Valley is less than 10,000. Continuing growth is expected to
add at least 20% over the next few years and will likely impose a significant strain on the district
water supply. In future drought conditions, very severe restrictions on water usage would have to
be imposed.
The finding of new water sources and/or the addition of surface water storage are necessities for
the community.
Soquel Creek Water District:
The district serves a population of approximately 45,000, having about 13,000 connections. The
agriculture community and Cabrillo College are not served by this district.
All of the district water comes from wells, some of which are very near the coastline. A series of
monitoring wells along the coast is used to measure salt-water intrusion into the fresh water
aquifers.
The implementation of engineering consultants' recommendations to reduce the amount of water
drawn from coastal wells is likely to reduce the district's supply by approximately 10%.
The continuing population growth in the district will impose a growing strain on the water supply.
In future drought conditions, very severe restrictions on water usage will have to be imposed.
The finding of new water sources and/or the addition of surface water storage are necessities for
the community.
RECOMMENDATIONS:
Create a county-wide task force with the express purpose of investigating water supply for all
users in the county. Within the next year, make recommendations to the pertinent public and
private County and City agencies for long term solutions to the existing and future water
shortages.
All water departments and districts issue to their customers, firm conservation plans for a drought
situation.
The 1999/2000 Grand Jury assign a committee to review all water sources and suppliers in Santa Cruz County.
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RESPONSE REQUIRED: Yes
County Board of Supervisors: 60 days
City of Santa Cruz Water Department: 90 days
Central Water District: 90 days
Lompico County Water District: 90 days
Pajaro Valley Water Management District: 90 days
San Lorenzo Valley Water District: 90 days
Scotts Valley Water District: 90 days
Soquel Creek Water District: 90 days
Santa Cruz County Flood Control and
Water Conservation District: 90 days
-30-
OPEN MEETING LAW
OBJECTIVE:
To examine the County, City and other districts' compliance with the Open Meeting Law and
policies and procedures regarding bribery of public officials.
BACKGROUND:
During the tenure of this Grand Jury, there were publicized allegations of attempted bribery of
public officials and violations of Government Code §54950, et seq., commonly known as the
Brown Act. Investigations conducted by the District Attorney found that none of these
allegations were substantiated.
While most public agencies have written policies that prohibit the solicitation or acceptance of
bribes or gratuities, public employees or elected officials are often unfamiliar with the true nature
of what constitutes the elements of a "bribe." The California Penal Code enumerates
approximately 15 separate statutes, each of which defines the giving, offering, agreeing to receive
or receiving of a bribe by certain classifications of individuals.
The penalties for bribery can be severe. Bribery is classified as a felony punishable by up to four
years in prison and disqualification from ever holding any office in this state.
Open Meeting Law violations may result in actions of a legislative body being held null and void
or monetary sanctions be imposed on the jurisdiction. The public officials involved may be
charged with a misdemeanor crime (Government Code §54959).
FINDINGS:
The District Attorney annually receives several complaints of alleged violations of the Open
Meeting Law, although few have ever been found valid. It requires considerable time and
resources to conduct these inquiries. The nature of these allegations also creates considerable
disruption to the government body being investigated which reduces its ability to effectively focus
on its primary duties. Additionally, the public trust and confidence in the elected body can be
seriously undermined whenever allegations of misconduct (founded or unfounded) are levied.
There are very few reported incidents of public employees, executive officers, or appointed or
elected officials who knowingly solicit or receive bribes. Most are a result of insufficient
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technical and procedural knowledge rather than intentional criminal behavior.
It is to the advantage of the public, public agencies and individual officials to have safeguards in
place to assure knowledge and compliance with the relevant statutes.
The District Attorney's Office has the ability to provide training and information to public
agencies and elected officials. This will minimize the possibility of violations.
RECOMMENDATIONS:
The District Attorney develop and implement training and information protocol for public
agencies, elected officials and legislative bodies on the legal aspects of bribery and the Open
Meeting Law.
Future Grand Juries review the policies of the appropriate agencies and legislative bodies to verify
that proper procedures and necessary training have been implemented.
RESPONSE REQUIRED: Yes
Santa Cruz County District Attorney: 60 days
-32-
BLAINE STREET WOMEN'S FACILITY
OBJECTIVE:
To fulfill the Civil Grand Jury's annual review of the detention facilities in Santa Cruz County.
BACKGROUND:
Blaine Street was established in 1984 as the women's minimum security facility of the Santa Cruz
County Detention System. Only women who are classified as "low security risks" are considered
for transfer from the Main Jail to this facility. Other considerations are the nature of the criminal
offense and the length of the sentence to be served. Women are not eligible for transfer to this
facility if they have significant medical needs, histories of escape or violence, or sentences to serve
state prison time.
FINDINGS:
The facility consists of four primary housing units that contain a total of 21 double-bunked rooms.
Each room is also equipped with a desk, bulletin board and small lockers for personal belongings.
Each housing unit has three sinks, toilet and shower. Recreation, exercise, crafts and
library/classroom areas are provided. A small garden and patio are available adjacent to the
facility. A modern kitchen is used by the women to prepare their meals, using food components
supplied by the Main Jail facility. Laundry is processed off-site.
The California Government Code requires the facility to have emergency power which can be
achieved by using a generator. On numerous occasions, power outages have left the facility
without lighting. It was determined there was inadequate capacity on the existing generator at the
Main Jail, and it was decided to buy a new unit specifically for Blaine Street. The funding
allocated is less than half of what current bids are to complete the project. County General
Services estimates that the unit could be in place within two weeks of approval of adequate
funding.
Despite the available sleeping space for 42 persons, other functions of the facility, such as food
preparation, dining, living, program areas and staff supervision, are compromised if they exceed
the maximum allowable capacity. Blaine Street is rated by the Board of Corrections for 32
inmates. In 1998, the average monthly population was 33 inmates. The average length of an
inmate's incarceration was 195 days.
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The staffing consists of one permanently assigned Supervising Detention Officer and two
Detention Officer positions assigned on a rotating basis from staff at the Main Jail. Scheduling
does not provide for more than one officer on duty at any given time, unless the Supervising
Detention Officer is on site. During evenings and nights, only one officer is on duty for the entire
facility. A single staff member cannot effectively monitor inmate safety and conduct and still
provide the services necessary to efficiently operate the facility.
The facility still has several areas of high security risk. Fencing is minimal. The facility is open to
the street and the parking lot which creates the risk of trespassing, smuggling and loitering. No
video surveillance was incorporated into the original plans. Requests for video equipment were
submitted. Of the $35,000 requested, only $500 was received. Since 1997, three video cameras
and split-screen monitors have been acquired in a piece meal fashion. Currently, there is no
funding available to install the video equipment already purchased.
Transportation, escorts, visiting supervision, searches or emergencies require the officer on duty
to summon assistance from the main jail. Training for assignment to the facility is minimal. The
average Detention Officer may receive less than one day of "orientation" before being assigned to
unsupervised duty at Blaine Street.
Inmates have structured work assignments or chores within the facility. They are responsible for
all maintenance and cleaning. The facility is well maintained and exceptionally clean. Inmates
tend to be cooperative so they may serve their time at Blaine Street instead of the Main Jail.
There are currently four work furlough inmates who are housed at the facility. During the day,
the Probation Department is responsible for supervision of these inmates at their work sites in the
community.
The inmate population consists primarily of drug and alcohol offenders. Since 1996, substance
abuse counseling has been made available. Random drug testing is conducted on about 20
inmates per month. There is a notable trend of younger inmates with a higher incidence of heroin
abuse than in past years. An inmate must be drug and alcohol free while in this facility. Detox is
only available at the Main Jail.
There is minimal access to medical staff at this facility. A nurse visits the facility daily in the
mornings. Non-narcotic and non-psychiatric medications are distributed by the Detention Officer
on duty, not by the nurse. Under supervision, inmates then administer
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medications to themselves. All other needs must be met by an individual medical response or by
the inmate being escorted to the Main Jail where more extensive professional medical services are
available.
Several educational and vocational programs, including classes on parenting, are available to the
inmates. The computer lab has two computers with software that supports G.E.D. preparation
and E.S.L. (English as a Second Language) studies. The County's Human Services Agency
(HSA) program funds health related education programs. Inmates are encouraged to participate
in a variety of therapeutic programs as well. Examples of these are Alto counseling, Narcotics
Anonymous and Alcoholics Anonymous. About 65% of inmates participated in the programs
presented by Pajaro Valley Prevention substance abuse programs during 1998. Once inmates
complete this ten-week program, they earn a certificate which can qualify them for a sentence
modification. Many of these programs are funded through Inmate Welfare funds.
Visitation is once a week for two hours per inmate. They have a choice of Saturday or Sunday.
Visits take place in the dining and patio areas. A Visiting Request Log must be submitted to the
duty officer two days prior to visiting day for up to two adult visitors and any number of children.
Visitors are screened prior to approval of the visit.
RECOMMENDATIONS:
Expedite the allocation of adequate funds for the prompt installation of a generator so that this
facility is no longer in violation of California Government Code requirements.
Allocate full funding for purchase and installation of a complete video surveillance system for the
premises.
