Scotts Valley is a full service city of approximately 10,500 residents. It is the gateway to the San Lorenzo Valley. The City Manager, Mayor and Community Development Director were interviewed. Documents such as the General Plan, Budget and City of Scotts Valley 1999 Annual Report were reviewed.

FINDINGS:

The Scotts Valley Drive Reconstruction project was completed in 1999. Though completed slightly over budget due to some unforeseen problems, the project has made Scotts Valley Drive a safer corridor and has helped beautify the city. Total project cost was $11.5 million.

Glenwood Drive improvements were completed within the time required for opening the new Scotts Valley High School. The City received $400,000 for road and sidewalk improvements.

The Emerald Hill affordable housing project was opened in December, 1999. The affordable housing agreement required that 22 of the 46 affordable apartments be held at very low rates and the others at rents affordable to very low income families. The agreement also included a loan of $1,289,000 from the City Redevelopment Agency to purchase the property.

Park improvements, including Hocus Pocus Park Phase II have been completed. Siltanen Park, at the north end of the city, is used for adult and youth softball leagues. Skypark at the former airport site has two fields for soccer and two play areas for young children.

The City has purchased two acres adjacent to Skypark for the purpose of building a community center. Additionally, a proposed 5000 square foot building would serve as a teen drop-in center. Amenities will include a juice bar, fitness center, gymnasium, kitchen and a stage for community activities and stage productions.

Water supply is a concern for the City. A tertiary plant was completed this year, and, pending permits, will be able to deliver reclaimed water.

The City applied for and received a Transportation Enhancement Activities (TEA) grant to landscape the medians on Scotts Valley Drive and Mt. Hermon Road.

COMMENDATION:

The City of Scotts Valley has done an exemplary job of securing grants for various projects in the City.

RECOMMENDATIONS:

1. Maximize efforts to establish a center for teens in the City.

2. Implement the economic development plan for the downtown area.

3. Complete the Skypark long range master plan including the community center.

RESPONSE REQUIRED: Yes (see page 91 for instructions)

Scotts Valley City Council: 60 days

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LOCAL AGENCY FORMATION COMMISSION

Annexation Process

Manabe-Burgstrom Reorganization

OBJECTIVE:

To review the Local Agency Formation Commission (LAFCO) application process for the Manabe-Burgstrom annexation application as presented by the City of Watsonville (See Appendix).

BACKGROUND:

The Manabe-Burgstrom Reorganization application submitted by the City of Watsonville (herein referred to as City) was first presented in 1977 as part of a larger annexation package involving 681 acres. This original proposal failed, setting into motion subsequent applications affecting less acreage.

The City then applied to LAFCO for permission to include 219 acres of land in the vicinity of Riverside Drive and Highway 1 within the City's sphere of influence. In 1997, the LAFCO board voted to add to the City's sphere of influence the Manabe-Burgstrom site, consisting of approximately 120 acres. The board attached three conditions to its sphere approval that required the City to perform the following: consider rezoning and using small parcels of vacant land within the current city limits for industrial use; develop a plan to implement recommendations of a study group; and, obtain prior consent from the county and the California Coastal Commission before submitting any annexation plans to LAFCO. These three LAFCO conditions imposed several tasks on the City. The City returned to LAFCO in July of 1999 with documentation and testimony showing work completed or commitment toward fulfillment of these tasks.

The City filed suit against LAFCO over the three conditions imposed on future annexation of land in the Riverside Drive area. The City said the conditions were unacceptable because: 1) they would effectively give veto power over the City's plans to agencies beyond the control of Watsonville voters; 2) they were so vaguely worded that the City could try in good faith for an eternity to meet them and still get nowhere; and, 3) they were in violation of state land-use law and represented an overstepping of LAFCO's legitimate authority.

FINDINGS:

Review of documentation generated by the Manabe-Burgstrom annexation application revealed a complex and costly process. An inordinate amount of time and effort was required of all parties to respond to conditions, standards and policies, even though they are narrowly defined. LAFCO commissioner statements made during the August 3, 1999 public hearing include a variety of perspectives that make minimal reference to LAFCO standards and policies required for application evaluation.

RECOMMENDATIONS:

1. Consistently apply LAFCO policies and standards when considering annexation applications.

2. Implement LAFCO policy through the consistent and objective review of relevant studies and reports.

3. Streamline the LAFCO annexation process in order to alleviate unnecessary costs to the municipalities affected.

RESPONSE REQUIRED: Yes (see page 91 for instructions)

LAFCO Board of Commissioners: 60 days

Executive Officer, LAFCO: 60 days

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BLAINE STREET

WOMEN'S FACILITY

OBJECTIVE:

To fulfill the Civil Grand Jury's responsibility to annually review 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 Sheriff-Coroner's Detention Bureau and is located next to the Main Jail facility in the City of Santa Cruz. Women who are classified as "low security risks" are considered for transfer to this facility. Other placement considerations include the nature of the criminal offense and the length of sentence to be served.

FINDINGS:

The facility has four housing units that contain a total of 22 double-bunked rooms. Each room has a desk, bulletin board and small lockers for personal items. There are three sinks, a toilet and shower in each housing unit. Recreation, exercise, crafts and library/classroom areas are also in the facility. Using a small modern kitchen, the women prepare meals with food components supplied by the Main Jail facility. The Health Services Agency (HSA) of Santa Cruz County generates all menus.

The facility has several areas of high security risk. Fencing is minimal and the facility is open to the street. The parking lot creates the risk of trespassing, smuggling and loitering. Since 1997, three video surveillance cameras and split-screen monitors have been installed. A lack of funding has delayed installation of the remaining video equipment already purchased. Installation of a generator was accomplished in August as approved by the Santa Cruz County Board of Supervisors in compliance with California Government Code.

Inmates have structured work assignments or jobs within the facility. They are responsible for all maintenance and cleaning. The facility is well maintained and very clean. There are several work-furlough inmates housed at the facility. During the day, the Probation Department is responsible for the supervision of these inmates at their work sites within the community. The inmates report back to Blaine Street at the end of their work shift.

Inmate population primarily consists of drug and alcohol offenders. Four years ago, substance abuse counseling was made available. Random drug testing is conducted on about 20 inmates a month. An inmate must be drug and alcohol free while in this facility. Detoxification is only available at the Main Jail.

Since 1996, the Board of Supervisors has closely monitored the number of educational and vocational programs offered to inmates at the facility. Due to signs of unbalanced numbers of courses offered to female inmates when compared to courses offered at the male Rountree facility, the Detention Bureau was charged with determining the needs of Blaine Street inmates and to implement programs accordingly. The Blaine Street facility presently offers classes that effectively assist female inmates. Current and former inmates attribute their determination to succeed and success when released from custody to the many programs offered at the facility. Courses include: Pajaro Valley Prevention and Substance Abuse; Parenting and Education; Job and Career Development; General Education Degree (GED) and computer lab; Getting Out and Staying Out; and art.

Visitation is once a week for two hours per inmate, either on 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. The Detention Officer on duty screens visitors prior to visitation.

There is minimal access to medical services at the facility. A nurse conducts daily morning visits to the facility. The Detention Officer on duty distributes non-narcotic and non-psychiatric medications, and under supervision, inmates administer their own medications. Other medical needs are met by an individual medical response or by the inmate being escorted to the Main Jail where more extensive medical services are available.

Staff consists of one assigned Supervising Detention Officer and two Detention Officer positions assigned on a rotating basis from the Main Jail staff. Scheduling does not allow for more than one officer on duty at any given time, unless the Supervising Detention Officer is on site. During evenings and on weekends, only one officer is on duty for the entire facility. A single staff member may not effectively monitor inmate safety and conduct and still provide services necessary to efficiently operate the facility.

Staff turnover remains high. Sixty staff persons have left in the last three years with a high percentage of the Detention Officers becoming Santa Cruz County Sheriff's Deputies. The starting salary for a Detention Officer is $15.22 per hour plus benefits. It costs Santa Cruz County approximately $17,000 to train a new Detention Officer. Instruction involves 12 weeks of in-house training, which includes job shadowing, followed by four weeks at a Correctional Academy.

RECOMMENDATIONS:

1. Staff positions to full complement to provide relief for vacations, training and illness.

2. Fund additional bilingual Detention Officers.

3. Provide a bonus program to enhance pay and benefits to ease the attrition rate.

4. Establish a competitive salary schedule for the Sheriff-Coroner's Office, in line with other Central Coast counties.

RESPONSE REQUIRED: Yes (see page 91 for instructions)

Board of Supervisors: 60 days

Sheriff's Department: 60 days

County Administrative Officer: 60 days

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JUVENILE HALL

OBJECTIVE:

To fulfill the Civil Grand Jury's responsibility to annually review the detention facilities in Santa Cruz County.

BACKGROUND:

The Juvenile Hall is located on Graham Hill Road north of Santa Cruz. Division Director Jim Rapoza, who had been at the facility since 1971, retired in March 2000. Michelle Finch has been named the new Division Director. Juvenile Hall was built in 1968 and there have been few physical changes. Ten rooms were added in 1971 to create "B" unit, bringing the capacity to 42 beds. Eight years ago, the Redwoods, an 18-bed residential treatment facility was moved out of the central facility onto the surrounding grounds.

FINDINGS:

Youths in the Santa Cruz County Juvenile Justice System suffer from a high rate of gang involvement and heroin use as compared to other communities in California. In recognition of these problems, Santa Cruz County participates as one of 12 state-funded gang violence suppression projects. With the ward population growing and gang tension increasing, the need to solve the crowding and gang problems became a major concern for those working within the Juvenile Hall system. For several years the community and county government addressed the issue of overcrowding. A classification system for the youths was developed in 1995 and it is working well given the facility's space limitations.

Santa Cruz County Juvenile Hall has become a "neutral zone" for juvenile gangs. The wards of the Court recognize Juvenile Hall as a place where they are safe from gang attacks and recruitment. Graffiti is controlled, fights are at a minimum and staff normally feels safe. The Juvenile Hall facility provides youths the opportunities to learn valuable life skills, earn a high school diploma, begin the journey of self-development, and discover an awareness of the harm they have done to their families, communities and victims.

The average population in 1999-2000 was 38.8 youths. The population ages range from 12 to 18 and are divided into the two units. In "A" unit are the older, more sophisticated boys who have committed more serious crimes, and "B" unit houses girls and younger boys. All rooms are single, though at times of overcrowding, residents double up with one sleeping on a mat on the floor. The rooms are small with a sink and drinking fountain. Each room is illuminated all night with a four-watt bulb. In 1995, a courtroom was added to the facility. Youths follow a daily schedule that begins with wake-up at 6 a.m., breakfast and start of classes at 8:30 a.m., lunch at noon, and classes ending around 2:45 p.m. Scheduled activities in "A" and "B" unit are from 3 to 4:30 p.m., dinner is 5 p.m. with evening hours dedicated to sports, board games and church groups. Youths return to their rooms with lights out by 9:30 p.m. It costs $1.65 per day to feed the youths breakfast, lunch and dinner. Meals are supervised by the County Health Services Agency. Visiting days are Tuesdays and Saturdays for one unit, and Wednesdays and Sundays for the other unit.

Even though the facility is nearly 30 years old, it has a fresh, clean appearance. The biggest problem staff faces is finding the space and time to implement all of the programs they would like to offer. Educational and recreational programming is interesting and relevant and not just a means by which to keep the youths busy. Implementation of the classification system has allowed the facility to be much more flexible and creative in the types of activities presented to the youths. Because of the system, the youths are able to leave the facility to use an adjacent County park baseball diamond for recreation and to use the large recreation areas outside the secure courtyard to play volleyball. These areas were completely unused for several years prior to classification.

The "gang free zone" philosophy has allowed Juvenile Hall, with the cooperation of the Santa Cruz County Office of Education, to depart from a "one room schoolhouse" approach to a station-teaching approach. This resembles a regular high school where students move from one classroom to another for different subjects, greatly enhancing the education program. The Western Association of Schools and Colleges accredits the program. The education program has helped improve the use of the facility and strengthen the staff. The General Education Diploma (GED) program began three years ago and youths are allowed to graduate from "Hartman School". It is a very special event when a youth graduates from the Juvenile Hall school.

The staff includes ten men and seven women; nine are bilingual, while eight have worked at the facility less than one year. The starting pay is $12 per hour and there is constant turnover. Two Senior Group Supervisors are responsible for the daily programming for each of the units. Their duties include developing a weekly calendar of programs for each unit. The supervisors are responsible for inviting and arranging guest speakers, musical groups, and play productions. Programs have been expanded to include meditation, yoga, instruction by a chess instructor, writing classes, victim awareness, anger management, job readiness, Planned Parenthood discussions, Alcoholics Anonymous and Narcotics Anonymous.

The facility has nine infrastructure improvements planned at a cost of $818,000. Santa Cruz County is allocating $700,000. The remaining $118,000, will be allocated from County resources. Future projects include a 1,050-square foot medical unit near the "A" unit with a separate examination room, restroom and mental health area; shower room renovation; changes in the direction of the swing of room doors to allow for Port-A-Bunks; improved security fencing near the Redwoods mental health facility; replacement of all lighting; removal and replacement of floor tiles containing asbestos; and, replacement of hot and cold water pipes.

Medical staff is available 11 hours per day, 77 hours per week for nursing and 64 hours per week of mental health staffing. The facility will not accept youths with serious medical conditions. A substance abuse specialist will join the staff in 2000.

RECOMMENDATIONS:

1. Staff positions to full complement to provide relief for vacations, training and illness.

2. Provide a bonus program to enhance pay and benefits to ease the attrition rate.

3. Establish a competitive salary schedule for the County Probation Department Juvenile Hall staff, in line with other Central Coast counties.

4. Fund construction of an indoor gymnasium.

5. Fund 24-hour nursing staff.

RESPONSE REQUIRED: Yes. (see page 91 for instructions)

Board of Supervisors: 60 days

Sheriff's Department: 60 days

County Administrative Officer: 60 days

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MAIN JAIL

WATER STREET FACILITY

OBJECTIVE:

To fulfill the Civil Grand Jury's responsibility to annually review 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-Coroner's Detention Bureau. 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 to house 249 inmates.

FINDINGS:

The Santa Cruz County detention system includes the Main Jail, the Blaine Street Facility for Women in the City of Santa Cruz, and the Rountree Medium and Minimum Detention Facilities in the South County near Watsonville. The California State Board of Corrections conducts inspections of the facilities biannually.