Assignment of a Sergeant-level Detention Officer to the facility as the primary supervisor, a
Supervising Detention Officer during evenings and weekends, and adequate Detention Officer
staff to the facility to ensure a minimum coverage of two staff on site at all times.
Evaluate the methods employed to provide medical staff availability for inmates.
Evaluate the procedures used to dispense medications to inmates.
RESPONSE REQUIRED: Yes
Santa Cruz County Sheriff: 60 days
County Administrative Officer: 90 days
County Board of Supervisors: 60 days
-35-
CHILD DEATH REVIEW TEAM
OBJECTIVE:
To observe the process of the Santa Cruz County's Child Death Review Team.
BACKGROUND:
The Santa Cruz County Child Death Review Team is an official group of individuals who
represent law enforcement, probation, health and social services and others requested by the
Coroner. They meet monthly to discuss any deaths of children within Santa Cruz County. Their
goal is to identify any gaps in the existing service system in order to protect other children from
encountering similar situations that might contribute to the death of another child.
FINDINGS:
This process is an outstanding example of a collaborative effort. It includes the appropriate
government officials as well as individuals from other related community agencies. Those
involved are invited to attend the meetings to exchange information and insights about each case
being reviewed. These confidential meetings allow for the opportunity for open communication.
From this information, collaborative solutions are then suggested and implemented.
RECOMMENDATIONS: None
RESPONSE REQUIRED: No
-36-
DOMESTIC VIOLENCE DEATH REVIEW TEAM
OBJECTIVE:
To observe the process of the Santa Cruz County's Domestic Violence Death Review Team.
BACKGROUND:
The Domestic Violence Review Team consists of individuals from law enforcement, probation,
health and social service agencies. This official group meets monthly to review any deaths that
may be connected to domestic violence. The goal is to identify any problems in the existing
system and help prevent future domestic- violence related deaths.
FINDINGS:
This interactive process of sharing information is a good way to create the insights needed to deal
with the complex issues that surround domestic violence. The information is confidential, but that
information allows agencies to collaborate on solutions that may prevent future deaths related to
domestic violence. Many solutions are directly implemented by individuals attending the
meetings. It is a good example of collaboration within our community.
RECOMMENDATIONS: None.
RESPONSE REQUIRED: No
-37-
MAIN JAIL
WATER STREET FACILITY
OBJECTIVE:
To fulfill the Civil Grand Jury's annual review of the detention facilities in Santa Cruz County.
BACKGROUND:
The Santa Cruz County Main Jail is a maximum security detention facility operated by the Santa
Cruz County Sheriff. It is located on Water Street in the City of Santa Cruz. It was built in 1981
and expanded in 1985 and is presently rated by the State Board of Corrections for 249 inmates.
FINDINGS:
There are 650 inmates in the entire system which includes the Main Jail, the Blaine Street Facility,
Rountree and the Jail Farm. The California State Board of Corrections conducts an inspection
bi-annually.
The Main Jail houses inmates incarcerated for serious and violent crimes. It is also a holding
facility for inmates awaiting trial. Inmates considered a "suicide risk" are also confined here.
Women and men are confined in separate areas. The officers at the Jail do not carry firearms.
The average daily population of the Main Jail in 1998 was almost 400 inmates. Bunks have been
placed in the day rooms in order to accommodate excess inmates. Kitchen facilities are adequate.
Inmates are fed in their detention areas rather than in a central area. Even under normal,
day-to-day operation, the facility appears understaffed. The average inmate stays approximately
20 days. The Main Jail population increases during the summer. At the end of the summer of
1998, there were 460 inmates. Most are locals, and over 50% are charged with felonies. They
can remain in the jail for up to one year. There are presently 11 murder suspects incarcerated
awaiting trial. Females comprise about 8% of the 650 inmates.
Approximately 90% of inmates are incarcerated for crimes involving drug and alcohol abuse.
Younger, more violent inmates and aging inmates with extensive records are being seen more
frequently. There is an increased presence of prison-based gangs.
The Health Services Agency of the County of Santa Cruz contracts to operate a 24-hour clinic on
site. It is not an infirmary. The local hospital will not accept mentally ill persons who have been
-38-
charged with a crime. A grant to handle mentally ill inmates has been applied for, with proposed
mid-level guardianship. Consideration is also being given to leasing space for the mentally ill.
Improvements have been made to the facility with respect to suicide prevention. The suicide
victims of years past may have been third-strike candidates.
Issues affecting the Main Jail presently are: overcrowding, handling of mentally ill inmates, inmate
violence and understaffing of detention officers. The ratio is currently one officer to 50 inmates.
It is difficult to recruit officers because of the higher salaries paid in contiguous counties.
There is a backup of arrested individuals during the booking process on weekends and holidays.
Overcrowding is a serious problem on three-day weekends. Offenders being held on DUIs and
some relatively minor crimes clog the facility. The safety of deputies and inmates alike is at risk
during periods of overcrowding.
There is a fully equipped courtroom on the premises that is under- utilized.
Breath analyzers are now being used to obtain more accurate accounting for DUIs.
The computer room is not being utilized because there is no personnel available to supervise its
use (unsupervised inmates misuse the equipment).
RECOMMENDATIONS:
Fund additional staffing of detention officers to insure safety of prisoners and officers alike.
Establish holiday weekend arraignment court at the Main Jail courtroom to process offenders.
Provide supervised use of computers to inmates for legal business and correspondence.
Loss of inmate computer privileges as a consequence of misuse or abuse.
-39-
RESPONSE REQUIRED: Yes
Santa Cruz County Sheriff: 60 days
Board of Supervisors: 60 days
County Administrative Office: 90 days
Santa Cruz County Public Defender: 90 days
Santa Cruz County District Attorney: 60 days
Clerk and Executive Officer: 90 days
-40-
MEDIUM SECURITY DETENTION FACILITY
OBJECTIVE:
To fulfill the Civil Grand Jury's annual review of the detention facilities in Santa Cruz County.
BACKGROUND:
The medium security detention facility is located next to the minimum security detention facility
on Rountree Lane in Watsonville. This facility was opened in 1996 and is operated by the Santa
Cruz County Sheriff-Coroner's Detention Bureau.
FINDINGS:
Eligibility for the minimum/medium facilities is primarily determined at the Main Jail and is based
on a point system. Inmates receiving fewer than five points are housed at the minimum facility
while those who have received five or more points are housed at the medium facility. Persons
having an Immigration and Naturalization Service (INS) hold placed on them are also housed at
the medium facility. Classification officers at the facility handle the majority of the disciplinary
actions and can reclassify inmates as needed. Eligibility for classification is continuous at the
Rountree complex and helps to facilitate inmate movement among the two facilities and provides
space for transfers from the Main Jail.
The facility is rated by the State Board of Corrections to accommodate 48 inmates in each of the
two housing units. In February of 1999, funding and staffing were secured to open up the second
dormitory unit bringing the rated facility capacity to 96 inmates. Each of the two housing units
consists of six sleeping bays with one bay used as a TV room. There is a toilet/shower area, a
small enclosed meeting room, an inside recreation area and an outdoor courtyard. A staffed
detention officer's station located in the middle of each housing unit, combined with a central
monitoring system, provides direct supervision 24 hours a day. This facility provides needed
relief to crowding at the Main Jail. On the day of our inspection, there were 33 inmates in one
unit and 27 in the other. The average length of stay is 90 to 120 days.
A law library and classrooms are available so inmates may study and participate in various
programs, such as Alcoholics Anonymous, Narcotics Anonymous and English as a Second
Language. Inmates earn certificates for completing these programs. Visitor rooms are available
by appointment. There is also a nurse's station with
-41-
three exam rooms. At this time, there is no nurse on duty. This situation is in the process of
being rectified.
All meals for both the minimum and medium facilities are prepared in the stainless steel kitchen at
the medium facility. Inmates from the minimum facility taking classes in food preparation prepare
the meals. Although the kitchen is spotless, the floor is scuffed and damaged.
The inmates have structured chores and are responsible for all janitorial services. The facility
appears exceptionally clean and well maintained.
Although the funding was secured to provide four new staffing positions in February of 1999, one
allocated position was reassigned for department background checks and is being back-filled with
part-time staff. Two additional Rountree positions have been assigned to the Main Jail and are
not being back-filled with part-time staff. This has left the facility with a thinly stretched staff and
officers working 12-hour days.
RECOMMENDATIONS:
Continue with current plans to staff nurse's station.
Replace worn flooring in the kitchen area.
Return the staffing positions to full complement to provide needed relief for officer vacations,
training, illness, etc.
RESPONSE REQUIRED: Yes
Santa Cruz County Sheriff: 60 days
Board of Supervisors: 60 days
County Administrative Officer: 90 days
-42-
MINIMUM SECURITY DETENTION FACILITY
OBJECTIVE:
To fulfill the Civil Grand Jury's annual review of the detention facilities in Santa Cruz County.
BACKGROUND:
The minimum security detention facility is located adjacent to the medium security detention
facility on Rountree Lane in Watsonville. The facility was opened in 1970 and is operated by the
Santa Cruz Sheriff-Coroner's Detention Bureau.