The Main Jail operates on a $13 million budget. The County is reimbursed $8 million from internally generated revenues, federal and state funding and from grants. It costs $55 a day to house and feed an inmate.

Improvements were made to the facility using a $990,000 grant from the State Board of Corrections to upgrade the electronic security system. The new programmable logic control system allows remote shutdown of the facilities. Utilizing a $170,000 grant, improvements to enhance the housing area showers and visiting areas will be completed in spring 2000.

There is a fully-equipped courtroom on the premises that is underutilized. A law library is also available to inmates. The facility's computer room is not being utilized because of lack of staffing to supervise its use. In the past, there has been misuse of computers by inmates.

Drug and alcohol abuse remain the leading crimes involving incarcerated inmates. Officers continue to use breath analyzers to obtain more accurate readings on Driving Under Influence offenders during booking. A growing proportion of arrestees are younger and more violent. There is a presence of prison-based gangs, and suspected gang members are segregated into different housing areas.

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. Male and female inmates are confined in separate housing areas with an average incarceration stay of 20 days. The Sheriff's Deputies and Detention Officers do not carry firearms. The facility has 400 bunks and the average daily population in 1999 in the Main Jail facility was 300. The average daily population at all detention facilities was 600. The Sheriff's Office instituted a wrist and photo identification system for all inmates in 1998.

Kitchen facilities are adequate and inmates are fed in their housing areas rather than in a central area. It costs $1 million a year to feed the inmate population, averaging $1.00 per meal. The Health Services Agency (HSA) oversees and supervises the daily menu for inmates.

The Main Jail has not experienced a successful escape in a number of years. The Main Jail population increases during the summer months and decreases during the winter months. Inmates can remain in the jail for up to one year. Female inmates housed at Main Jail comprise about 8 percent of the total inmate population at all facilities.

HSA is contracted 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 charged with a crime.

Staffing currently averages 117 correctional officers at the four county detention facilities. The staff at the Main Jail includes a Lieutenant, Sheriff's Deputies, Detention Officers, Mental Health Officers, and a medical team consisting of a physician, dentist and nurse. Detention Officers face a range of issues on a daily basis: contagious disease control (hepatitis, tuberculosis and HIV); suicide attempts, especially by drug users and third-strike inmates; contraband drugs, tobacco, and handcuff keys; and, attempted escapes, primarily when inmates are transferred from the jail to the Government Center and vice-versa.

Staff turnover remains high. Sixty staff persons have left in the last three years with a high percentage of the Detention Officers becoming Santa Cruz County Sheriff's Deputies. The starting salary for a Detention Officer is $15.22 per hour plus benefits. It costs Santa Cruz County approximately $17,000 to train a new Detention Officer. Officer preparation includes 12 weeks of in-house training, which includes job shadowing, followed by four weeks spent at a Correctional Academy.

RECOMMENDATIONS:

1. Staff positions to full complement to provide relief for vacations, training and illness.

2. Fund additional bilingual Detention Officers.

3. Provide a bonus program to enhance pay and benefits to ease the attrition rate.

4. Establish a competitive salary schedule for the Sheriff-Coroner's Office, in line with other Central Coast counties.

RESPONSE REQUIRED: Yes. (see page 91 for instructions)

Board of Supervisors: 60 days

Sheriff's Department: 60 days

County Administrative Officer: 60 days

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ROUNTREE MEDIUM SECURITY

DETENTION FACILITY

OBJECTIVE:

To fulfill the Civil Grand Jury's responsibility to annually review the detention facilities in Santa Cruz County.

BACKGROUND:

The medium security facility is located at 100 Rountree Lane off Buena Vista Drive in Watsonville. This facility was opened in June 1996 and is operated by the Santa Cruz County Sheriff-Coroner's Detention Bureau.

FINDINGS:

Placement of male inmates at the medium security facility is determined at the Main Jail.

Detention/Classification officers are responsible for handling the disciplinary actions, and have the ability to reclassify inmates as warranted. Classification at this complex is ongoing and helps facilitate inmate movement between the three detention facilities (Main Jail, Medium Security and Minimum Security).

This facility provides needed overcrowding relief for the Main Jail. The average length of stay is 90 to 120 days and the maximum length of stay is up to 365 days. To be eligible for this facility, inmates must qualify based on a point system at the Main Jail. Inmates who receive 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. After serving their sentences, illegal aliens are held for a maximum of 48 hours and then released if not taken into custody by the Immigration and Naturalization Service (INS).

The Rountree facility is rated by the State Board of Corrections to house 96 inmates. There are two separate dormitory-style housing units. Funding and staffing to open the second housing unit was approved by the Board of Supervisors in 1998, and the unit opened in February 1999. Each unit consists of six sleeping bays and one bay is used as a television area. Each unit has a common-use toilet/shower area and a small meeting room. Visitor rooms are available, but only by appointment. The Medium Security Detention Facility is self-contained with its own generator and is supplied by well water. The facility has a septic tank for sewage.

A Detention Officer's station is located in each housing unit with a central monitoring system, enabling direct supervision 24 hours a day. The nurse's station is staffed by a Registered Nurse and provides medical services for inmates four hours in the morning and four hours in the afternoon for a total of 40 hours a week. The Board of Supervisors funded the nurse's position in 1998 and the position was filled in 1999. There are three examination rooms available for use.

Classrooms are available for inmates to study and participate in programs such as Alcoholics Anonymous, Narcotics Anonymous, HIV Class, English as a Second Language, Substance Abuse, Job Skills, and Bible Study. A law library is also available to inmates. Instruction is provided by a number of agencies, including the Pajaro Valley Unified School District's Adult Education program and Santa Cruz County Office of Education's Regional Occupational Program. Inmates are required to attend classes and can earn certificates for completing these programs. Some programs offer graduation ceremonies at the facility.

All meals for the medium and minimum facilities are prepared in the state-of-the-art stainless steel kitchen at the medium facility. Inmates in the minimum facility taking classes in food preparation assist in preparing meals. The meals appear to be well balanced. The food services staff has a barbecue pit for cooking use if the power is lost. The kitchen floor is worn and needs replacement. The Board of Supervisors has approved funding to replace the floor, which has yet to be completed. Inmates have structured chores and are responsible for all janitorial and landscaping services. The facility is exceptionally clean and well maintained.

Staff turnover remains high. Sixty staff persons have left in the last three years with a high percentage of the Detention Officers becoming Santa Cruz County Sheriff's Deputies. The starting salary for a Detention Officer is $15.22 per hour plus benefits. It costs Santa Cruz County approximately $17,000 to train a new Detention Officer. Officer preparation includes 12 weeks of in-house training, which includes job shadowing, followed by four weeks spent at a Correctional Academy.

RECOMMENDATIONS:

1. Replace worn flooring in kitchen. Funding has been approved.

2. Staff positions to full complement to provide relief for vacations, training and illness.

3. Fund additional bilingual Correctional Officers.

4. Provide a bonus program to enhance pay and benefits to ease the attrition rate.

5. Establish a competitive salary schedule for the Sheriff-Coroner's Office, in line with other Central Coast counties.

RESPONSE REQUIRED: Yes. (see page 91 for instructions)

Board of Supervisors: 60 days

Sheriff's Department: 60 days

County Administrative Officer: 60 days

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CITY OF SANTA CRUZ POLICE DEPARTMENT

NEW HEADQUARTERS

OBJECTIVE:

To review and tour the new Santa Cruz City Police Department Headquarters.

BACKGROUND:

The department employs 138 persons, including 96 police officers. There are nine to ten officers per shift. The old, cramped police department headquarters consisted of 12,000 square feet, lacked independent interview rooms, office space for officers and special divisions. The new headquarters is located on Center Street near Laurel Street. Due to construction problems involving window installations and crumbling stucco on the exterior of the building, the headquarters was not operational at the time of the tour. The headquarters opened Nov. 23, 1999.

FINDINGS:

Plans for the new police facility began five years ago. Construction began in August 1997 and the building was scheduled for a January 1999 opening. Delays were caused by a union strike, the departure of an electrical contractor, weather and the workmanship problems. The project involved the review of 22 facilities around the state before a project architect was selected from Oakland, California. The new facility was designed to be a functional office, satisfying the internal workings of the department. According to officials, the purpose was to change the image of the station from being a place of crisis to that of being a location for public services. The City sought out community participation in designing the facility.

The facility includes amenities designed to lift spirits of the staff and officers as well as provide necessary services, integrating an open and airy atmosphere with a pleasing external structure. Upon entrance to the headquarters, citizens will come across a floor inlay depicting the emblem for the city of Santa Cruz and local law enforcement. Display cases are located by the stairwell, designed and set up by local historian Charles Prentis. Incorporated into the facility is a Community Room to be used as a staff training room as well as an emergency operations center in the event of a natural disaster. The dual use of the room will provide staff with sought-after public interaction. The new two-story headquarters encompasses 35,000-square-feet, and cost approximately $12.5 million at its completion.

The facility's office space was designed to allow for future staff expansion. The facility also includes a briefing room, kennels for police dogs, bike and trailer storage, indoor shooting range, investigation cubicles, evidence room, garage, lockers including a refrigerated locker, physical fitness gym, personal lockers and several sleeping rooms for officers between shifts. The evidence room is equipped with several high-tech instruments to handle dangerous materials and evidence. Only three staff members in the department have keys to the evidence room, garage and refrigerated locker. The storage lockers and freezer are triple alarmed and separate from the overall alarm system. An outside security firm has been contracted to monitor these alarm systems.

Safety features have been incorporated from the ground up. The first floor of the building is built higher than street level to deter acts of terrorism. Video cameras will operate 24-hours a day and are positioned about the exterior of the building. New interview rooms, lacking in the old headquarters, will provide privacy for individuals being interviewed or detained. The front office is staffed 9:00 a.m. 5:00 p.m., Monday through Friday. An intercom phone, located outside the front entrance, allows for public admittance after hours.

The Sexual Assault/Child Assault Investigating Units now provides a room specially furnished to accommodate victims and families. A $10,000 donation from the Shirley Foundation created the opportunity to furnish this room with comfortable chairs and sofa, as well as toys and books for children.

Police records will go on-line. At the former police headquarters, officers had limited computer access, making the retrieval of police records a cumbersome task. The new facility will provide all officers access to computers. Records will be run 24 hours per day, with data transferred to CD-ROM from the file server every 90 days.

The new Records Management System (RMS) was developed and is being installed by a local company. Funding for this purchase included City redevelopment money, earthquake relief monies, and City General and Narcotics Seizure funds. At this time, the cities of Capitola, Santa Cruz, Scotts Valley and Watsonville are jointly purchasing the RMS system to allow for countywide access of records. It is expected this move will reduce paperwork redundancy and improve efficiency and cost effectiveness. Department officials explained there are five different record systems used by Santa Cruz County. The hope is that within the coming year the County will agree to join the city's system, producing coordinated record management throughout the county. Augmenting the RMS system will be a $450,000 mobile terminal system, which will eventually have the capacity to access FBI fingerprinting databases. Funds for this mobile system were obtained through grants.

No response required.

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SANTA CRUZ COUNTY SHERIFF'S

COMMUNITY SERVICE CENTERS

OBJECTIVE:

To observe the procedures and processes at the Santa Cruz County Sheriff's Office Community Service Centers in San Lorenzo Valley, Live Oak, Aptos and Freedom.

BACKGROUND:

The four centers opened in 1996 and are local and accessible extensions of the Sheriff's Office. These centers offer residents the opportunity to speak directly to a Sheriff's Deputy to voice neighborhood concerns. The purpose of these centers is to develop a positive relationship within the communities they serve. Working in partnership with common goals and complimentary strategies, law enforcement officials and the community can deal more effectively and efficiently with crime than either can do on their own. Space and equipment were donated and the centers opened with no funding from Santa Cruz County except for telephones and electricity. Currently the Sheriff's Office pays a rental fee at each of the centers.

A Sheriff's Sergeant is assigned to each center and is responsible for recruiting and training of citizen volunteers. Each volunteer works a four-hour shift and there are approximately 60 to 70 volunteers at the four centers. Citizens who volunteer play an instrumental role in improving the quality of life in their communities. The Sheriff's Office plans to create a new paid position of Volunteer Coordinator to oversee the volunteer corps. Sheriff's Deputies on patrol use the centers in their "beat" areas write reports, make calls, and do research using the Sheriff's Office computer database.

Each center has a Citizen Patrol vehicle that is available to volunteers for parking enforcement and other non-criminal activities. Communications to the Sheriff's Office are handled by three Community Service Officers (CSOs) who are trained to evaluate concerns by callers: Two of the CSOs work in the San Lorenzo Valley Community Service Center and the third works on the third floor of the County Government Center. Their training consists of Netcom Academy, a communication's school, and three months of field training. They are on duty Monday through Friday from 8:00 a.m. to 5:00 p.m.

The Community Service Centers of the Sheriffs Department are responsible for reviewing school safety planning in conjunction with schools themselves. The school resource officers, currently assigned to all the high schools in the county, are an important part of this review process, as well as providing vital monitoring and early warning functions. The Sheriff's Department is planning to extend the school resource officer program to the junior high schools.

FINDINGS:

San Lorenzo Valley Sheriff's Center: The building is new and was occupied for only a few weeks at the time of our visit. Hours are Monday to Friday, 8:00 a.m. to 4:00 p.m. and 4:00 p.m. to 8:00 p.m. on Thursdays. The center averaged three to four visitors a day at the former office on Highway 9. The average jumped to 10-12 visitors a day in the new location on Graham Hill Road at Zayante Road. They do fingerprinting at no charge for non-profit organizations and childcare workers. The center receives calls for road closures and traffic hazards during the winter months. The building is equipped with a generator. The Santa Cruz County Planning Department shares the building and utilizes the facility as a command post during storm emergencies. The staff recently received a three-year $300,000 drug suppression grant for junior high and high school youth apprehension, education and treatment. The funds are also being used for a drug rehabilitation program coordinated by TRIAD.