FINDINGS:
The facility is rated by the State Board of Corrections to accommodate 162 inmates and has the
capacity to house up to 250. On the day of our inspection, there were 166 inmates. Inmates sleep
in the bunk area of the main building. The main building also includes a private shower/toilet
area, a dining room and a recreation area with ping-pong tables, televisions and telephones. The
building is in good condition with one exception. The original roof has evidence of dry rot.
A separate classroom housing a computer lab features 18 computers with one computer
connected to the Internet. Computer skills, English as a Second Language, and General
Educational Development (G.E.D.)diplomas are some of the classes being offered to the inmates.
During the day, the inmates spend their time participating in one of the many programs available
to them. Programs include:
Sign Shop
Food Preparation (Kitchen)
Auto Body Shop
Maintenance
Job Skills
Animal Care
Landscaping
Laundry
Substance Abuse/Prevention/Wellness Classes
The Office of Education pays for the Regional Occupational Programs (ROP) classes.
-43-
The outdoor facility includes a recreation area, a garden with birds including peacocks, a Zen
garden, a vegetable garden and a new koi pond.
The inmates are responsible for janitorial and maintenance duties. The facility is clean and well
maintained.
The work furlough program that allowed inmates to work outside the facility during the day and
return in the evening has been canceled.
Visits are allowed on Sundays on the front lawn.
RECOMMENDATIONS:
Repair or replace the original roof.
RESPONSE REQUIRED: Yes
Santa Cruz County Sheriff: 60 days
Board of Supervisors: 60 days
County Administrative Officer: 90 days
-44-
ABOVE THE LINE
OBJECTIVE:
To survey the new facility for homeless minors who are willing and able to change the
circumstances of their lives.
BACKGROUND:
The Above the Line (ATL) shelter, located in the Freedom area, consists of one ten-bedroom
house and a large service center. The buildings are owned by Mercy Charity Housing which in
turn leases to ATL. The lease is for 30 years. ATL will provide housing for homeless youth
between the ages of 13 and 17. Their initial capacity will be 20 teens. They hope to expand into
the seven adjacent cottages within five years for older (ages 18-24) residents. The cottages are
currently owned by Mercy Charity Housing and leased as low-income rentals.
A County Office of Education teacher will instruct classes with assistance from UCSC interns.
There will be a maximum of 30 students, including residents and day students, with the intent of
providing a small group instruction. Due to the lifestyle that these youth have been facing, they
do not have good group dynamic skills. To assist them in mainstreaming, they will receive Child
Protective Services Living Skills training. Some will be in transition and will be day students only.
These students will be transported daily in ATL vans driven by licensed volunteers.
The staff consists of seven residential counselors, two caseworkers, one teacher, one aide, and
one program director. All are salaried. There will be a ratio of one to six staff to student.
Available staff will be on duty and awake 24 hours a day and a physician is on call. A physician
will participate in the program. Planned Parenthood will also provide medical care.
The long-range goal (along with converting the cottages for older youth) is to provide a job skills
center in the large building next to the house. The Executive Director favors a shipping
enterprise.
FINDINGS:
The majority of the youth that come to Above The Line are already addicted to drugs, have
resorted to prostitution, and have serious health issues. About 99% of youth on the streets have
some substance abuse problem. They are in constant danger of exploitation, are afraid of
authorities, are physically and emotionally wanting and are "self-medicating" to alleviate the stress
of this reality. Once addicted, they fall into a downward
-45-
cycle of having to panhandle or prostitute themselves just to keep up with their drug habit. ATL
will contract with existing drug treatment agencies to provide treatment on-site at the facility. If a
youth needs more intense residential treatment, ATL will hold their space at the facility, and keep
their pet if they have one, for their return. ATL will do everything possible to support a youth in
the long and difficult process of recovery.
As part of the intake process, all youth will undergo a health screening as well as a criminal
activity screening. The Juvenile Court Judge oversees the criminal screening. Sobriety is
mandatory to continue residence, and violent criminal behavior will not be tolerated.
ATL is not a residential drug treatment facility and it must assume that role at times due to the
lack of such a facility in the county.
Attendance is by choice. Funding comes primarily from private and federal grants such as the
Packard Foundation and Healthy Start. The cities in the county also contribute. The annual
budget for ATL is $740,000. County funding is in the form of Aid to Familities with Dependent
Children (AFDC) funds when a youth from within the county system is placed in ATL. There is a
maximum of six such placements as per agreement with the County Board of Supervisors. The
Redevelopment Agency also funds office space at the Emeline Center for the ATL program.
The major problem facing ATL is the lack of coordination and collaboration among county
agencies in providing support and services for homeless youth. As a result, there is little or no
emergency shelter available in this county for these youths.
RECOMMENDATIONS:
The Board of Supervisors and the City Councils of Santa Cruz, Watsonville, Capitola and Scotts
Valley evaluate and identify the resources needed to create emergency shelter for homeless youth.
RESPONSE REQUIRED: Yes
County Board of Supervisors: 60 days
Santa Cruz City Council: 60 days
Watsonville City Council: 60 days
Capitola City Council: 60 days
Scotts Valley City Council: 60 days
-46-
CALWORKS HUMAN RESOURCES AGENCY
COUNTY OF SANTA CRUZ
OBJECTIVE:
To review services which enable clients to move into employment within the mandated 24 month
timeframe of the Welfare-to-Work Program and interview the Division Director of the Human
Resources Agency (HRA).
BACKGROUND:
The Human Resources Agency is an umbrella agency including:
CalWorks will transfer job training to Career Works on July 1, 1999. Job Opportunities and Benefits Division formerly administered the Aid for Families with Dependent Children (AFDC) entitlement program.
With the Welfare-to-Work legislation, the programs provided became non-entitlement. Under the
parameters of the legislation, each client must have a plan to work or actually be working at least
20 hours per week within 24 months of starting the program. There is a provision that 20% of
the case load could be exempt. These exempt clients are the disabled grandparents with custody
of children etc.
FINDINGS:
Two years prior to the Federal/State welfare reform legislation, the Agency began conducting
self-sufficiency workshops providing support systems to gain employment such as resume writing
and interview training. There is flexibility in CalWorks by providing mini grants for specific needs
such as fees for licenses and car repairs.
One Stop Centers have been established offering a variety of HRA services at one location.
Currently, there are three One Stop Centers in the county.
If a client qualifies for the Immediate Needs Program, a motel/hotel voucher can be issued in the
amount of $200. This is
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a one-time benefit and is not part of any grant issued later. Homeless assistance can provide up to
16 days in a motel. A joint check is issued in the names of both the client and the motel. Food
stamps can also be expedited.
Families in Transition is a private non-profit corporation which, in partnership with HRA,
provides transitional housing to CalWorks' clients who commit to stay clean and sober. HRA
provides two social workers.
As a result of a Packard Grant, a mobile center was established in the San Lorenzo Valley. HRA
provides social workers half days at the Valley Resource Center. Single males (without
dependents) are eligible for food stamps and emergency shelter. When clients are difficult to
employ, a federal waiver can allow deferment of employment search and an extension of food
stamps.
HRA provides an eligibility worker on the Cabrillo College campus to assist the Fast Track to
Work program. The program staff provides assistance in accelerating course work so clients can
become job qualified within the two-year period.
RECOMMENDATIONS:
Expedite the plan reducing the current use of paper documents to the use of an electronic benefits
card.
Expand the successful collaborative outreach programs.
Create more extensive support for the Families in Transition programs.
Continue to maintain statistics on program performance.
RESPONSE REQUIRED: Yes
Board of Supervisors: 60 days
CalWorks, Human Resources Agency: 90 days
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HOMELESS SHELTER
OBJECTIVE:
To tour the Homeless Shelter, review its programs and interview the Executive Director.
BACKGROUND:
Homeless Services Center provides three separate programs: Interfaith Satellite Shelter Program, Homeless Community Resource Center, and Page Smith Community House. This is one of the most cost effective programs in the state. Now the largest shelter program on the Central Coast, the Center was formed in the 1980s by a coalition of churches to "get the people off the street, it's cold out there." They used the National Guard Armory at no cost. It received little support from the community at large. When the campground located at River Street and Highway 9 became the source of crime, drug and health problems in 1995, it was closed and the current programs commenced.
The City of Santa Cruz owns the land where services are provided and provides a large portion of
the funding. Other cities within the county, HUD and FEMA grants, and donations provide the
balance of the funding. County agencies provide staff assistance but little money.
FINDINGS:
During the past year, the program has provided over 100,000 meals and 45,000 nights of shelter.
Over 300 persons have found some form of employment utilizing program services. The
Interfaith Satellite Shelter Program provides shelter for the night in over 40 churches in the
county for families with children and married couples. Fifty-six beds are provided until May 1.
From November 15 to March 30, the National Guard Armory provides additional shelter for
single adults. The cost for rent and cleaning of the Armory is $500 per night. Security guard
service is provided until 11:00PM at an additional cost to the program. The National Guard
provides additional presence on site and also runs a commissary for sodas and snacks. Only one
set of the bathrooms has showers so male and female clients use them on alternate nights.
Bedding and mattresses are provided by the program. The use of the Armory as an emergency
shelter is intended only as a temporary location. Some families, using their AFDC and SSI funds,
opt to stay at motels in the Beach Flats area which are less expensive in winter, until their
allotment is depleted.