Sheriff's Live Oak Service Center: This is the busiest of the four centers and is located on the corner of 17th Avenue and Felt Street. It has the highest housing density of the four areas covered by the centers. Shoreline Middle School, Simpkins Swim Center and the Central County Fire Department are nearby. The center is responsible for the Mid-County area. The center offers bicycle registration, free McDonald's coupons to junior high students wearing bicycle helmets, and holds pizza feasts for neighborhood children. The building is very open and user-friendly. As at SLV, this and the other locations, can be command centers if needed. The volunteers ages range from 18 to 80, and some are Spanish-speaking. The center has approximately 25 volunteers. The Problem-Oriented Policy (POP) team operates from the center under the supervision of one Santa Cruz County Sheriff's sergeant and 12 deputies. The team refers mental health cases to the County and deals with local neighborhood problems such as cleaning up yards and graffiti.

Aptos Sheriff's Center: Because of its location in the Rancho Del Mar Shopping Center, the center has a high volume of citizen foot traffic requesting information. One of the primary responsibilities of the sergeant in charge is to interact with the community and provide long-term solutions to criminal problems. The sergeant meets monthly with representatives from Aptos High School of the Pajaro Valley Unified School District to discuss truancy, gang-related trends and youth issues. The center has approximately 18 volunteers and they appear to be well trained. The top three challenges for the center staff are juvenile issues related to drugs and alcohol, schools and transient population.

Freedom Sheriff's Center: The center in the Freedom Shopping Centre is very visible and has approximately 15 visitors a day during business hours of 8:00 a.m. to 4:00 p.m., Monday through Friday. The center is responsible for a large geographic area, stretching from Corralitos in the north, the Santa Cruz County line in the south, the coastline to the west and the Santa Cruz Mountains to the east. There are 18 volunteers and they offer directions and do fingerprinting. A POP team also operates from this center. Among the POP projects involving Sheriff's deputies at the center are monthly meetings with Mesa Village residents for their Neighborhood Watch program, establishing a new agricultural watch program for growers and farmers in the South County in 1999 and establishing a Sheriff's Athletic League for youths. In 1999, the City of Watsonville expanded its city limit boundaries through annexation of land in the Freedom area. At the time of our visit, it was yet to be determined if the center would remain at its present location or move out of the city limits to an unincorporated area.

RESPONSE REQUIRED: None.

COMMENDATION:

The Civil Grand Jury commends the Sheriff's Department for providing this excellent enhancement to community policing. The volunteers are especially commended for their commitment and dedication.

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ADULT, FAMILY AND CHILDREN'S SERVICES

OBJECTIVE:

To review Child Welfare Services (CWS) within the Human Resource Agency (HRA) with respect to outcomes for youth who have been cared for in foster homes.

BACKGROUND:

The County Administrative Officer, the Health and Human Resource Administrator, the Adult, Family and Children's Services Program Administrator and members of the staff including, notably, the head of Child Welfare Services, were interviewed. Grand Jury members attended meetings of the Alcohol and Drug Abuse Commission, observed a meeting of the Independent Living Skills Program, toured Above The Line, and toured the various service programs associated with the Homeless Shelter. The 1999 Little Hoover Commission Report, "Now in Our Hands: Caring for California's Abused and Neglected Children" and various other documents and communications provided by the Program Manager of Adult, Family and Children's Services were reviewed.

FINDINGS:

Child welfare services in California are administered under Federal and State mandates and County procedural requirements. In combination, these layers of governmental oversight set standards and impose compliance and reporting requirements. Children come into the care of CWS following the investigation of a report of parental neglect or abuse. The child is placed in a foster home while the parents receive services to help them reunify with the child. If the parents are unable to attain the goals set for reunification within the time specified, parental rights are terminated and the court designates a special advocate who will monitor the child's care. The child becomes the administrative responsibility of the Permanency-Planning Unit of CWS. The child will be placed in a relative's home, an adoptive home or a long-term foster care home.

Up to 80% of CWS cases have drug or alcohol problems at the root. In the current fiscal year, 300 children are in foster homes. Of these 300 children, 40% may be reunified with their families. Sixty percent will receive Permanency Planning Services. Permanent arrangements include adoption for about 30%, foster homes with guardianship status for 25%, and long-term foster care for the remaining 45%.

For any given child, these arrangements are not always stable. Sixteen percent of the children reunified with parents are returned to foster care. Twenty percent of the children in foster homes require yet another placement. Nine percent of the children placed in the home of a relative are returned to be cared for in a foster home. Subsequent placement into foster homes is necessary when family situations deteriorate, when foster parents become unable or unwilling to continue to care for a child, when relatives find they are unable to continue to keep the child, or when adoptive placements cannot be sustained.

All children "age out" of child welfare services at age 18. They are no longer eligible for health, mental health or other County services. Many of them find themselves homeless. Studies have shown that within two to five years of "aging out", fewer than 50% have completed high school, 25% have suffered homelessness, fewer than 50% are employed, 60% of the young women have given birth, and less than 20% are completely self-supporting.

Improved services are being developed and funded at the State and Federal level. At the State level, Proposition 10 (tobacco money) will fund community-based nonprofit organizations, some of which are already collaborating with the County Adult, Family and Children's Services program. These new services include New Families, Inc., which will place infants and toddlers in stable foster homes while parents are completing court-ordered treatment programs. The agency, Options for Recovery provides respite care and other services for caregivers of infants and toddlers who were prenatally exposed to alcohol or drugs or who test HIV-positive.

Federal legislation, the Foster Care Independence Act of 1999 (HR3443), will provide additional funding to states and require services for foster youth be continued until at least age 21. Further support is possible to help with living expenses for teenagers to complete education plans and for job-skills training. Transitional living programs will be increased to fund local, community-based programs for residential care, life-skills training, and other support services to homeless adolescents. Medicaid eligibility can also be continued at the individual state's option. Financial assistance to support adoptions, including tax credits for adopting families, is also covered in the legislation.

RECOMMENDATIONS:

1. Continue efforts to reduce a child's exposure to the ill effects of multiple foster home placements.

2. Increase wherever possible the placement of children within the family's kinship.

3. Maintain the child's ties to kin as may be appropriate, when non-related placements are necessary.

4. Continue to work with Court-Appointed Special Advocates (CASA) to provide each child with a person who can maintain a continuous relationship with the child through the changes in agency personnel and changes in living arrangements.

5. Pursue the options available through HR3443 to continue health care eligibility for "aging out" foster youths.

6. Implement appropriate provisions in HR3443 to strengthen Child Welfare Services.

7. Include appropriate school personnel in each child's treatment team.

RESPONSE REQUIRED: Yes. (see page 91 for instructions)

Health Services Agency: 60 days

Santa Cruz County Office of Education: 60 days

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ALCOHOL AND DRUG ABUSE COMMISSION

OBJECTIVE:

To observe the meetings of the Alcohol and Drug Abuse Commission (ADAC).

BACKGROUND:

Members of the Civil Grand Jury attended meetings of the Commission to observe its functioning and to gain knowledge of drug and alcohol abuse in the county. The

duties and responsibilities of the Commission are defined in its annual report as follows:

"To advise the board of Supervisors and the Alcohol and Drug Program Administrator on alcohol and drug abuse issues through participation in the planning process, development of the goals and policies of the County Alcohol and Drug Program, education of the public about alcohol and drug abuse problems and services, advocacy on alcohol and drug-related legislative issues, review of alcohol and drug services provided by the County to ensure quality, and review of the procedures used to ensure citizen involvement in alcohol and drug abuse program policies and procedures."(From the ADAC 1999 Annual Report)

The Alcohol and Drug Abuse Commission is made up of ten members. Each of the five district supervisors nominates two members to serve on the commission for four years. The Commission meets regularly on the second Monday of each month at 5:00 p.m. at rotating locations in North, South and Mid-County. The meetings are open to the public.

FINDINGS:

The Commission by-laws were amended to reduce the number of commissioners representing a supervisorial district from three to two. In order for matters requiring a vote to be acted on, a quorum of six commissioners must be present at a meeting.

The commissioners, in addition to representing a district, have responsibility for reviewing the various programs that are funded, at least in part, with County monies. The programs encompass a variety of services from prevention and drug education to residential and outpatient programs that are designed to respond to the needs of the county.

Each commissioner has liaison responsibility for assigned groups of providers. Providers are invited to describe their services at a meeting of the Commission. This practice enables all commissioners to become knowledgeable about the services in the County. Commissioners also serve as members of committees that relate to alcohol, budget, cultural competence, drugs, drinking driver programs, information and education programs and provider relations. The Commission has set goals for the year 2000 as listed in its annual report:

Maintain consistent contact and improve working relationships with local officials, including the Board of Supervisors.

Discuss the Commission's role in light of consolidation of alcohol/drug and mental health administrative services, review reports on the process of the consolidation, and advise the Board of Supervisors accordingly.

Review the Commissioner's job description, role, and work in the community.

Review how to work more effectively with service providers and advocate for more and better chemical dependency services.

Monitor contract service providers for culturally appropriate services and implement the goals of the Cultural Competence Framework related to diversity.

Review specific issues in the alcohol and drug field, including:

Alcohol and drug-related deaths, violence and traffic crashes

Dual diagnosis

Challenging the drug war paradigm

Decriminalization of drug possession

Truth in research and education

The Civil Grand Jury endorses the following recommendations in the Commission's Annual Report for 1999:

The Commission recommends that the Board of Supervisors make timely appointments to fill vacant Commission seats.

The Commission recommends an increase in communication with the Board of Supervisors and increase in the Board's responsiveness to Commission requests.

The Health Services Agency and the Board of Supervisors should continue to advocate for substance abuse prevention and treatment services without regard to pressure from alcohol industry companies or representatives.

RECOMMENDATIONS:

1. Pursue the development of a Juvenile Drug Court.

2. Continue development of a residential drug treatment program for adolescents.

3. Pursue the development of an emergency facility other than Juvenile Hall for the temporary detention of young people by the County of Santa Cruz.

RESPONSE REQUIRED: Yes. (see page 91 for instructions)

Board of Supervisors: 90 days

Alcohol and Drug Abuse Commission: 60 days

Health Services Agency: 60 days

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HOMELESS PERSONS HEALTH PROJECT

OBJECTIVE:

To review the functioning of the Homeless Persons Health Project (HPHP).

BACKGROUND:

The Homeless Persons Health Project is a functional part of the Santa Cruz County Health Services Agency (HSA), but it is located with other services for the homeless on River Street in the City of Santa Cruz. It is primarily funded by a federal grant with county matching funds. For the past 11 years, health care and social service professionals have worked as a team to meet the multiple physical and mental health, substance abuse and social service needs of homeless persons.

FINDINGS:

The HPHP staff is made up of a Public Health Program Manager, three Public Health Nurses, a substance outreach person, a case management worker, and two social workers. Each month the staff develops a schedule for office hours at each of the two clinics and various outreach sites. Children, adults and families are eligible for services at the clinics and outreach sites if they are living without shelter, living in substandard structures threatening to health or safety, staying temporarily in another's shelter under crowded conditions, staying in a shelter or transitional housing program, or housed in residential alcohol and drug treatment program with no stable housing to go to upon program completion. At the clinics and outreach sites, the staff provides medical treatment, advice and advocacy for the homeless, as well as assistance in setting up health coverage. The staff offers case management, counseling and referrals regarding violence or abuse. HPHP provides help to over 3,000 people per year.

The two medical clinics are on Emeline Avenue in Santa Cruz and Crestview Avenue in Watsonville. The outreach sites are located throughout the county in shelters, soup kitchens, storefronts and other places where homeless people congregate. The location of the outreach sites are selected to help overcome the access problems faced by homeless people.

HPHP is designed to fill significant gaps in existing health care delivery systems. The project has established relationships with providers of shelter, mental health, substance abuse and hospital services providers in the county. The staff has developed considerable experience in managing the care of homeless people. Careful attention is paid to delivering high quality care in a cost-effective manner.

Homeless persons are often in desperate need of health care services since they are generally without health insurance, financial means or transportation. Because of mental health issues and/or unpleasant experiences with traditional services, they may actually avoid health care. HPHP joins with other service agencies to provide health care to homeless patients by delivering services where homeless persons spend their time. Regular clinic hours are held at various locations and patients are encouraged to follow through with treatment at convenient locations. The project effectively networks with shelters, mental health programs, substance abuse programs and hospitals throughout the county.

COMMENDATION:

The HPHP is effectively dealing with a difficult task and the Civil Grand Jury wishes to express its appreciation for a job well done.

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RIVER STREET HOMELESS SHELTER

OBJECTIVE:

Tour the River Street Homeless Shelter and review its programs.

BACKGROUND:

The River Street Homeless Shelter is located in the City of Santa Cruz. It is next to the Homeless Persons Health Project. It is part of the Community Support Services of Santa Cruz County Health Services Agency (HSA).

FINDINGS:

The Shelter is open from 5:00 p.m. to 8:00 a.m. There are 32 beds, six beds per room. At about 4:30 p.m. homeless individuals begin to gather at the rear entrance of the River Street Shelter. These persons are met by a staff member and are screened for admission. All homeless are welcome but are selected for the shelter based on prioritized needs. Beds are filled on a first-come, first-served basis. Some beds are reserved for crisis referrals from Dominican Hospital Mental Health Unit, and the Dual Diagnosis program of the County Drug and Alcohol Services Unit. The maximum stay is 30 days. There are exceptions to this for persons with extenuating circumstances.

There are a laundry facility, kitchen, dining area, and outside patio area. Two meals a day are served with the residents helping with the cooking and clean up. This is a clean and sober environment. No fees are charged.

There is currently one staff person assigned on rotation to perform night duty. If a client should have a psychotic episode, it is difficult for the one staff person to control this problem. He or she may not be able to physically control the client and may have to call 911 for help. There is also a potential for false sexual abuse claims against the staff. The shelter has experienced many inebriated persons who have wandered on site, which causes concern with only one person on night duty.

RECOMMENDATIONS:

1. Provide another staff person in order to have more than one staff person on duty at night.

RESPONSE REQUIRED: Yes. (see page 91 for instructions)

Board of Supervisors: 90 days

Health Services Agency: 60 days

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TRIAD

OBJECTIVE:

To survey the facility and review TRIAD's programs.

BACKGROUND:

TRIAD, a state-certified agency, is a private non-profit corporation on contract with County Health and Human Services Agency (HSA) to provide services for substance abusers. It is a state-certified agency. TRIAD consists of three programs: Chemical Dependency Services, Emotional Health Services and Methadone Maintenance and Detoxification Treatment. The Methadone clinic is located at Santa Cruz County Health Services Clinic on Emeline Avenue.