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An average of 300 meals a day (100 breakfasts, 200 dinners) are provided. Currently, the cooking
is done in a catering van. However, the City of Santa Cruz will provide a certified kitchen on site
by the end of 1999. Families with children are seated first. There is no time limit to the use of
these food services. Food costs are about $28,000 per year with donations providing $2.00 worth
of food for every $1.00 actually spent. The Food Bank, local restaurants and bakeries donate
bread, produce and excess food on an ongoing basis. Volunteer serving help is provided by
shelter clients. They have had no problems with food poisoning or hepatitis.
Clients are transported to the shelters in two vans owned by the program, starting with families with children at 4:30PM. They are hoping to secure a used bus from the Santa Cruz Metropolitan Transit District (SCMTD). The small size of the existing vans necessitates starting very early to vacate the Armory by the required time of 7:00 AM. Clients are screened for intoxication and weapons possession prior to boarding the bus. Authorities are called to resolve problems approximately once every two weeks. When the campground was operating, the police were called several times a night.
Food and shelter services are utilized by locals and transients on a 50/50 ratio.
The Homeless Community Resource Center, at the same location provides a case management
approach clients to receive assistance in their search for employment.
A building providing showers, toilets, laundry facilities, television sets, children's toys, and
vending machines is located on site. Lockers can be rented for a monthly cost of $5.00. A night
watchman provides security.
Public health nurses perform weekly medical screenings as requested and referrals are then made
for substance abuse and mental and physical health as needed.
Phones are available for client use providing a message system and a mailing address. Resumé
preparation and computer use are also provided. Three full-time counselors are on site. The first
year in the case management mode, 280 clients were assisted in obtaining employment. Over 800
clients use the mailing address.
The Page Smith Community House, recently opened, provides a structured transitional living
program. A maximum of 40 single adults live in eight buildings for six to 18 months. One of the
units is suitable for handicapped use. They must have some form of income as the program
requires they pay a third of that income for
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rent. They must remain clean and sober and undergo regular drug testing. Failure to pass results
in expulsion from the program. Mandatory meetings are held twice a week. They cook and food
shop for themselves. Case management, job development and professional counseling are
provided. Habitat for Humanity has constructed an outdoor deck for leisure activities and the
units are attractively landscaped. In the first six months of operation, ten clients graduated from
the program. Over 200 applicants are on the waiting list. Two full-time case managers, one
full-time program director and one half-time activities director are on site.
Emergency services are sufficient for current need. More transitional services are needed. A
separate, year-round, 24-hour facility for families with children is needed.
RECOMMENDATIONS:
Create a county-wide task force to provide a separate facility for families with children.
Increase availability of the transitional services that move homeless into the mainstream.
SCMTD provide a bus and driver for the Homeless Shelter as needed.
Locate a permanent emergency shelter as an alternative to the expensive use of the National
Guard Armory.
RESPONSE REQUIRED: Yes
Board of Supervisors: 60 days
Santa Cruz Metropolitan Transit District: 90 days
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LIVE OAK SCHOOL DISTRICT
OBJECTIVE:
To interview the Superintendent and to review the school district programs with emphasis on
support for at-risk students.
BACKGROUND:
The four-school Live Oak School District (LOSD) educates approximately 2,100 K-8 students.
LOSD contains the highest density of low income housing for a county with the third highest cost
of living in the United States. Forty-four percent of students qualify for free or reduced price
lunches. Between 1987 and 1998, the percentage of minority students residing in the district rose
from 12% to 40%. A significant number of those students, 29%, have limited English proficiency.
FINDINGS:
LOSD has adopted performance standards for each grade level and implemented safety net
strategies for those students who are at risk or not performing at a level to meet the standards.
The Shoreline Middle School also has three intervention programs for students who are at risk of
not being promoted to high school because of their difficulty in passing the required proficiency
tests/courses. The programs include the Saturday Academic Academy, after-school tutorials and
summer school for those who need course credits.
The District operates the Kid Care program that provides an after-school child care and
enrichment program for students in grades K-5. The District has applied for funding of a
Community Learning Center at the District's only Middle School. This would be an extension of
the Kid Care program. There will be four program elements: transitional period,
literacy/education, technology and recreation.
Safety net strategies that include support for at-risk students are: Peace Builders/Circle of Friends,
Health/Quest, Youth in Action, Student Government, Reading Recovery, Cross-age tutoring,
Title I expanded middle school course offerings, counseling groups, alternative academic
programs (after school and Saturday Academies, tutorial, homework labs, Cabrillo advancement
placement), DARE, SARB, Healthy Kids:Drug Free Schools and Parent Center/Youth Services.
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The District also operates the Community-Based English Teaching program (CBET) for parents
so they can better provide academic support to their children. The program provides citizenship
and English classes. It also trains parents as tutors for their own children.
There is a full-time guidance counselor at Shoreline Middle School and half-time counselors at the
three elementary schools. The counseling staff is responsible for identifying at-risk students and
providing counseling and assurance that the identified students are placed in the safety net
program most appropriate for them.
The District has specific School Board policies regarding mandated Special Education services.
They are: identification of individuals, student study teams, staff, procedural safeguards, due
process hearings and nonpublic sectarian school and agency services.
RECOMMENDATIONS:
The Live Oak School District Board of Trustees, administration and staff continue to meet the
diverse needs of their students by providing a quality education and offering a variety of
educational programs and services.
RESPONSE REQUIRED: None
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SANTA CRUZ CITY SCHOOLS DISTRICT
OBJECTIVE:
To review programs, interview District Superintendent and tour new District building.
BACKGROUND:
The District includes six elementary schools, two junior high schools, three high schools and six
alternative schools. It provides personnel, purchasing, bus service, payroll and Workers'
Compensation services for 1,000 employees. It receives $3,800 for each elementary student and
$4,800 for each high school student in Average Daily Attendance (ADA) funds from the State of
California.
High school graduation credits are mandated by State Code. However, local district boards can
increase the minimum number. Currently, Santa Cruz City Schools District requires 220 credits
for high school graduation, well above the mandated 180.
There are guidance counselors present for grades 7 through 12; one each in the junior highs, one
for every 500 students in high schools and one for the alternative schools. All are appropriately
credentialed. There is one social worker for all three high schools who has a caseload of about
60. At-risk students can be self-referred or referred by a health worker, teacher, staff member or
anyone on campus. High school Advanced Program students are referred by guidance counselors
and do not include freshmen. The class size is usually about 16 to 18 students.
All school libraries have a resource area for drug and alcohol material and drug and alcohol abuse
education is a part of the health curriculum.
Every elementary school has an after-school program. Almost all of the District's adult education
programs are now held at the new building as well as a majority of staff training.
FINDINGS:
The newly built District headquarters building is well suited to handle the needs of the District.
No large increase in student enrollment is predicted for the next five to seven years. Actually, an
enrollment dip in the year 2005 is projected for the high schools with the elementary schools now
experiencing it. Santa Cruz High will lose some enrollment when the new Scotts
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Valley High School opens. This will have a positive effect because two of the high schools are
now operating at 95% of capacity. Optimum capacity level is 90%. Santa Cruz City Schools
District will lose about 55% of the freshmen class (and about four teachers) the first year but 45%
of those are expected to return as transferees.
A parent survey is conducted each year, asking such questions as how satisfied parents are with
their student's academic progress and how well the students are doing. Results are positive in
tone according to the school Superintendent.
The District has a small program utilizing parents as volunteer teachers for classes not in the
current curriculum. However, it is a small program and results vary depending on the ability of
the volunteer teacher. There is a Student Attendance Review Board (SARB) in place for truants;
however, there is not yet a program in place with the District Attorney's office to enforce SARB
directives or to require repayment of truancy costs.
Students with limited English language proficiency are in English as a Second Language classes
and are mainstreamed if they have a higher level of proficiency. Bilingual classes are provided for
those students whose parents request them. These are only a small number. The District provides
parenting skills training classes off campus in the Beach Flats area and at Neary Lagoon housing
complex.
Community counselors are contracted to provide intervention counseling on all high school
campuses, both for individuals and groups. The services provided vary from basic counseling to
strategic intervention. Referrals can be made either by a teacher or by the student's family. There
are Alcoholics Anonymous (AA) meetings on campus but not Narcotics Anonymous (NA).
There appears to be less drug use on campus during school hours; however, there does not appear
to be much reduction in total use. This is a result of the campus police officer program and the
zero tolerance policy.
The District is working with the Santa Cruz Police Department, the County Probation
Department and the District Attorney's office to address truancy issues. Currently, there is no
truancy mediation program.
RECOMMENDATIONS:
The Santa Cruz City Schools, in collaboration with the Santa Cruz Police Department, present to
the District Attorney, a program to implement truancy mediation and to enforce repayment of
truancy costs.
Arrange for NA meetings to be held on campus.
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RESPONSE REQUIRED: Yes
Santa Cruz City Schools District: 90 days
Santa Cruz Police Department: 90 days
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SCOTTS VALLEY MIDDLE SCHOOL
OBJECTIVE:
To review the disciplinary procedures relating to student abuse of drugs and alcohol on campus.
BACKGROUND:
Pupil suspension and expulsion policies set by each school are reviewed and adopted by the
school district board. Drug and alcohol education is provided as part of the curriculum. The
Drug Awareness Resistence Education program is presented in the 7th grade. At the beginning of
each school year, each student is provided with information regarding all school rules and
regulations as well as specific punishments for infraction of those rules and regulations. Each
student and parent or guardian is required to sign a slip acknowledging acceptance of these rules
and regulations. The signed slip is returned to the school.
A representative of the Scotts Valley Police Department attends all student expulsion hearings.
They have a designated Juvenile Officer who is present on campus and responds when the school
reports a criminal offense.
After-school sports are a regular part of scheduled activities. Club Live provides other
opportunities for after-school programs as well as Scotts Valley Parks and Recreation
Department.
FINDINGS:
On March 19, 1999, the Scotts Valley Police Department was notified that several students were
found to be in possession of alcohol and drugs. The police department arrested the students. As
a result, these students either entered into diversion programs or referred to the Probation
Department. With the cooperation of their parents, the students appeared at an expulsion hearing
and punishment was imposed according to their infractions. The Scotts Valley Middle School has
specific policies and procedures to deal with student possession of alcohol and/or drugs on
campus. They have the full and complete cooperation and support of the Scotts Valley Police
Department.
There is no teen center in Scotts Valley for after-school activities for youth who are not involved
in after-school sports or Club Live (an after-school social center).
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RECOMMENDATIONS:
Form a collaboration of Scotts Valley School District personnel and Scotts Valley City Council
members to determine the feasibility of establishing a Teen Center for after-school activities other
than sports.
Propose a Parent Block Program in which one home in a small area is designated on a rotating
basis, for unsupervised students as a place to go after school.
RESPONSE REQUIRED: Yes
Scotts Valley School District: 90 days
Scotts Valley City Council: 60 days
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SANTA CRUZ METROPOLITAN TRANSIT DISTRICT
OBJECTIVE:
To gain an overview of the operation and status of the Santa Cruz Metropolitan Transit District
(SCMTD).
BACKGROUND:
Members of the Special Districts committee met with the General Manager of SCMTD, in August
of 1998. A follow-up discussion was held in April of 1999.
FINDINGS:
The Santa Cruz Metropolitan Transit District was formed in 1969. The transit system serves the
general public in the cities of Capitola, Santa Cruz, Scotts Valley, Watsonville and the
unincorporated areas of Santa Cruz County. SCMTD is governed by a board of eleven directors
which include council members of the cities, county supervisors and citizens.
Approximately 40 fixed bus routes are operated with over 1,000 bus stops and annual ridership of
an estimated 8,000,000 passengers. It also operates express service over Highway 17 with annual
ridership of an estimated 200,000 passengers. In addition to these fixed-transit operations,
SCMTD provides para-transit services for the disabled and elderly. These services include Lift
Line, Meals on Wheels and Courtesy Taxi.
Funding is generated by passenger fares (about 10%), sales and use tax (about 50%) and state and
federal grants.
One key objective is to consolidate operations in order to improve operating efficiency. Phase
One of the consolidation is taking place in the spring of 1999. SCMTD is negotiating for the
purchase of property at the corner of Swift and Delaware in Santa Cruz to enable implementation
of Phase Two. The traffic increase on Mission Street caused by additional busses and employee
travel is calculated to be less than two percent at the busiest intersection on Mission.
The Santa Cruz Metro Center attracts illegal drug activity. Reducing this activity involves several
actions including redesign of the rest rooms, possible removal of an outside bike wall that
encourages "hanging out," increased security, possible relocation of the needle exchange from
across the street and possible addition of a police sub-station at the Metro Center. The redesign
of the restroom has been completed.
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As of April of 1999, plans were in place to remove the wall bordering the bicycle parking area. An
agreement has been reached with the Santa Cruz City Police for increased security in cooperation
with the private security service currently used. This increased security is to be jointly funded by
SCMTD and the City of Santa Cruz.
A five-year capital/operating plan was published in February of 1999 and has been approved by
the Board of Directors.
The relationship between SCMTD and the Regional Transportation Commission is effective with
respect to shared objectives and inter-staff working relationships.
Information regarding operation of SCMTD and plans for the future is available on web site
www.scmtd.com.
Administration of SCMTD is running smoothly and progressing toward a set of objectives that
will improve delivery of transportation services in an efficient and effective manner. We
commend the transit district for these accomplishments.
RECOMMENDATIONS:
The City of Santa Cruz and the City of Watsonville continue working cooperatively with SCMTD
to provide for the security and safety of their passengers and employees.
Continue inter-agency cooperation between other county and city agencies with SCMTD to
identify and work towards common goals in solving our county transportation needs.
RESPONSE REQUIRED: Yes
Santa Cruz Metropolitan Transit District: 90 days
Santa Cruz City Council: 60 days
Watsonville City Council: 60 days
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January 4, 1999
Board of Supervisors
County of Santa Cruz
701 Ocean Street
Santa Cruz, CA 95060
RE: GRAND JURY REPORT RECOMMENDING APPROVAL TO APPLY FOR STATE FUNDING FOR JUVENILE HALL CONSTRUCTION PROGRAM
Dear Members of the Board:
The Santa Cruz County Civil Grand Jury wishes to voice its support for the appropriation of the
necessary counterpart funds to enable the county to apply for the challenge grant for the
renovation of the County Juvenile Hall to be considered by the Board of Supervisors on January
26, 1998.
In 1996 a Juvenile Hall Needs Assessment Task Force was convened to "focus on the needs of the Hall." The Task Force made 39 recommendations. They represent an excellent body of ideas to deal with the problem of juvenile offenders. Many of them will find echoes in a special report on Youth and Substance Abuse that the Civil Grand Jury is currently preparing. However, only three recommendations dealt with the facilities of Juvenile Hall:
No. 12 "Expand health, vocational, mental health and education services at Juvenile Hall.";
No. 25 "Upgrade existing Juvenile Hall (especially security, kitchen, recreation facilities, storage, medical and therapy rooms.", and
No. 35 "Develop plans to meet space and security needs at Juvenile Hall."
The last proposal, at least, has been acted on, with the preparation by the Criminal Justice
Research Foundation of a proposal to upgrade and redesign Juvenile Hall.
The Civil Grand Jury has been concerned about the condition of the facilities at the Juvenile Hall
for some time. In last year's report, we recommended the rehabilitation of the nurses' station
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and the possible construction of new facility in South County. This year we received a special
charge from Judge Yonts to examine the serious problem of youth and substance abuse. In the
course of our work on that charge, we have devoted considerable time to studying Juvenile Hall.
Our conclusion is that it is seriously inadequate to play its part in addressing the problem of youth
and substance abuse, as well as its other responsibilities. We now believe that a new facility in
South County would take approximately $15 million to construct and at least ten years for the
necessary approvals and construction. Withholding matching funds for the proposed renovation
with the idea of using them at some indefinite future date for a new facility in unrealistic planning.
The best option in the short and medium term is to focus on the current facility.
In your response to our report, you indicated that "the Board of Supervisors has authorized the
Probation Department to retain the consultant services of the Criminal Justice Research
Foundation (CJRF) of Sacramento. CJRF is conducting a complete Juvenile Hall facility
evaluation and needs assessment, as well as developing recommendations on a range of options
that may apply to the current Juvenile Hall, as well as additional unmet residential needs. CJRF is
also tracking bills and legislation that could provide funding, and will assist the Probation
Department in the application and response to any Requests for Proposals in which funds are
available for the Juvenile Hall."
CJRF has completed the facility evaluation and needs assessment. Their proposed design for a
renovation of Juvenile appears to deal with most of the concerns which the Civil Grand Jury and
others have expressed. Fortuitously, this comes at a time when the largest part of funds for the
renovation may be available from a challenge grant from the State. Application for this challenge
grant will require matching funds from the County. We believe that this is an opportunity that
should not be missed. It is now time to stop studying the matter and to start acting.
The proposed renovation plan addresses the most serious deficiencies of the Juvenile Hall. It is not possible in the current facility to adequately segregate the population between males and females, older and younger inmates and serious/dangerous offenders and others given the current two-wing, linear structure. The proposed cluster system would make this much easier, as well as providing for increased supervision, central control and safety. The renovation plan also upgrades security through the addition of a sally port and an improved perimeter fence.
The Juvenile Hall faces chronic lack of space, despite the strenuous efforts, directed by the Board
of Supervisors to increase placement outside Juvenile Hall. This requires the routine doubling up
of inmates in rooms designed for only one person. There is no reason to believe that this situation
will improve in the future. The new capacity, which at 60 is only slightly over the recent average
in the middle 50's, also gives the flexibility to meet changes in the age, gender and violence
potential of the inmate population.
Current recreation facilities are open to the elements and actually appear to present some danger to the juveniles. An all-weather facility could also be used for a variety of other purposes, including better visiting facilities.
One of the great triumphs of Juvenile Hall is the successful education program that it carries out. This is done despite having only two rooms, not specifically designed as class rooms. The renovation will provide an even more effective learning environment.
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The current health facilities are sadly inadequate. For a population facing serious problems from substance abuse, this is unacceptable. The nurses, whose dedication is obvious, are forced to work in one small room which combines examining facilities, records and work space. We understand that the State requires a separate room for examination. These matters needs to be urgently addressed, and would be by the renovation plan.