FINDINGS:

Chemical Dependency Services include recovery groups, dual-diagnosis treatment, confidential drug testing and a drinking driver program.

Emotional Health Services provides counseling for individuals, families, and programs for parenting skills and workplace problems. The agency contracts with various schools to provide counseling services for drug-involved youth. Mental health services to individuals and couples are provided on a sliding fee scale. Services to CalWorks' clients are subsidized by CalWorks.

The Methadone Maintenance Treatment program is long term and tailored to meet individual needs. Clients must have a two-year history of opiate addiction and at least two or more unsuccessful attempts to detoxify with a subsequent relapse. The cost of the methadone program is $335 per month for maintenance and $300 for a 21-day detoxification. Minors are not allowed in the maintenance program.

Methadone is Recovery is a new 12-step program for heroin-addicted individuals. This means that although the recipient of methadone is still dependent, perhaps for life, that person can maintain their capacity to function in society. It is similar to Alcoholics Anonymous, except that it allows feedback. Group therapy is involved.

There are presently no patients on the waiting list for methadone dosing. The current capacity of the Methadone Clinic is 210 clients. There are four categories of client treatment:

1. 21-day detoxification

2. Maintenance, with about 190 clients

3. Two or three slots for persons from other counties, who request dosing when they are out of their regular county program area.

4. A slot for emergencies. Reserved for HIV patients or pregnant patients.

Currently there is no methadone clinic in South County.

Two years is the goal for abstinence from heroin use. Urine testing is required for all clients every 30 days or at the counselors' request.

Presently the U.S. Food and Drug Administration (FDA) and the State of California regulate TRIAD. The Council for Accreditation of Rehabilitation Facilities (CARF) is an accreditation agency that focuses on behavioral health. TRIAD is one of 100 agencies nationwide selected for a pilot program to administer Methadone. Accreditation by CARF will allow TRIAD to bill insurance companies for care.

HSA has requested TRIAD to control clients' enrollment and units of service. If TRIAD exceed its budget, the County must reduce funding for other agencies. This year Federal funds increased, enabling TRIAD to eliminate the waiting list.

RECOMMENDATIONS:

1. Provide methadone services in South County.

RESPONSE REQUIRED: Yes. (see page 91 for instructions)

Board of Supervisors: 90 days

Health Services Agency: 60 days

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SANTA CRUZ COUNTY SCHOOLS

SAFETY PLAN REVIEW

OBJECTIVE:

Review Comprehensive School Safety Plans required by California Education Code Section 352942 and to examine their compliance with the matrix of requirements and planning responsibilities of Senate Bill 187 (SB 187)(see p. 47).

BACKGROUND:

Each school in California is required to have a Comprehensive School Safety Plan which conforms to the Comprehensive School Safety Plan Matrix (SB 187) and assures that every member of the school community is prepared to respond immediately to crises and disasters that could occur. The physical characteristics of each school are to be hazard-free. Each schools' environment and programs should reflect the social and ethnic diversity within the student body.

Part of the emergency planning necessary for the preparation of the Comprehensive School Safety Plan and to meet emergencies when they occur is coordination with other relevant government agencies. One of the most important of these is the Sheriff's Department. The Sheriff's Department has the only TAC (Tactical Action Corps) squad in the county, and therefore would be involved in any response to serious violence or threat of violence at any school in the county. Funding for equipment for the Sheriff's TAC squad has come largely from grants and private donations.

The Community Service Centers of the Sheriff's Department are responsible for reviewing school safety planning in conjunction with schools themselves. The school resource officers, currently assigned to all the high schools in the county, are an important part of this review process, as well as providing vital monitoring and early warning functions. The Sheriff's Department is planning to extend the school resource officer program to the middle and junior high schools.

In 1999, the Santa Cruz County Office of Education and the Sheriff's Department co-sponsored a day-long training session for administrators and school security personnel to review procedures in the event of an emergency.

RECOMMENDATIONS:

1. Schedule regular annual training sessions for the Sheriff's Department and school administrators and security personnel.

2. Extend the school resource officer program to the junior high schools.

3. Schedule periodic meetings between the various County police agencies and school district supervisors.

RESPONSE REQUIRED: Yes. (see page 91 for instructions)

Santa Cruz County Office of Education: 60 days

Sheriff's Department: 60 days

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SANTA CRUZ CITY SCHOOL DISTRICT

OBJECTIVE:

BACKGROUND:

The mission of the Santa Cruz City School District is to prepare each student for life success by ensuring the highest quality education. There are 2,902 students enrolled in the elementary schools, 564 are enrolled at Westlake Elementary School. Junior high school enrollment is 910 students, 449 attend Mission Hill Junior High School. A total of 4,281 students attend the high schools, 1,288 attend Santa Cruz High School. Alternative education programs in the District have an enrollment of 353 students, including 41 students at Monarch Elementary, 129 students at Loma Prieta High School and 183 students at The Ark. Home School programs have an enrollment of 171 students, 64 at the high school level, and 107 at the elementary and junior high school level combined. A total of 8,617 students attend school in the Santa Cruz City School District.

The Superintendent provided the Safe School Plans of Westlake Elementary School, Mission Hill Junior High School and Santa Cruz High School for review by the Civil Grand Jury.

FINDINGS:

Westlake Elementary's Comprehensive School Safety Plan addresses a variety of programs designed to reflect the community's social diversity with a focus on supporting the child and family by utilizing community services. The document fails to address several items in the School Safety Plan Matrix: current status of school crime; child abuse reporting procedures; suspension and expulsion policies; teacher notification where expulsion or suspension has occurred and where unsafe or dangerous ongoing behavior may be possible; disaster response procedures; sexual harassment policy and reporting procedures. Student attendance is monitored along with the use of contracts between student, family and school administration in cases of a poor attendance record. Referrals to community resources or other intervention practices are not noted in the plan, nor are referrals to School Attendance Review Board.

Mission Hill Junior High School's Comprehensive School Safety Plan describes its efforts to provide a learning environment with supportive faculty- family- community ties. There are monthly meetings with Child Protective Services, Probation, Mental Health, Court and Community Schools and child and family counseling agencies in the community. There are fire extinguishers in every classroom and four two- channel two-way radios and a fifth radio for the lunch area, which enable intra-school communication. The document fails to address several items in the School Safety Plan Matrix: expulsion policies; teacher notification where expulsion or suspension has occurred and where unsafe or dangerous ongoing behavior may be possible; a sexual harassment policy and reporting procedures; and dress code.

Santa Cruz High School's Comprehensive School Safety Plan fails to address several elements in the School Safety Plan Matrix: current status of school crime; child abuse reporting procedures; suspension and expulsion policies; teacher notification where expulsion or suspension has occurred and where a student presents unsafe or dangerous ongoing behavior may be possible; disaster response procedures; a sexual harassment policy and reporting procedures. The format is inconsistent with the School Safety Plan Matrix, but makes reference to increasing the number of disaster response drills and a continuing review of disaster response plans. The school plans to develop a joint community and school disaster response team, and develop a school safety assessment survey to determine how safe students feel on campus.

Early intervention strategies are focused on problem-solving related to academic difficulties, student truancy, behavior issues and emotional disturbances. As an early intervention strategy, Student Study Teams (SST) were scheduled at schools throughout the district. Data was collected on the number of SSTs held during the 1998-99 school year. The percentage of students referred to SSTs varied from less than 1% to 12%.

RECOMMENDATIONS:

1. Write the Comprehensive School Safety Plan for each school to conform to the Comprehensive School Safety Plan Matrix specified in SB 187.

2. Rectify omissions noted in the Findings and included them in the final Comprehensive School Safety Plans.

3. Place the Comprehensive School Safety Plan for each school in the District in a discrete document in a binder with sections as indicated by the Comprehensive School Safety Plan Matrix with tabs for easy reference.

4. Include existing handbooks or statements of policy that relate to the Comprehensive School Safety Plan as attachments to the plan and include them in the binder and reference them in the plan.

5. Develop lock down procedures pursuant to SB 187. These plans should be in a checklist format and placed in each classroom and office.

6. Increase the number of SST meetings in each school district during the year as an early intervention strategy.

RESPONSE REQUIRED: Yes. (see page 91 for instructions)

Santa Cruz City School District: 60 days

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SCOTTS VALLEY UNIFIED SCHOOL DISTRICT

OBJECTIVE:

BACKGROUND:

The Scotts Valley Unified School District consists of four schools that include two elementary, one middle and a new high school with a total enrollment of approximately 2,170 students. In partnership with families and community, the mission of the Scotts Valley Unified School District is to create a safe, rigorous, engaging, comprehensive and high quality learning setting for all students.

FINDINGS:

Scotts Valley Middle School, Brook Knoll Elementary, and Vine Hill Elementary Comprehensive School Safety Plans include all the elements required in the Education Code 352942. A review of the plans for all three schools found them to conform to the elements of Comprehensive School Safety Plan Matrix (SB 187).

All three schools have similar warnings systems for lock down procedures in the case of a dangerous person on campus. The bell rings three times. On hearing the alarm, teachers must immediately lock doors and move students away from windows. Brook Knoll utilizes an additional alarm code procedure during class hour announcing over the intercom that "Mr. Eagle is needed in the office immediately."

While the plans are complete and conform to the Comprehensive School Safety Plan Matrix (SB 187), they were not found to be a ready source of reference. This is a particularly critical need in a crisis situation when a quick response is critical.

Early intervention strategies are focused on problem-solving related to academic difficulties, student truancy, behavior issues and emotional disturbances. As an early intervention strategy, Student Study Teams (SSTs) were scheduled at schools throughout the district. Data was collected on the number of SSTs held during the 1998-99 school year. The percentage of students referred to SSTs varied from 3% to 10%.

RECOMMENDATIONS:

1. Place the Comprehensive School Safety Plan for each school in the District in a discrete document in a binder with sections as indicated by the Comprehensive School Safety Plan Matrix with tabs for easy reference.

2. Increase the number of SST meetings in each school district during the year as an early intervention strategy.

COMMENDATION:

The District Administration and staff are to be commended for fulfilling the requirements of the Comprehensive School Safety Plan Matrix (SB 187) in their Comprehensive School Safety Plan.

RESPONSE REQUIRED: Yes. (see page 91 for instructions)

Scotts Valley Unified School District: 60 days

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SAN LORENZO VALLEY UNIFIED SCHOOL DISTRICT

OBJECTIVE:

Review comprehensive school safety plans required by California Education Code Section 352942 and to examine their compliance with the matrix of requirements and planning responsibilities of Senate Bill 187 (SB 187).

BACKGROUND:

The San Lorenzo Valley Unified School District (SLVUSD) consists of the following six school sites: San Lorenzo Valley Elementary; San Lorenzo Valley Junior High; San Lorenzo Valley High School; Redwood Elementary; Boulder Creek Elementary; Quail Hollow Elementary and several charter schools that provide alternative education opportunities from home schooling to nature-focused studies. School Safety plans for San Lorenzo Valley Elementary, San Lorenzo Valley Junior High and San Lorenzo Valley High School were provided by the district for review. The district has an approximate student population of 4,800.

FINDINGS:

Comprehensive School Safety Plans are in place for all schools in the district that were reviewed. All of the schools' emergency response plans require additional work on: detailed task assignments; staff responses during an emergency; elements of state mandated school safety plan matrix (SB 187) written into plans. The elementary and junior high school plans have only the components relating to Personal Characteristics, Physical Environment, Social Environment and School Culture. These plans are in a loose-leaf format that does not allow quick access of information in the event of an emergency. San Lorenzo Valley High School's plan is user-friendly. The plan is packaged in a binder with an appropriately colored cover, a table of contents, tabs for easy access to information and most of the elements required by the Comprehensive School Safety Plan Matrix (SB 187).

RECOMMENDATIONS:

1. Implement SLV High "Crisis Handbook" checklist format at all schools within the

district. Include specific duties and activities for each section of the school's operating personnel.

2. Write the Comprehensive School Safety Plan for each school to conform to the Comprehensive School Safety Plan Matrix specified in SB 187.

3. Rectify omissions noted in the Findings and include them in the final Comprehensive School Safety Plans.

4. Place the Comprehensive School Safety Plan for each school in the District in a discrete document in a binder with sections as indicated by the Comprehensive School Safety Plan Matrix with tabs for easy reference.

5. Include existing Handbooks or statements of policy that relate to the Comprehensive School Safety Plan as attachments to the plan and included them in the binder and reference them in the plan.

6. Develop lock down procedures pursuant to SB 187. These plans should be in a checklist format and placed in each classroom and office.

7. Increase the number of SST meetings in each school district during the year as an early intervention strategy.

RESPONSE REQUIRED: Yes. (see page 91 for instructions)

San Lorenzo Valley Unified School District 60 days

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PAJARO VALLEY UNIFIED SCHOOL DISTRICT

OBJECTIVE:

BACKGROUND:

The Pajaro Valley Unified School District (PVUSD) currently encompasses territory in two counties. Existing boundaries of PVUSD include the unincorporated areas of southern Santa Cruz County and northern Monterey County, which include the communities of Hall District, Las Lomas and Pajaro in Monterey County. In Santa Cruz County, PVUSD also includes the City of Watsonville and the communities of Aptos, Corralitos and La Selva Beach. School safety plans for Watsonville and Aptos High Schools, Pajaro Middle School and Starlight Elementary School were provided by the District for review.

There are approximately 10,812 students at 18 elementary schools, 4,212 students at four middle schools and one junior high school and 5,917 students at two high schools for a total enrollment of approximately 20,941 students.

FINDINGS:

The Starlight Elementary School Comprehensive School Safety Plan includes some of the elements required by the school safety plan matrix (SB 187). The plan does not have the components relating to Personal Characteristics, Physical Environment, Social Environment and School Culture and only makes references to policies relating to suspension and expulsion. Policies relating to sexual harassment are included only as an attachment. The plan has a specific "Code Blue" procedure for intruders on campus. The plan is on loose sheets of paper with no table of contents or ability to reference information quickly in the event of an emergency.

The Pajaro Middle School plan includes the components relating to Personal Characteristics, Physical Environment, Social Environment and School Culture. The element regarding safe ingress/egress of students, staff and parents to and from school includes only a map of evacuation routes for students and teachers in the event of a fire or earthquake. The middle school plan is enclosed in a binder with tabs clearly identifying each component.