Finally, we understand that a serious asbestos problem exists in the facility. The ongoing palliative efforts will not solve the problem. Removal of this health menace is included in the plan.
Alternatives to incarceration in the Juvenile Hall have been thoroughly explored, stimulated by the 1996 report. Many of the alternatives have been acted upon. However, additional funding has come almost entirely from grants. It seems to us to be a false dichotomy that funding of Juvenile Hall from County sources will reduce the funding available to alternatives to incarceration. These alternatives, while important and effective in many cases, have not been able to actually reduce the demands on the Juvenile Hall. Furthermore, the County should not put itself in the position of being forced to eschew the use of the Juvenile Hall due to overcrowding, when such use is appropriate and necessary.
For all these reasons, we strongly urge the Board of Supervisors to seize the opportunity presented by the challenge grant to leverage the County's own contribution in order to effect a major improvement in the ability of the Juvenile Hall to meets the needs of the County and its own wards.
Very truly yours,
Thomas Sprague
Foreperson
Civil Grand Jury
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December 31, 1998
The Honorable Robert Yonts
Judge of the Supreme Court
701 Ocean Street
Santa Cruz, CA 95060
Dear Judge Yonts,
On behalf of the 1998-99 Grand Jury I present our Special Charge Report regarding the problem of 'Drugs and our Youth'. Because of the urgent nature of the matter, we have chosen to report at this time rather than include this topic in our final report at the end of the fiscal year.
Since we accepted the special charge in July, members of the Grand Jury have met with and
interviewed directors, managers and professional representatives of the many County and City
Agencies and Departments involved in this matter. We have also met with several
non-government professionals who provide related services and/or programs to direct our
troubled youth away from substance abuse. In these meetings we have recorded or noted the
opinions of all that we have interviewed along with collecting factual data and relevant
documentation.
The report is solely based on our findings and is organized in four sections. The introduction
outlines the subject matter and briefly describes the report. The content sections are entitled;
Prevention, Enforcement, Treatment and Coordination. Each section includes a summary of the
issues and Grand Jury recommendations.
We want to sincerely thank all of the people who cooperated with us and contributed to our
efforts. Many of the conscientious participants not only answered our questions but also went out
of their way to retrieve and provide the information we requested.
Respectfully submitted,
Thomas L. Sprague
Foreperson
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January 22, 1999
TO THE CITIZENS OF THE COUNTY OF SANTA CRUZ:
Enclosed is a Special Charge Grand Jury Report. The subject of the Special Charge is the problem of "Drugs and our Youth." On behalf of the Judges of Santa Cruz County, I salute the members of our Grand Jury, individually and as a team, for their work in gathering the data and compiling this report.
In addition to this report, the Grand Jury of 1998-99 will continue to work on several other Santa Cruz County issues which will be covered in the Grand Jury Final Report at the end of the fiscal year.
Again, we thank the Grand Jury for their efforts on behalf of the citizens of Santa Cruz County.
Respectfully submitted,
ROBERT B. YONTS, JR.
Judge of the Superior Court
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SANTA CRUZ COUNTY CIVIL GRAND JURY
1999
SPECIAL REPORT
YOUTH & SUBSTANCE ABUSE
INTRODUCTION
The 1998-99 Civil Grand Jury was sworn in with a special charge from Judge Robert Yonts to
"consult with and inquire with members of law enforcement, our criminal justice system, our
health officials, our mental health officials, our educators, and interested persons at large in the
community or otherwise, to assess any problem of drugs and our youth and to recommend
solutions for the intervention, prevention and treatment of this heinous problem within our
community ".
To this end, the Grand Jury has conducted many interviews with professionals and community
members, conducted site visits, reviewed project reports, attended project planning meetings, and
examined statistical data. During the period of July through December, 1998, the Grand Jury has
made this project its primary focus, as it became readily apparent that the matter of drugs and
youth has a profound effect on virtually every aspect of our community, and upon the services
provided by many government and private agencies.
This Special Report is divided into four topical sections: Prevention, Enforcement, Treatment,
and Coordination. It presents the results of Grand Jury observations and analysis of youth
substance abuse issues. The Report includes a summary of each topic based on these
observations, followed by the recommendations, which reflect the comments of the service
professionals and community members, and which, if implemented, might have an immediate and
hopefully a long-term effect on the local substance abuse problem. It is important to note that
these recommendations are not prioritized, funding sources are not identified, nor is a time-line
for implementation proposed. The practicality of implementation, from many aspects, is not
considered in depth. These recommendations are presented to highlight some of the creative
solutions which are available. It should also be noted that no category stands alone, neither more
or less important, nor separate from the others. Each category is closely related in its effect upon
the others; they must function in harmony rather than in conflict. Likewise, public policy and
programs should be developed with the concept that all components must be considered together.
It must be acknowledged that the abuse problem is a long-standing one, literally on a world-wide
basis. However, like any other problem, often the best solutions are very close to home. The
Grand Jury believes many of the issues facing our community can be solved, albeit over a period
of time, if the community commits itself to seeking and implementing creative solutions.
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The Grand Jury finds that many individuals and programs are making efforts, often above and
beyond their budgetary and physical limits, in an attempt to provide whatever services they can.
Many agencies must vie for funding, often in direct competition with the very agencies that
provide critical portions of the continuum of services, with the result of everyone gaining only a
small portion of what is actually needed to make a pro-active effort.
Drug abuse issues are complex and will only be solved if county and city agencies and support
groups work together toward the common goal. The Grand Jury acknowledges the studies and
proposals of the Together for Youth/Unidos Para Nuestros Jovenes Collaborative in substance
abuse prevention and the County High-Risk Drug Task Force on High-Risk Adolescent Drug
Treatment. We fully support the proposed recommendations as submitted to the Board of
Supervisors November 24, 1998 and December 8, 1998.
Finally, coordination is highly important to all effective solutions. Consistent with the
aforementioned proposals, we support the activities of the following coordinating bodies:
Prevention - Together for Youth/Unidos Para Nuestros Jovenes Collaborative
Enforcement - Criminal Justice Council
Treatment - County High-Risk Drug Task Force
PREVENTION
Effective youth drug use prevention must begin in the home with early parental teaching. Drug
prevention education must continue in elementary school, with programs through middle and
high school. Prevention programs must be ongoing and require the efforts and cooperation of
everyone in a position to influence youth, ie., parents, teachers, counselors, coaches, mentors,
peer and role models, government and community leaders.
The Together for Youth/Unidos Para Nuestros Jovenes Collaborative (TFY), organized by local
United Way leaders, has developed a comprehensive drug abuse prevention program for Santa
Cruz County. It is clear that there is a need to increase knowledge and raise awareness of the
extent of juvenile substance abuse and the importance of a comprehensive prevention education
program in Santa Cruz County. There needs to be a variety of drug prevention education
approaches applied to assure that all segments of the county population are reached.
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Currently, there are a variety of drug prevention education programs offered in each of the school districts. The most widely implemented of these, Drug Abuse Resistance Education (DARE), is provided by law enforcement agencies in the elementary and middle school levels. Pajaro Valley Prevention and Student Assistance, Inc. (PVPSA) provides parent education training and K-12 alcohol and drug education in the Pajaro Valley Unified School District (PVUSD). The Santa Cruz City School District also has an active program of drug abuse prevention education through its Health and Student Assistance Program.
Beyond drug prevention education there are many troubled youth already in recovery from drug
addiction who need a drug-free school environment. Alternative drug-free schools in the county
are too few. For example, the County Office of Education (COE), in partnership with Youth
Services, Inc., operates Escuela Quetzal and Youth Experiencing Success (YES) as schools
providing a drug-free alternative education for those students in substance abuse recovery. The
need is much greater than these two schools can accommodate.
Persistent truancy is often the first sign of youth at risk for substance abuse. A review of program
information and contacts with program directors indicated that truancy programs operated
through the school districts and COE tend to vary in scope and effectiveness. Truancy programs
are operated in PVUSD, Santa Cruz City Schools and by COE for other school districts. The
PVUSD program also includes truancy mediation and truancy abatement. PVUSD, the Santa
Cruz City School District and COE have Student Attendance Review Boards (SARB). SARB
actions, combined with truancy mediation, seem to have a positive impact on the truant students
and their parents.
Two other important programs requiring greater support are middle school and high school
guidance counselors and nurses. These are vital resources in guiding students' career choices and
in detecting and assisting at-risk youth. These programs were seriously reduced during the hard
budget times of the last decade.
The Together For Youth/Unidos Para Nuestros Jovenes Collaborative (TFY) has determined that,
to be effective, youth drug-use prevention programs must offer positive alternatives, e.g.,
part-time employment and places to go with social and recreational activities to keep our young
people involved and interested, and out of harm's way - away from drug traffickers. They must be
kept busy - especially after school (and evening hours for teens). Youth tend to get into trouble if
idle after school - most youth crimes occur between 3 and 6 P.M.
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In addition to drug-use prevention education, drug-free schools, effective truancy reduction and
counseling, every young person should be able to choose from a continuum of vocational and
academic options to encourage and enable the pursuit of positive, drug-free life choices.
Vocational education programs at the high school level are varied in terms of opportunities and
options for students, depending on the individual high school.