The Watsonville and Aptos High Schools' plans include the components relating to Personal Characteristics, Physical Environment, Social Environment and School Culture. The Watsonville High plan utilizes component headings, but is missing narrative and referenced appendices. Neither plan contains all of the required elements of the Comprehensive School Safety Plan Matrix specified in SB 187. Some of the missing elements include: child abuse reporting procedures; sexual harassment policy; notification of teachers regarding dangerous students; safe ingress/egress to and from campus; rules and procedures relating to discipline. Neither plan is enclosed in a binder with tabs clearly identifying each element and component.

Early intervention strategies are focused on problem solving related to academic difficulties, student truancy, behavior issues and emotional disturbances. As an early intervention strategy, Student Study Teams (SSTs) were scheduled at schools throughout the district. Data was collected on the number of SSTs held during the 1998-99 school year. The percentage of students referred to SSTs varied from less than 1% to 7%.

RECOMMENDATIONS:

1. Write the Comprehensive School Safety Plan for each school to conform to the Comprehensive School Safety Plan Matrix specified in SB 187.

2. Rectify omissions noted in the Findings and include them in the final Comprehensive School Safety Plans.

4. Include existing Handbooks or statements of policy that relate to the Comprehensive School Safety Plan as attachments to the plan and included them in the binder and reference them in the plan.

5. Develop lock down procedures pursuant to SB 187. These plans should be in a checklist format and placed in each classroom and office.

6. Increase the number of SST meetings in each school district during the year as an early intervention strategy.

RESPONSE REQUIRED: Yes. (See p.91 for instructions)

Pajaro Valley Unified School District 60 days

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SB187 Comprehensive School Safety Plan Matrix

Requirements and Planning Responsibilities*

Requirements: Education Code 352942	School Responsibility	District/County Office of Education
Safe and orderly school environment	Develop a Comprehensive School Safety Plan using existing resources	Provide statistical information, current statuses on school safety and district policies
Child abuse reporting procedures pursuant to PC11164 et seq.	Insert procedures for notifying appropriate authorities into plan	Provide district- developed policies or procedures to schools
Disaster procedures, routine and emergency	Obtain district disaster plans and include in plan	Provide district disaster plan to schools that meet SEMS** requirements
Policies related to suspension, expulsion or mandatory expulsion and other school designated serious acts.	Obtain district policy on student discipline and include in plan	Provide district policies to schools
Notification to teachers concerning possible dangerous students pursuant to EC 49079	Obtain district procedures for notifying teachers and include in plan	Provide district policies to schools
Sexual harassment policy (EC 212.6(b))	Obtain policy from district and include in plan	Provide district policies to schools
Provisions of any school wide dress code (EC 35283)	School and/or district policies should be included in plan	Provide district developed dress code policies to schools
Safe ingress and egress of pupils, parents, teachers and school employees to and from school	Include in plan any school-developed strategies and safe corridor maps for students, staff and visitors	Provide schools with pre-determined evacuation routes
Assessment of current status of school crime	Review current CSSA reports or law enforcement statistics	Provide crime data to schools
Rules and procedures regarding school discipline pursuant to EC35291 and EC 35291.5	Update school rules and include in plan	Review existing rules for compliance

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SANTA CRUZ PUBLIC LIBRARIES

CITY-COUNTY SYSTEM OBJECTIVE:

Review the Santa Cruz Public Libraries City-County System.

BACKGROUND:

The library system's mission is to provide materials and services to community residents that help them meet their personal, educational, cultural and professional information needs. The system of branch libraries stretches from La Selva Beach to Boulder Creek with outreach programs serving those unable to personally visit the libraries. They offer telephone reference services, dial-up access to their computer log and other electronic databases.

FINDINGS:

The library system expansion includes future plans for the branches in Felton, Capitola and Scotts Valley. The Felton library construction should begin in approximately two years when financing becomes available. A private contribution for the library's construction is in the final process. The building will be about 7,000 square feet. The Library and the Valley Resource Center will share both the space and operating costs. Capitola's branch is housed in a temporary building on Wharf Road. This is the library with the top priority for funding of a permanent structure since its popularity with library patrons exceeds the space available. The Scotts Valley Shopping Center site is 5,000 square feet and is inadequate to service the needs of those patrons using this branch. The City of Scotts Valley has committed to building a permanent site by the year 2008. The building will also house a community center and should afford adequate space for the library.

The Library's new bookmobile began service in 1998. This traveling library stops at scheduled locations in remote sections of the county where access to branches is difficult. The library also sponsors Youth and Senior Outreach Librarians who provide mobile service to child care providers, senior centers and homebound patrons.

Computer use has become a major resource for community residents wishing to access information or to locate books within the library system. There is a monitoring system to assure equal access to computer terminals. A library card is required for computer time sign-up, and time is limited to one hour per day with the library card scan as the monitoring device. Librarians also monitor users to ensure inappropriate Internet sites are not accessed.

Funding for library operations comes from a variety of sources including city and county contributions, sales tax revenue, bequests, grants and fines. Staff and operating hours have been expanded by approximately 71% since 1997 due to increases in funding. A comparability study is being completed to establish a more competitive salary schedule for library staff. This change is necessary to attract and retain quality staff given the current cost of living in Santa Cruz County.

COMMENDATION:

The Santa Cruz Public Libraries Board of Directors and Executive Director are to be commended for the efficient operation of the Library system and their aggressive efforts to secure additional funding for increased staff and operating hours.

RECOMMENDATIONS:

1. Budget staff salaries at a level indicated by the comparability study findings.

2. Continue aggressive efforts to secure funding for library staffing and operating expansion.

3. Work with the City of Capitola to procure funding for a permanent library facility adequate to serve the needs of the users in the Capitola area.

4. Move forward on an accelerated time line for a permanent facility with adequate space in Scotts Valley.

RESPONSE REQUIRED: Yes. (see page 91 for instructions)

Santa Cruz Public Libraries Board of Directors: 60 days

City of Capitola: 60 days

City of Scotts Valley: 60 days

City of Santa Cruz: 60 days

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BOULDER CREEK RECREATION DISTRICT

OBJECTIVE:

To follow up on the recommendations of the 1997-1998 Santa Cruz Civil Grand Jury Final Report.

BACKGROUND:

The Boulder Creek Recreation District serves the residents within the Special District created by the Local Agency Formation Commission (LAFCO). It consists of five members of a Board of Directors elected by voters of the District.

FINDINGS:

Members of the Grand Jury attended several meetings of the Board of Directors during the Grand Jury's term. Initially, these meetings were marked by serious dissension among the Board members. This dissension was accompanied and reinforced by highly partisan behavior from the audience. This atmosphere made it extremely difficult for the Board to deal with the substantive matters under its purview.

Later meetings during our term showed progress toward better agenda management and closer attention to matters concerned with the functioning of the Boulder Creek Recreation District.

RECOMMENDATIONS:

2000-2001 Santa Cruz County Civil Grand Jury continue to observe meetings of the Boulder Creek Recreation District Board of Directors.

RESPONSE REQUIRED: None

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CENTRAL WATER DISTRICT

OBJECTIVE:

To investigate possible shortfall of water supply and salt water intrusion in the Central Water District and consider possible solutions.

BACKGROUND:

The Central Water District provides 798 connections that services 2,700 residential customers. The district is located in a five square-mile area between the Soquel Creek Water District and Watsonville City Water Department.

FINDINGS:

The district was formed in 1951. The agency is designated as a "Special District" and is responsible to the California Water Codes, and is governed by a Board of Directors consisting of five members. The daily operations staff consists of a District Manager, one Administrative Assistant, and one Maintenance Worker. The support staff consists of a District Counsel and a District Engineer.

All district water is well water pumped from the Purisima Aquifer and some parts of the Red Sands Aquifer. District customers are almost entirely on septic tanks, which helps to recharge the aquifers. The entire area is controlled by a ten acre zoning restriction. The district has six active wells. Well No. 2 is currently on standby.

The district recently drilled Well No. 12 at a cost between $250,000 and $300,000. This well water is high quality and provides a substantial portion of the District's water.

District 1999/2000 build-out was projected for 944 connections. The district is below its proposed schedule.

Districts water fees have been raised three times in the past 15 years. Current fees are $20 bi-monthly for residential accounts. Meter consumption rates start at $1.20 for the first 30 meter units. All 4-inch meters are $90 each, and 2-inch meters are also at a determined fee.

The existing distribution system is composed of a variety of pipe materials including World War II-era tar paper wrap pipe. The integrity of this type of pipe is suspect. In time it may leak. The district has a capital improvements program to upgrade the distribution system as needed.

The district attempted to pass an ordinance that would have required all new construction to tie into the district system if the construction was within 500 meters of a main. The proposed ordinance failed. There is a possibility of reintroducing the ordinance at a later date.

The district's existing drought procedure was created in 1989, and needs to be updated. This is of primary concern to the district manager. During the last major drought, the district did experience shortfalls in supply, but achieved complete recovery soon after the end of the drought. It appears the district is the last water district in the County to register declining groundwater levels and the first to recover. The district's static water level is currently as high as that recorded in 1966. Should an extreme emergency arise, the district has two connections with the Soquel Creek Water District. It should be noted that the Pajaro Valley Water Management Agency water line on Hames Road is located within 500 feet of hook-up to the Central Water District. The district manager expressed his opinion that making this water connection should be encouraged for emergency purposes.

COMMENDATION:

The District is well managed and does not have the same shortfall as the other Districts within the County.

RECOMMENDATION:

1. Consider the Central Water District as a possible emergency source of water for the rest of the County.

2. We encourage the 2000/2001 Civil Grand Jury to continue to observe and to investigate efforts to address this important problem.

RESPONSE REQUIRED: Yes. (see page 91 for instructions)

Board of Supervisors: 90 days

Central Water District: 60 days

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PAJARO VALLEY WATER MANAGEMENT AGENCY

OBJECTIVE:

To investigate the possible shortfall of water supply in the Pajaro Valley and consider possible solutions to the problem.

BACKGROUND:

The groundwater basins used by the Pajaro Valley Water Management Agency (PVWMA), the Aromas Red Sands and the Pajaro Basin, have suffered from overpumping for many years. According to PVWMA substantial saltwater intrusion has already occurred as a result of years of overpumping.

FINDINGS:

According to the PVWMA, the current pattern of pumping is part of the problem. Average pumping of groundwater is currently approximately 70,000 acre/feet per year, while sustainable yield with the current pattern of pumping is estimated at only 25,000 acre/feet per year. PVWMA estimates that an optimal pumping pattern could increase the sustainable yield of the basin to 50,000 acre/feet per year. This would reduce the estimated shortfall from 45,000 acre/feet per year to 20,000 acre/feet per year.

A revised State of the Basin Report and a Basin Management Plan will provide further information.

The Board and the staff of the PVWMA have begun a process of informing the public of the seriousness of the shortfall problem and of developing a consensus for action. The PVWMA has also begun to build a local diversion and recharge project at Harkins Slough and will soon begin the construction of another at Murphy Crossing. The PVWMA has proceeded with a number of agricultural water conservation projects and is currently soliciting proposals for further projects.

The Santa Cruz County Board of Supervisors recently directed the PVWMA to continue with the collection of voluntary water usage survey reports from agricultural users. According to PVWMA officials, the survey project has met with resistance from the public and is not developing sufficient data to form a conclusion. The information to be obtained from the water usage survey is of critical importance.

Due to its location, the PVWMA is the most likely beneficiary, along with Soquel Creek Water District, of importation of water from the San Luis Reservoir via pipeline.

A desalinization plant is a technically feasible water supply option for the entire County. However, the enormous expense and environmental difficulties make its realization unlikely in the near future.

RECOMMENDATIONS:

1. Consider other means of ensuring compliance with the water usage survey, If voluntary compliance is slow or inadequate.

2. Make both the Basin Management Plan and the State of the Basin Report available to the public as soon as possible.

3. Continue and intensify the current public information campaign of the PVWMA.

4. Continue to promote demonstration projects.

5. Develop and present plans for optimizing the pumping patterns at an early date, so they can be considered by users and by the Board of Supervisors.

6. Work closely with the County and other water districts to continue review of the option of desalinization.

7. We encourage the 2000/2001 Civil Grand Jury to continue to observe and to investigate efforts to address this important problem.

RESPONSE REQUIRED: Yes. (see page 91 for instructions)

Board of Supervisors: 90 days

Agricultural Commissioner: 60 days

Pajaro Valley Water Management Agency: 60 days

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SANTA CRUZ CITY WATER DEPARTMENT

OBJECTIVE:

To determine possible shortfall of water supply in the Santa Cruz Water Department and consider possible solutions to the problems.

BACKGROUND:

The Santa Cruz Water Department serves the incorporated areas of Santa Cruz City and the unincorporated areas of the Live Oak area up to the boundary of the Soquel District.

FINDINGS:

The Santa Cruz County Water Department is funded through water rates. The department has certain fixed costs that must be covered by the revenue generated by the water rates. When overall usage declines through improved water conservation, it is necessary for rates to increase to cover these fixed costs. Water conservation is, therefore, a public relations double-edged sword. Citizens will conserve in drought years but they are "inconvenienced" in non-drought years.

The department obtains 20% of its water from wells and 80% from surface sources. Wells are located at various North County sites and water is transported by pipeline to the City processing location. A major reservoir (Loch Lomond) is located in the Santa Cruz Mountains.

There is also access to wells, currently inactive, located in the southern part of the City that were originally part of a privately owned water company.

The department's annual water demand is approximately 4,500 millions of gallons per year (MGY). Estimated sustainable annual yield from sources currently available to the District is 4,300 MGY. This means that, even during normal years, there is a slight shortfall in available water resources which is greatly exacerbated during drought years. Buildout for the service area of the Santa Cruz Water Department is anticipated by the year 2050 at which time it is expected that water demand will have increased by 1,000 MGY. If a major drought were to occur, the City might have a shortfall up to 48% in water supply. A total ban on outdoor water use would save only 28% leaving a net shortfall of 20%.

A conservation plan (Urban Water Management Plan) has been in place since 1985.

The Santa Cruz City Council, which acts as the governing board for the Santa Cruz Water Department, looks to conservation rather than to finding new water sources or adding surface storage to meet expected shortfalls. Previous efforts to construct additional reservoirs were abandoned because of concerns by the City Council that such action would promote growth.

According to department officials, the County, including the Santa Cruz Water Department, is not considered a water-short area given that it receives adequate rainfall to supply the needs of consumers. However, current storage capacity is inadequate to capture the runoff for use. The construction of additional storage is unpopular because of the environmental impact, costs, and fears that such construction will promote growth. It is also a highly controversial subject with the Board of Supervisors. Water managers in the county have come together to form a County-wide Task Force to begin a process of discussing ways to address the continuing shortfall between demand and the sustainable yield of current sources.

The Santa Cruz Water Department is working toward establishing interagency projects. A conjunctive project with Scotts Valley Water District and Soquel Creek Water District to rest wells in the winter and then use them in the summer; and serving some customers in the Lockwood area of San Lorenzo Valley.

According to Department officials, desalinization is one option, but it has many negatives. For every ten gallons of salt water processed, only two gallons of fresh water are extracted. Cost-intensiveness, ocean intake and outfall needs, holding tanks, processing plants, disposal of brine, as well as the potential impact on the Monterey Bay Sanctuary, result in the political unpopularity of this option.

RECOMMENDATIONS:

1. Continue current conservation programs when needed.

2. Continue working toward establishing the conjunctive project with Scotts Valley and Soquel Creek Water Districts.

3. Work closely with the County and with the other water districts to continue review of the option of desalinization.

4. We encourage the 2000/2001 Civil Grand Jury to continue to observe and to investigate efforts to address this important problem.

RESPONSE REQUIRED: Yes. (see page 91 for instructions)

Board of Supervisors: 90 days

Santa Cruz Water Department: 60 days

Scotts Valley Water District: 60 days

Soquel Creek Water District: 60 days

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SAN LORENZO VALLEY WATER DISTRICT

OBJECTIVE:

To investigate possible shortfall of water supply in the San Lorenzo Valley Water District (SLVWD) and consider possible solutions of the problem.

BACKGROUND:

The San Lorenzo Valley Water District contains approximately 5,700 connections. These connections are located in two geographical areas. The northern system contains approximately 5,200 connections while the southern system contains approximately 500 connections.

The northern system serves mostly residential customers located in the towns of Boulder Creek, Brookdale, Ben Lomond, parts of Felton, and east toward Zayante. The source of the water is approximately 50% ground water and 50% surface water. Ground water is pumped from wells located in Olympia and Quail Hollow during the summer season only; these wells have full annual recovery. Surface water is provided from five tributaries of the San Lorenzo River.

The southern system serves customers in the Graham Hill area of Scotts Valley. The water is obtained from the Santa Margarita Aquifer. This aquifer is shared with the Scotts Valley Water District, Mt. Hermon Conference Center, and the Kaiser Sand & Gravel Quarry. The district is also limiting additional connections to the southern system. Indications are that well levels are dropping and this aquifer is considered to be in overdraft by 650 acre-feet per year.

FINDINGS:

While the northern system of the San Lorenzo Valley Water District appears to have no water supply problems, the southern system is in overdraft. There have been discussions concerning the interconnection of the northern and southern systems. Connection could allow excess surface water from the northern system during the winter months to supplement the ground water in the southern system. Another alternative would be for the SLVWD to connect to and purchase water from the Loch Lomond reservoir; there is an agreement in place to allow this.

RECOMMENDATIONS:

1. Develop a plan to prevent the southern system from over-drafting its wells.

2. We encourage the 2000/2001 Civil Grand Jury to continue to observe and to investigate efforts to address this important problem.

RESPONSE REQUIRED: Yes. (see page 91 for instructions)

San Lorenzo Valley Water District: 60 days

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SCOTTS VALLEY WATER DISTRICT

OBJECTIVE:

To investigate possible shortfall of water supply in the Scotts Valley Water District (SVWD) and consider possible solutions to the problem.

BACKGROUND:

The Scotts Valley Water District currently uses approximately 2,000 acre feet per year. The district consists of 3,352 registered meters. Homes throughout the district are plumbed with two meters: one for domestic use and another for use of reclaimed water. Geographically, the substrata is comprised of the following layers: Santa Cruz mud stone with some Purisima; Santa Margarita sandstone; Monterey shale; and, Lompico sandstone. Safe yields on the aquifer are 4,300 acre feet/year.

FINDINGS:

According to district officials, an area of concern involves recharge rates to aquifers used by the City of Scotts Valley for residential and commercial purposes. District officials were unable to provide information regarding rates of recharge at this time. A study was approved in the fall of 1999 to determine rates of recharge within the district. The same firm has been contracted since 1984 for a variety of projects, and is currently working on ground water level comparisons.

The district has a number of recharge programs in place or planned. Check dams exist along Bean Creek, and are built up to approximately three feet in height. These dams push water out into the walls of the creek and assist with recharge within the environs. Other recharge work being pursued by the district includes: diverting high flows from Carbonera Creek for injection into the aquifer; establishing a cooperative with the San Lorenzo Valley Water District by sending reclaimed water to Kaiser quarry in return for fresh water; continued discussions with Santa Cruz City Water Department concerning the use of surplus winter water for recharge of Santa Cruz City wells.

Issuance of meters to large developments has been halted by the Scotts Valley City Council, the governing board for the SVWD. Future projections forecast up to 400-500 hook-ups, representing a growth rate of 10-15%. According to district officials, the City Council imposed four conditions on the district before considering removal of this meter moratorium: create a means to incorporate reclaimed water into the system; drill a new well; install a one-million gallon potable water tank; and, make sure the aquifer is in balance.

Within the district there is a large demand for outdoor irrigation. The District will be able to address this issue by using tertiary water. District officials believe reclaimed water will replace 200-350 acre feet per year from other sources. A tertiary plant was completed in the fall of 1999 and is currently not in production because of irregularities within an outdated piping system.

A desalinization plant is a technically feasible water supply option of the entire County. However, the enormous expense and environmental difficulties make its realization unlikely in the near future.

RECOMMENDATIONS:

1. Continue discussions with the Santa Cruz City Water Department related to the feasibility of usage of excess winter water flows from Scotts Valley to Santa Cruz for recharge.

2. Promote a dual use system with potential major non-potable water users.

3. Meter all area wells and monitor them to ascertain the heavy users and attempt to have these users practice better water conservation.

4. Work closely with the County and other water districts to continue review of the desalinization option.

5. We encourage the 2000/2001 Civil Grand Jury to continue to observe and to investigate efforts to address this important problem.

RESPONSE REQUIRED: Yes. (see page 91 for instructions)

Board of Supervisors: 90 days

Scotts Valley Water District: 60 days

Santa Cruz City Water Department: 60 days

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SOQUEL CREEK WATER DISTRICT

OBJECTIVE:

To investigate possible shortfall of water supply and salt water intrusion in the Soquel Creek Water District and consider possible solutions of the problem.

BACKGROUND:

The Soquel Creek Water District serves more than 45,000 customers through approximately 13,400 active hookups in Capitola, Aptos, La Selva Beach, Seacliff, Rio Del Mar, Seascape and Soquel. All of the District's water supply is obtained from two ground water aquifers, Purisima and Aromas Red Sands.

FINDINGS:

Recently, symptoms of decline have appeared in the aquifers indicating that sustainable levels of pumping have been exceeded, thereby increasing the potential for salt water intrusion. The district currently sells approximately 5,400 acre-feet of water annually, an estimated 600 acre-feet per year more than the estimated sustainable yield of the aquifers. Accurate records are not available for private well pumping. It appears the district is responsible for about 55% of the total annual well pumping in the Purisima Aquifer and a much smaller portion of the pumping in the northwestern portion of the Aromas Red Sands Aquifer.

Projected water needs indicate increasing overdraft of the aquifers. The projected usage is as follows:

Estimated usage for the year 2001, when currently vacant lands inside the urban service line are developed, is 5,900 6,400 acre-feet per year.
Estimated usage for the year 2006 when vacant lands outside the urban service line, but within the district's sphere of influence, are developed is 6,200 6,400 acre-feet per year.
Estimated usage for the year 2030 when area build-out is reached is 6,800 7,500 acre-feet per year.
This increased estimated usage indicates growing overdrafts of the aquifers unless additional sources of water are found.

Due to its location, the Soquel Creek Water District is the most likely beneficiary, other than the Pajaro Valley Water Management District, of importation of water from the San Luis Reservoir via pipeline.

Desalinization is one option but has many negatives. For every ten gallons of salt water processed, only two gallons of fresh water are extracted. Cost-intensiveness, ocean intake and outfall needs, holding tanks, processing plants, disposal of brine, as well as the potential impact to the Monterey Bay Sanctuary, result in the political unpopularity of this option.

Current conservation programs could reduce water demand by 650 acre-feet per year over the next 30 years.

Cabrillo College is a major user of water for irrigation. It also has a separate irrigation system which could lend itself to use of tertiary water.

RECOMMENDATIONS:

1. Continue current conservation programs.

2. Promote a dual use system with potential major non-potable water users, particularly Cabrillo College.

3. Meter all area wells and monitor them to ascertain the heavy users and attempt to have these users practice better water conservation.

4. Pursue and develop off-stream diversion and ground injection water project for Soquel Creek.

5. Work closely with the County and the other water districts to continue review of this option.

6. We encourage the 2000/2001 Civil Grand Jury to continue to observe and to investigate efforts to address this important problem.

RESPONSE REQUIRED: Yes. (see page 91 for instructions)

Board of Supervisors: 90 days

Soquel Creek Water District: 60 days

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WATSONVILLE CITY WATER DEPARTMENT

OBJECTIVE:

To investigate possible shortfall of water supply and saltwater intrusion in the service area of the Watsonville Water Department and consider possible solutions to the problem.

BACKGROUND:

The Watsonville City Water Department services Watsonville, Freedom, Corralitos and small communities like Pajaro Dunes, a total population of approximately 50,000.

FINDINGS:

The average water demand is six million gallons per day (mgd) with a maximum of ten mgd. Demand is met by pumping from 12 wells utilizing seven storage facilities. The largest storage facility has a capacity of six million gallons and the smallest has a capacity of 240,000 gallons. Pajaro Dunes is connected by pipeline to Watsonville, although the pipe is not currently in use. Water for Pajaro Dunes is pumped and stored locally. Electrolyte levels in Pajaro Dunes are at safe levels. Testing is done regularly at all sources for electrolyte levels.

The City of Watsonville has plans for potential or planned joint projects with the Pajaro Valley Water Management Agency (PVWMA). They include Harkins Slough, Murphy's Crossing and College Lake.

The department would benefit from water imported from the San Luis Reservoir via pipeline, since its use by agricultural would help replenish the aquifer from which the department draws its water. That project was recently rejected by voters of the two districts. The department is working with the PVWMA to overcome the objections that led to the rejection of this project.

In a joint project with PVWMA, the department has completed a study on the feasibility and environmental impact of using reclaimed water for agricultural purposes in Monterey County. It is also working with PVWMA to find ways to optimize pumping patterns in the basin by moving wells, including the department's, away from coastal locations.

RECOMMENDATIONS:

1. Continue cooperation on joint projects with the PVWMA.

2. Implement the proposal to use reclaimed water for agricultural purposes in Monterey County.

RESPONSE REQUIRED: Yes. (see page 91 for instructions)

Watsonville City Water Department: 60 days

Pajaro Valley Water Management Agency: 60 days

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SPECIAL CHARGE UPDATE

OBJECTIVE:

To continue the study of the "Youth and Substance Abuse" issues in Santa Cruz County and to follow up on the recommendations of the 1998/1999 Civil Grand Jury.

BACKGROUND:

The Special Charge to "assess the problem of drugs and our youth" was initiated by Superior Court Judge Robert Yonts in a directive to the 1998/1999 Grand Jury. Superior Court Judge Richard McAdams and the 1999/2000 Grand Jury continued the charge.

The 1998/1999 Grand Jury conducted over 100 interviews, participated in numerous meetings, and reviewed countless pages of documentation to gather facts about the problem and what is being done to overcome the many related issues. A Special Report on "Youth and Substance Abuse" was published in January 1999. The report included several recommendations in Prevention, Enforcement, Treatment and Coordination.

The 1998/1999 Grand Jury Final Report includes a section entitled 'Status of Recommendations' and repeats the Special Report (Appendix B) to continue the focus on important youth substance abuse issues. The complete report can be accessed on the Santa Cruz County Government Internet site (www.co.santa-cruz.ca.us/).

The following is a status update on youth substance abuse issues and related activities.

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PREVENTION

BACKGROUND:

Direction on youth substance abuse prevention is taken from the Santa Cruz County collaborative known as "Together For Youth/Unidos Para Nuestros Jovenes" (TFY/UPNJ).

TFY/UPNJ, hosted by the United Way of Santa Cruz County, maintains a comprehensive plan to address youth substance issues. The plan is updated periodically and programs are initiated to address issues posing greatest risk to the health and safety of our youth. Issues are prioritized based on evaluation of the most recent Santa Cruz County Youth Survey results. The survey is currently administered in Santa Cruz County middle schools and high schools every two years.

FINDINGS:

EDUCATION (DRUGS):

Ongoing drug education is needed for youth, at least through high school. Parents, teachers, coaches, community leaders and all who influence youth behavior need to be educated. Current programs are inconsistent; there are no county standards.

The principal drug education programs for youth in Santa Cruz County is Drug Abuse Resistance Education (D.A.R.E.), which teaches decision-making skills and emphasizes healthy alternatives to drugs. D.A.R.E. is taught primarily at elementary and middle school levels. There is a complementary high school D.A.R.E. program in various stages of implementation in Scotts Valley and San Lorenzo Valley. Other school districts may or may not be using D.A.R.E. and some districts have their own high school programs. For example:

Santa Cruz City Schools has a secondary school program called "Healthy Teens". It incorporates drug and violence prevention with health education, and offers individual and group counseling.

In South County, the Pajaro Valley Prevention and Student Assistance (PVPSA) Agency works closely with the Pajaro Valley Unified School District and the Watsonville Police Department. PVPSA provides several prevention programs and, in addition, intervention and treatment programs that, in many cases, involve parents and other family members along with troubled students.