Regional Occupational Program (ROP) in Santa Cruz County offers introductory courses for some trades, e.g., construction, auto shop, and agriculture. The Monterey Bay Regional Partnership in Santa Cruz and Monterey Counties, a school-to-career system designed to meet the skilled workforce needs of local employers in the 21st century is another example. This consortium has been funded with 2.4 million dollars to establish a Career Pathways program integrating academic and vocational education at each high school in the county.
Cisco Systems has teamed with Cabrillo College to teach computer networking and develop
high-tech skills that industry and Cisco will need in the future. Many trades offer well paying
jobs for non-college educated youth, but apprenticeships and training opportunities are limited.
Most trade unions do not offer youth training programs.
Many of our teens will not attend college or pursue vocational training after high school.
Approximately half of Santa Cruz County youth have not attended college. We must anticipate
that this trend will continue. Some will drop out of high school before graduation - they are,
perhaps, most at-risk.
Teens have unique needs. An after-school job can be very important to many teens. For some, an
after school job can be key to their own financial support, even to enable them to stay in school.
Regardless of reason, an after-school job helps a teenager become more confident and
responsible and sets him/her on a path to a more successful future. There are employment
programs that work for some, e.g., the Summer Youth Employment Program, the Garden Project
in Watsonville for juvenile probationers sponsored by the Community Action Board, and S.T.E.P.
in Santa Cruz. These programs do not reach an adequate number of students seeking
employment.
The Boys and Girls Club provides activities for some young people, especially pre-teens, but most
high school students do not want to be associated with younger children and their activities.
There are efforts under way and programs in a few communities, e.g., San Lorenzo Valley Teen
Center (The Barn), the Watsonville Youth Center, Family Center, and sports programs - indoor
soccer and boxing (Police Activities League -PAL). Funds have been
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appropriated for a teen center in the City of Santa Cruz, but an appropriate location is still being
researched by the City Parks and Recreation Department.
The Grand Jury recommends:
1) The TFY drug use prevention plan, as proposed to and accepted by the Board of Supervisors,
serve as the model for all County drug prevention programs.
2) The Board of Supervisors, and the city councils of Capitola, Santa Cruz, Scotts Valley and
Watsonville direct the appropriate department heads to work with Youth Services and the County
Office of Education to secure funds to continue and to expand the alternative drug free schools in
the county.
3) The County Office of Education and School District Boards of Santa Cruz County establish
policies that require Safe School plans to include a comprehensive drug education prevention
program for all schools and parent seminars with consideration given to the Parent Education
Series designed by Pajaro Valley Prevention and Student Assistance, Inc. (PVPSA) as a model.
4) The County Office of Education and Santa Cruz city school(s) board(s) establish, in
conjunction with the county District Attorney, truancy mediation to consider cases where there
has been failure to comply with conditions of the School Attendance and Review Board directives
and mandates.
5) The Board of Supervisors and city councils of Capitola, Santa Cruz and Scotts Valley direct
their law enforcement chiefs to establish comprehensive, coordinated and consistent truancy
abatement programs within their departments in support of the school districts' efforts to alleviate
truancy. Any truancy abatement program should emphasize the responsibility of the
parent/guardian and require reimbursement to the school district for financial losses due to
unauthorized absences, similar to the Monterey County model. The Watsonville City Council and
police chief should continue, and expand if necessary, their truancy abatement program, in
conjunction with the Pajaro Valley Unified School District.
6) Vocational education programs be expanded or developed to provide a continuum of courses,
both vocational and academic, to allow high school students to pursue their career interests.
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7) The County Office of Education and school district boards of Santa Cruz County make the
expansion of the counseling and nursing functions in middle and high schools a high priority.
8) The county agencies involved with youth and family issues develop and distribute and annually
update a Community Resource Guide for parents and service providers regarding substance abuse
prevention resources.
9) The county Human Resources Agency/Career Works continue to offer and secure funding to
expand their Independent Living Skills program for youth from foster care, group homes and
Juvenile Hall.
10) The TFY planning group continue to conduct frequent surveys and assess the needs 'county-wide'.
11) Program directors, agency heads and policymakers look to neighboring counties and
nationally for new ideas and programs. Youth Power (formerly Just Say No) is a national program
gaining acceptance in major cities around the country, including San Francisco, San Jose and
Salinas.
12) The anti-drug abuse programs for students, parents and school district staff, as offered by PVPSA, be reviewed as a model for programs throughout the county.
ENFORCEMENT
Youth substance abuse is an intense personal and family tragedy, with dimensions which impact
the entire community, particularly through associated criminal activity and health problems. The
criminal justice system has an important role in bringing juveniles and adults to a point where they
are compelled to make a decision to become clean and sober. Juveniles have a
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special need for strong enforcement as they lack the maturity to make responsible decisions to
avoid the dangers of substance abuse.
Dealers of illicit drugs are drawn to areas that are frequented by potential customers, such as
entertainment and retail areas. Enforcement activities should aim to aggressively suppress, disrupt
and discourage drug activity, thus making it more difficult for dealers to contact those youth who
are their prime clients.
Drug dealers who prey on the community, and all serious drug law violators, should be dealt with
to the maximum extent of the law. There is a general perception that drug offenders in Santa
Cruz county do not receive prosecution and sentencing equivalent to that in surrounding counties.
The belief of many law enforcement officers and others is that this has made the county
well-known as a low-risk, "preferred," place to engage in drug-related activity. They have
evidence that persons that have no other connection to the County have been coming into the
County to engage in drug activity.
Our community is missing opportunities to intervene early in the course of youth addiction. Too
often, youths are not arrested for being under the influence of drugs and/or alcohol, or they are
released (unless they have committed serious crimes) with few or no consequences. With limited
counseling and supervision resources, there is little attempt to change their behavior. Only when
the problem manifests itself as criminal behavior does the youth receive a minimal level of needed
attention, and, by then, the serious damage has been done. Even habitual offenders often slip
through the gaps of the system. The overcrowding at Juvenile Hall and the excessive case load of
the probation officers are important contributors to this problem.
Lack of funding for treatment programs is forcing the Probation Department and the courts to
assign juvenile offenders to "home supervision" with inadequate structure or supervision by the
agencies. The preference would be to see that the offender gets into a treatment and/or
counseling program.
Unstructured home supervision is not a proper response to substance abuse problems. Even the
best-intentioned parents/guardians usually have little or no knowledge of how to deal with
substance abuse. In addition, youth may be one of several generations of addicts within the family
and trapped in a no-win situation. Parents/guardians must be made aware of the types of
behaviors that lead to youth substance abuse, and assume responsibility for dealing with these
behaviors.
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The Grand Jury Recommends:
1) The community and its elected officials must express their support for aggressive law enforcement.
2) Parents/guardians be required to make restitution for the crimes committed by juveniles. The
juveniles themselves must face the consequences of their actions, in particular by participating in
the restitution.
3) All county law enforcement agencies and all those involved in the criminal justice system
conduct a thorough analysis of local arrest, prosecution, and sentencing statistics, and the relevant
policies and practices. The focus of this analysis be to determine factually if our county is
demonstrating the appropriate prosecution and sentencing that will deter illicit drug dealers.
4) All juveniles arrested while intoxicated be tested for the presence of illegal substances and
identified, including fingerprinting and photos, prior to release. Refusal to be tested lead to
consequences similar to those which apply to suspected drunk drivers.
5) A central registry of youths who have been involved in drug-related law enforcement actions,
through fingerprints and photos, be maintained to enhance the ability of the relevant authorities to
recognize serious and repeat offenders. The registry should include information not only on
arrests, but also on diversion efforts. This will enable more effective response to the problems of
the individuals involved, who sometimes fall through the gaps of the current system.
6) Each local law enforcement agency participate in a collaborative youthful offender diversion
program. By placing the ability to divert first-time offenders of non-violent crimes with local
police agencies, a large burden of supervision can be lifted from the Probation Department and
allow that agency to focus on the critical cases. This basic concept is already being utilized in
several local police agencies, but lacks a coordinated county-wide plan.
7) The Probation Department and Juvenile Hall review their procedures to find a way to radically
reduce unstructured "home supervision" for youth substance abusers. The time lapse between
arrest and the intake interview by the Probation Department be
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reduced. Since overcrowding is an issue at Juvenile Hall, the county consider expanding Juvenile
Hall or the use of an alternate facility to house youth substance abusers until adequate supervision
can be assured. A juvenile facility in South County is urgently needed.
8) A juvenile drug court be implemented so that youth substance abusers throughout the county
can benefit from the structure and engagement which it provides.
9) Expand the current teen peer court program operated by the COE.
10) The county make a higher priority of budget provisions to ensure that recommendations for probation placements and sentencing decisions of the courts are not unduly influenced by budgetary constraints.
TREATMENT
An unacceptable percentage of juveniles in Santa Cruz County are involved in substance abuse.
There is a need for a full continuum of services including intensive supervision, site-based
treatment (e.g., schools), residential treatment and counseling for the entire family. Treatment
services are also needed for at-risk youth not yet under the Juvenile Court system. There is also a
need for coordination and collaboration of efforts for securing funding and providing services.
The County High-Risk Drug Task Force has drafted plans for collaborative effort to obtain
funding for a the required continuum of treatment services, which can serve as a model for future
planning.