The Santa Cruz County Office of Education (SCCOE) continues to work on a thirteen-point 'Call For Action' plan, developed in 1999, aimed at reducing youth drug use. The plan includes expansion of several programs currently in use throughout the county, such as, the 'clean and sober' school program, counseling and mentoring, living skills, health and drug education modules, dispensing of up-to-date information for students and parents, and teacher training programs.
A video series for parents entitled "Helping Your Kids Stay Drug-Free" was presented (English only) in March and April and repeated in May, 2000, in both English and Spanish. Telecasts were broadcast by Community Television of Santa Cruz County, in cooperation with The Criminal Justice Council, Pajaro Valley Prevention and Student Assistance, Friday Night Live and the County Sheriff's Department. Look to these agencies for information on future airings of these and other important videos.

EDUCATION (ACADEMICS) :

Options, for example, trade schools, are very important to many Santa Cruz County youth. Approximately half of our teens do not pursue higher education - many do not graduate from high school.

The SCCOE-supported Regional Occupational Program (ROP) currently offers 40 subjects in six broad career pathways to over 5000 teens and adults at 17 sites across the county. Details of the program can be viewed on the ROP Internet web site (www.rop.santacruz.k12.ca.us).

The SCCOE also supports Alternative Education Programs for approximately 1000 students who do not succeed in traditional school settings. In addition to academics, the program teaches living skills, and includes school-to-work and self-esteem building programs.

YOUTH ACTIVITIES:

Youth have varied needs. In addition to a sound drug and academic education, after school activities play an important role in their overall development. They need a place to go and after school activities. Most schools offer sports programs, but not all students are athletes. Many are interested in the arts (music, dance, drama, visual arts, etc). Some just need a place to play, such as, skate boarding. Others want to or need to work they need career counseling and job opportunities.

The San Lorenzo Valley Teen Center, which opened in 1999, boasts excellent participation and positive results. First year monitoring indicates a significant downturn in youth crime.

Scotts Valley leaders are currently planning a similar center.

The City of Santa Cruz Parks and Recreation Department is working on a Teen Center plan. A site has now been designated and the center should be operational this year. The goal is to provide programs for teens and young adults. The teen job-training program Student Training and Employment Program (STEP), directed by Parks and Recreation, will be expanded within the center, creating employment for youth to assist with running and maintaining the facility. Partnerships with other youth-serving groups are already in place and include; the County Office of Education (alternative schools program), Barrios Unidos (Community Based Gang Intervention Agency), Youth Services (support services for teens and parents on substance abuse issues), Youth Crisis Prevention/Intervention Team, Friday Night Live (County Health Services in drug/alcohol prevention), the Youth Serve Program of the Volunteer Center (involves youth in community service-learning projects), the Santa Cruz Boys and Girls Club (recreation for youth), and others.

In Watsonville, Youth Services programs are directed toward improving academic skills, building self-esteem, and developing job and life skills. In addition, the Police Activities League (PAL) sponsors and oversees several sports programs and youth events.

The Santa Cruz County Office of Education plan described above also supports after-school recreational activities. Programs have been implemented in some school districts - other districts could emulate the more creative ideas, such as the PVUSD program which is focused on the arts, and Live Oak School District's technology-based program.

Skateboarding and in-line skating are very popular in Santa Cruz County, and skate parks are generally scarce. However, County Parks and Recreation has built a skate park in the Live Oak area and a second is planned for Aptos. The city of Santa Cruz has selected a site for a new skate park, which is scheduled to be built later this year. Other communities where skate parks are being considered include Watsonville, Ben Lomond and Scotts Valley.

Youth Coalition Santa Cruz (YCSC) is a program of Youth-SERVE/Volunteer Center, City of Santa Cruz, Friday Night Live, Resource Center for Nonviolence, and the Boys and Girls Club. YCSC is a youth-run group, to empower and support all young people. The coalition provides an outlet for youth ideas, concerns and activism with "a vision to manifest ideas into social changes in our community." Their programs provide leadership training and encourage community involvement. The Volunteer Centers of Santa Cruz County host a "Teen Volunteer Alliance" and have recently published a 'Youth Volunteer Opportunities Guide'. To learn more about YCSC, check their Internet web site (www.scvolunteercenter.org) or call (831) 427-5070.

Safe, well planned and managed youth events are another key to effective prevention, for example, the multimedia dance party in conjunction with First Night Santa Cruz. Co-sponsored by the County Alcohol and Drug program and Friday Night Live, the New Year's Eve party featured both live and recorded music, and soft drinks - alcoholic beverages and drugs were not allowed, The event attracted more than 3,000 young people between the hours of 7:00 and 11:00 p.m.

NEW PROGRAMS:

Each year TFY/UPNJ addresses the most relevant issues derived from Santa Cruz County Youth Survey results.

The most recent surveys continue to show that alcohol is the drug of choice among youth and emphasizes its ease of access. They reveal that the average age of first time intoxication is 13.5 years among users of alcohol and that a third of our eleventh graders use alcohol more than once per month many weekly and some daily. The numbers of users are growing. In efforts to curtail this alarming trend, the Civil Grand Jury Foreperson joined TFY/UPNJ and the Santa Cruz County Alcohol and Drug Program to assemble a Policy Panel to determine what could be done to control youth access to alcohol. More than 50 leading citizens of Santa Cruz County worked together to prepare 26 recommendations in five areas including; community, schools, law enforcement, land use and zoning, and merchant practices. The recommendations, published in February 2000, are described in a 15 page TFY/UPNJ report entitled "Policy Panel on Youth Access to Alcohol". Everyone involved with youth, especially parents, should read the Policy Panel Report and take appropriate action.

In addition to the Policy Panel Report, TFY/UPNJ has published two pamphlets to help parents recognize potential youth drug and alcohol problems and guidelines on what to do. Titles are: "Drugs, Alcohol and Teenagers" and "Heroin Use among Young People". Both are available in English and Spanish from TFY/UPNJ.

Copies of the Policy Panel Report and the two pamphlets are available in both English and Spanish from TFY/UPNJ at (831) 479-5466. The documents are also accessable on the United Way internet web site (www.unitedway.scc.org).

RECOMMENDATIONS:

1. Continue to follow and support the Together For Youth Prevention Plan including the Policy Panel Report recommendations.

2. Assure that all county school districts have drug education programs through grade 12.

3. Recognize PVPSA family programs as model programs to be emulated.

4. Expand the Regional Occupational Program to address the needs of job market.

5. Expand creative after-school programs across all county school districts.

6. Expand job centers and vocational counseling for high school youth.

RESPONSE REQUIRED: Yes. (see page 91 for instructions)

Board of Supervisors: 90 days

Santa Cruz County Office of Education: 60 days

Aromas-San Juan Unified School District: 60 days

Bonny Doon Elementary School District: 60 days

Happy Valley Elementary School District: 60 days

Live Oak School District: 60 days

Pacific Elementary School District: 60 days

Pajaro Valley Unified School District: 60 days

San Lorenzo Valley Unified School District: 60 days

Santa Cruz City School District: 60 days

Scotts Valley Unified School District: 60 days

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ENFORCEMENT

BACKGROUND:

The Criminal Justice Council (CJC) provides direction for County drug and alcohol enforcement programs. The Juvenile Justice Task Force, under CJC management, has a plan to complete two significant projects and launch several new initiatives. In addition, the Task Force will continue its involvement in minority representation (participation in a study with the Youth Law Center), obtaining and managing grants for youth programs, tracking new legislation, and providing presentations and training.

FINDINGS:

While our most recent survey indicates that youth drug use is lower in several key areas, drugs continue to be plentiful and readily available to Santa Cruz County youth. Youth crime has decreased in some areas, such as, San Lorenzo Valley - the San Lorenzo Valley Resource Center attributes the drop in youth crime to its Teen Center activities and community-supported youth programs. Several additional projects are currently in progress.

The first Juvenile Justice Task Force (JJTF) project is a Laws For Youth Handbook. Printing and distribution is expected by Fall 2000.

The second JJTF project is Truancy Impact. Fact-gathering and compiling have been completed. Following analysis, the release plan will include a community forum later this year.

One of JJTF's new initiatives is to assess the need for a Juvenile Drug Court. This is also the first priority of the Drug and Alcohol Abuse Task Force. The two groups will work together on this and other areas of mutual concern, such as, efforts to secure a detoxification site exclusively for youth. Another JJTF's ongoing project is improvements to Juvenile Hall classrooms, medical services and recreation areas.

The Juvenile Hall Overcrowding Task Force has been working with the courts and law enforcement agencies countywide since August 1999. The programs they have initiated appear effective, as evidenced by the reduced number of youth in residence at Juvenile Hall. One year ago, the facility built to accommodate a maximum of 42 juveniles was inhabited by over 60. More recently, the number of wards in residence has been less than 40. This success is attributed mainly to diversion programs and more aggressive court scheduling to shorten the time incarcerated youth have to wait at Juvenile Hall before their case is heard.

The County Probation Department, in conjunction with law enforcement agencies across the County, continue to support diversion programs for first time offenders. These programs employ closely monitored home supervision techniques. FENIX Services in Watsonville provide day programs allowing first time youth offenders to avoid Juvenile Hall. Electronic monitoring is used for less serious offenders, even if it is not their first offense.

The Watsonville Police Department's Broad-based, Apprehension, Suppression, Treatment and Alternatives (BASTA.) program, supported by the County Probation Department, is a gang violence suppression project to divert gang activity and promote positive, constructive behavior.

The City of Santa Cruz has recently passed a 'shoulder-tap' ordinance making it illegal for minors to solicit the services of an adult to obtain alcoholic beverages. It has always been illegal for adults to obtain alcoholic beverages for minors. The intent of this ordinance is to allow law enforcement officials to intervene and take appropriate steps to discourage young offenders from using alcohol, just as other diversion programs work to stop youth from using all drugs.

A new County position has been created for alcohol and drug assessment and evaluation of both court wards and non-court wards. This staff position will enable a closer, more direct involvement, by County Alcohol and Drug Services.

Sheriff's Community Service Centers make it much easier for non-city residents to utilize the services of the Sheriff's Department. The four Centers are located in Freedom, Live Oak, Aptos and Felton. A Sergeant is assigned to each location along with deputies who patrol the area. They are involved in their respective communities including youth anti-drug programs, sports activities and other school and community programs. The Centers are staffed Monday through Friday by trained volunteers who work as a team with the Sheriff's office to provide a host of neighborhood services. They enable deputies to focus on more serious crime issues. These dedicated volunteers are valuable assets to the Sheriff's Department and to their communities.

Neighborhood Accountability Boards (NABs), established by County Probation mid-1999, offers an opportunity for the community to take an active role in confronting and resolving the problems of juvenile crime in their neighborhoods. The program provides an effective alternative to prosecution of first time offenders by holding the minor accountable through a variety of sanctions including restitution, community service, education and counseling. To date, more than twenty cases have been heard by trained community volunteers in five Santa Cruz County communities and only two offenders have repeated. Conventional processes were then enforced and the two offenders were remanded to Juvenile Hall as wards of the court.

Teen Peer Court offers a "by teens for teens" alternative for misdemeanor crimes by 13 to 17 year olds. This program emphasizes self-improvement, self-esteem and a healthy attitude.

RECOMMENDATIONS:

1. Continue diversion and intervention programs aimed at keeping first time youth offenders out of Juvenile Hall. Support participation by all law enforcement agencies countywide.

2. Maintain other successful programs, such as, Neighborhood Accountability Boards and Teen Peer Court.

3. Continue BASTA support and expand to include other communities where youth gangs are present.

4. Continue efforts to establish a permanent juvenile drug court.

RESPONSE REQUIRED: Yes. (see page 91 for instructions)

Board of Supervisors: 90 days

Sheriff's Department: 60 days

Probation Department: 60 days

Health Services Agency: 60 days

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TREATMENT

BACKGROUND:

It remains a fact that a large number of Santa Cruz County youth are still addicted to an assortment of drugs. This problem affects all of us, because alcohol and/or drugs are involved in almost all youth crimes. A major item in the 1999 Grand Jury Report, and subsequently emphasized by the County High-Risk Drug Task Force, was the lack of residential treatment facilities for drug-addicted youth in Santa Cruz County.

FINDINGS:

As recommended, residential treatment became a high priority item in 1999. In the current fiscal period, two six-bed residential youth treatment centers, operated by Palomares Group Homes, have been opened for adolescent boys referred by Santa Cruz County Probation. The homes are located in Aptos and Freedom.

The Group Home Society of Aptos provides treatment for adolescent girls, but the facilities are inadequate. The demand is much greater than services available.

For non-court wards, the County Department of Alcohol and Drugs has obtained funding and have selected the Santa Cruz Community Counseling Center to manage a new co-ed residential facility. A La Selva Beach home has been procured for this facility that should be operational July 2000. An initial six beds are to be expanded to ten beds in 2001. A program manager has been hired.

County Probation has also initiated a community-based day treatment program, called Probation Alternative Resources for Kids (PARK), with centers in North County and South County. Each Center can accommodate eighteen minors who participate in a highly structured six month program. The program is staffed by Probation officers six days a week and includes evening events. Crisis/mobile service response is available on days the centers are closed. Participating minors receive a full schedule of academic classes from the Santa Cruz County Office of Education. In addition, a wide variety of educational and counseling services are available to participants and their families, provided by several cooperating community-based organizations.

The Santa Cruz County Office of Education "Clean and Sober" school program, in conjunction with YOUTH SERVICES, currently provides day-treatment services for 50 eligible youth, 20 in Watsonville and 30 in Santa Cruz.

RECOMMENDATIONS:

1. Continue to assess youth treatment needs and support a continuum of services at strategic locations - outpatient, site-based and residential services.

2. Establish permanent residential treatment facilities for girls, in and out of the criminal justice system.

3. Establish youth and family alcohol and drug counseling in strategic county locations.

4. Continue creative funding programs as described in the County High-Risk Drug Task Force plan.

5. Continue efforts to secure a detoxification site for youth.

RESPONSE REQUIRED: Yes. (see page 91 for instructions)

Board of Supervisors: 90 days

Health Services Agency: 60 days

Probation Department: 60 days
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COORDINATION

BACKGROUND:

The problem of youth drug abuse is countywide. An effective solution requires the attention of all county and city leaders and officials working with involved agencies and individuals.

FINDINGS:

The main obstacle to implementing good ideas is lack of funding. Whether supported by state, federal and private grants or from county and city general funds, there are always too many programs and too little funding. The need to prioritize is ever present, as agencies continue to compete for available funds. Effective prioritization requires decision-makers to be well informed.