Juvenile treatment programs, under the authority of public agencies, rely solely on public and/or
grant funds for financing. The amounts of such public and grant funds are limited, thus, the
capacity of those treatment programs is inadequate. Agencies that provide similar services with
the county may find themselves in competition for funding sources during annual budget
preparation or when applying for state, federal or private grants. Grants, which are generally very
limited in life-cycle, often fall short in providing the long-term care and treatment needed to battle
addictive behavior.
Publicly funded residential substance abuse treatment programs are currently not available to the
youth in this community. Private sector health care is rarely an alternative for treatment of
juveniles, because the expense places it beyond the reach of most families. Health insurance plans
generally provide only a very small portion, if any, of these costs. If treatment services
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were available, there is a segment of the community which could afford to pay some or all of the
costs.
The Grand Jury Recommends:
1) The Board of Supervisors and city councils of Santa Cruz County direct the appropriate
department heads to work with the County High-Risk Drug Task Force to secure funds from all
sources (including appropriations from the General Fund) for a comprehensive continuum of
juvenile drug treatment services including early intervention and a secure residential long-term
treatment center.
2) The Board of Supervisors fund treatment services, including a detox facility for drug- involved
juveniles being held at Juvenile Hall.
3) The county Health Services Agency, Alcohol and Drug Program Administration, research and,
if indicated, establish a rapid detox program for drug and alcohol-addicted juveniles.
4) Treatment programs for juveniles be made available, under the management of the public
agencies, supported by fees paid by the juveniles receiving treatment or by their parents/guardians.
Flexible treatment options be made available so that families can obtain effective treatment within
their ability to pay.
5) The Board of Supervisors maintain funding beyond the current budget year to implement the
recommendations of the County High-Risk Drug Task Force.
COOPERATION AND COORDINATION
The Grand Jury is greatly impressed with the dedication and commitment shown by the people
addressing youth substance abuse. There appears to be a consensus among these people
regarding the strategies needed to deal with this problem. That consensus revolves around a
continuum of approaches involving prevention, enforcement and treatment, all of which must be
coordinated and linked to achieve the desired end, the reduction in the tragic damage done to
young lives by substance abuse.
An encouraging start has been made in coordinating county-wide efforts. The Together for
Youth/Unidos Para Nuestros Jovenes Collaborative (TFY) has prepared a comprehensive plan to
reduce alcohol and other drug use among youth in Santa Cruz County. It was started less than
two years ago, hosted by United Way leaders. Planning group members include representatives of
county agencies,
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school and city officials, community leaders and volunteers all working together in efforts to
define the major issues and solutions to the problems of drugs and youth in Santa Cruz County.
The efforts of TFY are complemented by those of the Criminal Justice Council in the area of
enforcement and the County High-Risk Drug Task Force in the area of treatment.
The Grand Jury Recommends:
1) County-wide standards be established in the fight against youth substance abuse. These
standards must reflect one attitude and one message. That message must be a clear recognition of
the dangers of youth substance abuse and clear support for the young victims, and rejection and
punishment for the victimizers. All government agencies and community leaders must join this
fight. The Board of Supervisors must take a visible leadership role in the stimulation and
coordination of this effort.
2) The Board of Supervisors and the city councils of Capitola, Santa Cruz, Scotts Valley and
Watsonville appropriate funds to support the implementation of the Comprehensive Substance
Abuse Prevention Plan proposed in April 1997 by TFY.
3) The TFY plan be used to demonstrate and publicize county unity. It be presented to the media and to state and federal government agencies responsible for allocating funds as well as to private foundations who award financial grants. Grant writers from all involved city and county departments and agencies work together to present the most effective cases possible. Funding from taxes and all government sources be coordinated.
CONCLUSION
The Grand Jury acknowledges that there will be budgetary, political and legal issues that must be considered when developing any program or public policy strategy.
All of these matters, and many more, will take time, effort and commitment on the part of the entire community.
The most critical part of the equation is that the citizens of Santa Cruz County must consciously decide that they will no longer tolerate the sale and use of illicit drugs.
The community must proclaim that it values, above all else, the health and welfare of its youth.
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THE YOUTH COALITION AND YES SCHOOL RECOMMENDATIONS
Recommendations to Grand Jury on
Greater Youth Involvement in Addressing Youth Substance Abuse
compiled by a youth-focus group from
Youth Coalition Santa Cruz (YCSC) and the Yes School
1. In order for programs to be effective in reducing alcohol and drug use among young people,
youth must be involved on all levels in projects designed to help them, particularly in areas of
prevention and treatment.
Recommendation: Recognize youth as resources in the report. For example, add: "In order to make an impact on youth substance abuse, we must recognize youth as resources in addressing the problem. We recommend that young people be involved on all levels in youth-serving programs, including planning, decision-making, implementation and evaluation. In the event that this is not possible, we encourage organizations to solicit youth input on their programs as much as possible."
2. Decisions are made about young people without their input or vote. This fosters a sense of
disempowerment among youth, reinforces a system where adults make decisions for them, and
discourages young people from taking an active role in issues that are pertinent to their lives.
Recommendation: Ensure youth representation on the Juvenile Justice Commission and create youth advisory boards to City Councils and the Board of Supervisors.
3.Young people going through the juvenile justice system and treatment often find that facing
many adult advisors is difficult. Peer support in court logistics and treatment would be highly
beneficial.
Recommendation: Train teens as peer counselors, court advocates, and educators.
Recommendation: Encourage more NA and AA youth meetings run by youth as well as other
youth-run support groups
4. Many young people want to be involved in reducing drug and alcohol use among their peers,
but they don't know where or how to get involved.
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Recommendation: Provide resource numbers and information for youth who want to take
initiative in addressing youth substance use.
Other important thoughts we had:
1. Punishment and encouragement for healthy lifestyles are not simultaneously possible.
Recommendation: Ensure that youth treatment programs are supportive rather than blaming; make it easy for young people to ask for help rather than be faced with punitive consequences. Make resource numbers for youth seeking help widely available.
2. Drug and alcohol prevention education is not very effective as it is currently implemented.
Recommendation: Provide reality-based education rather than fear-based education. This is more respectful toward youth and will therefore be received more successfully, and it advocates that they take responsibility for their actions without fostering blame, shame or isolation.
3. Given sufficient resources and support, young people are capable of making healthy
decisions. A statement in the Grand Jury Report underestimates the power of healthy
decision-making among youth.
Recommendation: Remove the following lines under "Enforcement": "Juveniles have a special
need for strong enforcement as they lack the maturity to make responsible decisions to avoid the
dangers of substance abuse."
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SANTA CRUZ COUNTY YOUTH SURVEY, 1998
The charts on the following pages present data from the 1998 Santa Cruz County Youth Survey.
This survey was first implemented in the fall of 1994, with re-implementations in 1996 and 1998.
The purpose of the survey was to obtain accurate information about patterns of student alcohol
and other drug use in Santa Cruz County. This information will be used to increase the
effectiveness of existing programs, guide the development of new prevention and intervention
efforts, raise community awareness and support local efforts to win grants and other competitive
funding for services.
A random sampling of students in grades 8, 9 and 11 from throughout the county participated in
the survey (the 1994 and 1996 survey also included the 6th grade). A total of 4,049 students
participated in the 1998 survey, representing 47% of the total population of the grades surveyed.
Positive parental permission was required for students to take the survey.
The survey instrument used was the American drug and Alcohol Survey, a commercially available
survey produced by the rocky Mountain Behavioral Science Institute (RMBSI) in Fort Collins,
Colorado. The survey has been in use nationally for over five years, and has been administered to
over 650,000 students. Detailed information about the reliability and validity of this survey is
available in the article "Adolescent drug Use: Findings of National and Local Surveys." in Vol. 58
of the Journal of Consulting and Clinical Psychology (1990). The survey is also reviewed in the
monograph "Surveys of Student Alcohol and Other Drug Use: A Consumer's Guide," second
edition. September 1991, by John Pollard, Row Gabriel and Judith Arter, published by the
Western Regional Center for Drug-free Schools and Communities.
The survey was administered anonymously during regular class time. No personally identifiable
or traceable information was collected. Surveys were completed by students and placed in
envelopes that were sealed and shipped directly to RMBSI for tabulation and analysis. This
analysis included a number of techniques to screen out exaggerated, inconsistent or erroneous
responses. The survey includes "fake" drugs and other checks to detect exaggeration. Key
questions are purposely repeated on the survey to detect random answering and other
inconsistencies: 40 such consistency checks are made on each survey. Surveys that showed signs
of exaggeration or more than three inconsistent responses were removed before survey results
were compiled. Less than 4% of Santa Cruz County youth surveys were removed for
exaggeration or inconsistency.
Information from the 1998 survey is compared to survey results from 1994 and 1996 to view patterns and trends over time.
PLEASE NOTE: Charts have not been included in this document.
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TOGETHER FOR YOUTH/UNIDA PARA NUESTROS
JOVENES
PLAN TO REDUCE USE OF HEROIN AND OTHER EMERGING DRUGS BY THE
YOUTH OF SANTA CRUZ COUNTY
Santa Cruz County Office of Education
Recommendations to Call For Action
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