County and City leaders must be aware of the potential dangers of programs that advertise "NO ALCOHOL," such as, RAVES or TRANCES and other all-night dance parties where 'club drugs' are known to be prevalent. The menu often includes MDMA (ecstasy), GHB, ketamine (special K), methamphetamine, LSD and other popular party drugs associated with date rapes, serious health problems and even youth deaths. Research by the National Institute of Drug Abuse (NIDA) clearly shows that there are no harmless 'club drugs'. All are addictive and all can cause serious and possibly permanent physical and mental impairment - and death.

Though progress is being made on several fronts prevention, enforcement and treatment the problem is certainly not solved. All we can do is continue to work the issues and do everything possible to keep our youth healthy and safely out of harms way. The grand jury can contribute significantly to these efforts by confronting the issues and reporting on status and effectiveness of programs. Identifying continuing and changing needs will help keep our county and city officials focused and the citizens of Santa Cruz County informed.

RECOMMENDATIONS:

1. Continue to recognize and support the most knowledgeable involved organizations for effective direction, such as, "Together For Youth/Unidos Para Nuestros Jovenes" for prevention and the Juvenile Justice Council for enforcement.

2. Continue to use the County High-Risk Drug Task Force treatment plan and creative funding recommendations as long as they remain valid. Reassemble this task force as needed to maintain a relevant plan.

3. Take steps to assure that all appropriate agencies are knowledgeable about new, potentially epidemic drug problems, and the public is kept informed.

4. We encourage the 2000/2001 Civil Grand Jury to continue to observe and to investigate efforts to address this important problem.

RESPONSE REQUIRED: Yes. (see page 91 for instructions)

Board of Supervisors: 90 days

Capitola City Council: 90 days

Santa Cruz City Council: 90 days

Scotts Valley City Council: 90 days

Watsonville City Council: 90 days

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APPENDIX

This appendix is a synthesis of study findings, City responses, LAFCO staff and commissioner statements as they relate to each of the three LAFCO conditions. The three conditions are listed below, along with the subsequent tasks given to the City by LAFCO. Each condition is followed by statements taken from the following documents:

Analysis of a Proposal to LAFCO. A LAFCO staff report of findings and determinations based on the Santa Cruz LAFCO Standards for Evaluating Proposals, dated July 29, 1999 (referenced as LAFCO STAFF); or,

2) Compliance with LAFCO Resolution 838-A and Manabe-Burgstrom Annexation Request. Memorandum from the City dated July 6, 1999 (referenced as CITY); or,

3) Response to General and Specific Recommendations Contained in the Pajaro Valley Futures Study. Memorandum from the City's Community Development and Housing & Economic Development departments, dated February 17, 1999 (referenced as CDD); and,

4) Proceedings of the Local Agency Formation Commission Santa Cruz County. LAFCO Commissioner statements made at the public hearing held August 3, 1999 when the Commission voted to deny the City's annexation application (referenced as COMM).

Responding to LAFCO in a memorandum dated July 6, 1999, the City summarized how each condition had been satisfied. The memorandum contains responses to recommendations received from: (a) Economic & Planning Systems (EPS), retained by the City to analyze the industrial potential of the Landmark property and referred to as the Landmark Study; and, (b) the Pajaro Valley Futures Study commissioned by the Community Alliance with Family Farmers and referred to as the Futures Study. Attached to the July 6th document is a preceding memorandum from the Community Development Director and Housing & Economic Development Director dated February 17, 1999, supplying additional responses to the Futures Study.

The City's response includes references to the Futures Study. These references have been made using the source pages listed within the CITY and CDD documents. The City's response also includes a memorandum dated July 8, 1999 to LAFCO Executive Director in response to comments regarding the Landmark Feasibility Study, and will be referred to as MEMO.

CONDITION #1:

Evaluate the potential for industrial infill and reuse within existing city limits.

- this evaluation to include review of the Pajaro Valley Futures Project and plans for implementation of relevant recommendations of the Futures Study concerning infill potential (LAFCO Exec. Officer's Report, 7.12.99, page 3).

I. INDUSTRIAL DEVELOPMENT POTENTIAL

I.A. Findings and Conclusions from Studies/Staff Reports/City Memoranda

City: On February 23,1999, the Watsonville City Council reviewed the report and staff findings of the Futures Study. The City Council, by resolution, adopted an action plan identifying twenty-one implementation measures to support the recommendations contained in the Futures Study. (Note: the adopted action plan comes from the document referenced as CDD.) The action plan is attached to this memorandum and includes:

Aggressively pursuing strategies to increase resources available for the redevelopment of land and buildings within the City by amending the redevelopment project area,
Pursuing grant funding opportunities to attract and retain large job generating industrial businesses,
Marketing financial incentives for businesses such as the Enterprise Zone,
Encouragement of diversification of local economy,
Maximizing job training opportunities,
Participating in the regional visioning process, regarding infill development in the Pajaro Valley, and
Studying industrial parcels and buildings to ascertain reuse potential (CITY, p. 3).

Futures Study:

It should be noted that most of the industrial buildings and land within the identified supply are appropriate for lower end uses, with limited parking, roadway access and amenity. There is a much more limited supply of large parcels with modern roadway access that would be considered appropriate by many developers and tenants for higher- end corporate offices, business park development, "flex" use, or research and development (Futures Study, p. E-4).

. . . there might be a shortage of large, high-end parcels in the Pajaro Valley area. Cities such as Hollister, Morgan Hill and Gilroy are able to offer flat, developable parcels with sizes ranging from 10 to 50 acres to prospective commercial tenants and developers. Such parcels do not exist in the Pajaro Valley, and a supply of them might meet an unmet demand." (Futures Study, pages 2-11).

City:

The Futures study indicated that there were 116.73 acres of potentially "developable" potential industrial land in Watsonville. However, a notable portion of that land is constrained due to environmental, size, land use or access issues. parcels as small as 0.17 acres have been included in this inventory. Analysis of this inventory identified only 38 acres of "unconstrained" potential industrial acreage (CITY, p. 4).

Large job creation projects require large parcels of at least five acres. In February 1999, when the City Council adopted the Futures Action Plan, there were only three sites remaining in the City of Watsonville where each has the potential for an industrial development that will create at least 100 new jobs. (Now, there are only two). (CITY, p. 4).

LAFCO Staff: Standard 1.3.1:

Generally, LAFCO will presume to favor a city's general plan inside the sphere of influence adopted for the city by LAFCO, and the county's general plan elsewhere. It is the proponent's responsibility to prove any exception by referring to the policies of the Cortese-Knox Local Government Reorganization Act.

Staff Findings and Determinations:

The site is within the City of Watsonville Sphere of Influence as adopted by LAFCO Resolution No. 838-A. The Watsonville 2005 General Plan calls for a specific plan to be prepared for the site to designate the configuration of industrial, commercial, and environmental management (LAFCO STAFF, p. 3).

Standard 3.2.2:

Proposals involving urbanization of prime agricultural lands within adopted spheres of influence shall not be approved unless it can be demonstrated that (a) there is insufficient land in the market area for the type of land use proposed, (b) there is no vacant land in the subject jurisdiction available for that type of use.

Staff Findings and Determinations:

Nearly 70% of the regional supply of vacant industrial land is located in Hollister and Gilroy, and lands on the market in Watsonville represent only 1.5% of the current supply (EPS, 1997). One source identifies 158 acres of vacant land in the Pajaro Valley zoned for industrial development (Futures Study, 1998). This represents over a 10-year supply at projected absorption rates: however, many of these sites are small and contain development constraints, such as poor road access.

Industrial development of the site would provide an opportunity for the local market area around Watsonville to capture a higher percentage of industrial facilities that choose to locate in the region.

No other vacant site is located within the City of Watsonville that is zoned for industrial uses and contains as much acreage as the proposed annexation (LAFCO STAFF p.8).

I.B. Commissioner Statements

Comm. Ainsworth: She was interested in the response from Mr. Palacios to the recommendations of the Pajaro Valley Futures Project. There were a lot of things that were supposed to be initiated and had been initiated by the City, like working with the County on a growth boundary and initiating discussions for revenue sharing. Her sense is that for the most part they are very tall orders. She would like to hear from the City on where they are going to go with general plan revisions, and infill policies, for example. . . But she is not clear that the City is far enough along in the general plan process revisions, the response to the Futures Study, and the master plan for the wetlands (COMM, p. 12).

Comm. Van Houten: There are still substantial portions of land that are undeveloped or under developed; and, while the City is starting to do some good things in redevelopment, he is committed to improving the central core and doesn't like seeing peripheral development which takes away from the central core (COMM, p. 15).

II. INFILL DEVELOPMENT

II.A. Findings and Conclusions of Studies/Staff Reports/City Memoranda

Futures Study: Vacant Industrial Buildings and Redevelopment Potential

Recommendation 1: Infill Development.

The City of Watsonville and the two counties with jurisdiction over the unincorporated, urbanized areas outside Watsonville should pursue a strategy of industrial, retail and residential development based on infill and redevelopment (Futures Study, p. E-9, General Recommendation).

City :

The Futures Study was only able to identify 11 industrial buildings in Watsonville with a total of 78,341 square feet that were partially or fully vacant. (To put this in perspective, this is collectively less than the size of the Santa Cruz Costco Store, which is 123,000 square feet.) With 4.3 million square feet of industrial space in Watsonville, this translates into a 1.8% vacancy rate. (CDD estimates give a 2-2.5% industrial vacancy factor.) This industrial vacancy factor does not provide ample space for businesses to grow in or relocate to Watsonville (CITY, p. 4).

While the City agreed with the Futures Study contention that there is limited potential for unassisted redevelopment because market pressures have not been strong enough to encourage renovation and reuse, we did agree to conduct a detailed analysis of the older industrial inventory to further explore this issue.

The existing supply of industrial land and buildings in Watsonville cannot meet the employment need identified in the Watsonville General Plan, which has goals of creating 3,690 jobs in the City and 3,815 jobs outside of the City by the year 2005 (CITY, pp. 4-5).

. . . a development strategy based solely on infill and redevelopment cannot meet the current or future employment and housing needs of Watsonville's residents. . . . there is ample evidence to support the contention that strategic annexation of land is required to address these housing and employment needs. These findings were also substantiated by the EPS study commissioned by LAFCO and by the Futures Study itself (CDD, p. 3).

Futures Study: Residential Recommendations

Recommendation #9: Adoption of Policies to Encourage Infill Development.

Adoption of policies in the Growth and Conservation Strategy section of the General Plan to encourage infill development (Futures Study, p. E-13, Residential Recommendation).

City:

Watsonville 2005, General Plan contains numerous policies and programs designed to encourage infill development. These include, among other things, a policy of city- centered development, the establishment of an urban limit line, and the prioritization of urban services to support city-centered development and to maintain agriculture and open space surrounding the urban limit line (CDD, pp. 6-7).

Futures Study: Industrial Recommendations

Recommendation #19: Reuse of Older Buildings.

Study innovative alternatives for rehabilitating older wood frame buildings so that they are attractive to new users, rather than appearing "dirty" and overly expensive to reuse (Futures Study, p. E-12, Industrial Development).

City:

In general, the cost of renovating the older wood frame buildings for uses other than warehousing is not warranted. These buildings have exceeded their depreciable life; and without extensive renovation, are not suitable for modern industrial use. The PV Future's report found "The Pajaro Valley has a large number of parcels and buildings that may be appropriate for substantial remodeling or demolition and redevelopment. These parcels and buildings include fourteen vacant buildings identified in the database with a probable future use of "non", which means that the consultant team believed that they would be torn down rather than being reused. There may be similar additional parcels and buildings."

The study also found that the property owners were receiving an adequate return on their investment, and as such, there wasn't sufficient incentive for redevelopment. Consideration should be given to amending the existing redevelopment plan and implementing an aggressive redevelopment program in order to create the financial impetus needed to encourage property owners to redevelopment or substantially rehabilitate these industrial buildings (CDD, pp. 12-13).

II.B. Commissioner Statements

Comm. Bell: In this study, almost 117 acres of land were identified available for industrial development; however, the City staff only recognized 38 acres with potential for industrial development. This study also identified existing industrial sites, but the City did not address this area specifically. Without a long-range plan of orderly development in place she cannot support the conversion of this prime, unique farmland (COMM, p. 9).

Comm. Wormhoudt: She thinks that the cost of development of this property is extraordinarily high for a low income city. Policy 3.1 says "Urban growth shall be guided away from prime agricultural lands unless that action would not promote planned orderly efficient development of an area." There are other places for Watsonville to grow (COMM, p. 11).

III. DENSITY

III.A. Findings and Conclusions of Studies/Staff Reports/City Memoranda

Futures Study: Residential Recommendation

Recommendation 8: Redesignation for Increased Density.

Redesignation of General Plan residential development densities to reflect new urbanist principles of compact, transit-oriented development in specific areas. An alternative to this could be the allowance of density bonuses for infill projects in downtown areas and new development projects in designated compact development areas (Futures Study, p. E-13, Residential Recommendation).

City:

The Study's proposed (theoretical) increases in density are unrealistic because they are inconsistent with housing market preferences and community demographics and are not supported by economic research.

The methodology used in the Pajaro Valley Futures Study to estimate residential development potential (the number of new housing units which potentially could be constructed) is flawed because the need for associated schools, park sites, and agricultural buffers was not given consideration.

Implementing the densities recommended by the Pajaro Valley Futures Study would mean eliminating the construction of new detached single-family housing in major new projects (e.g., Landmark). The average density called for in the Pajaro Valley Futures Study for all new housing in Watsonville is 26 dwelling units per net acre. It recommends achieving this density by requiring approximately 97 percent of all new housing to be built at the high end of multi-family style densities or greater (i.e., 24 to 36 dwelling units per acre).

Some examples of "new urbanism" projects and densities identified in the study are comparable to development that has occurred in Watsonville. For example, Landis Avenue townhouse [sic] are designed at 16 dwelling units per acre.

Many large-city examples, however, are inappropriate for Watsonville. Higher-density apartment projects located in such places as Los Angeles, San Jose, and Oakland are built at 34 to 77 units per acre and are possible because these cities have well-developed transit systems and higher household incomes (CDD, pp. 1-2).

While staff generally supports serious consideration of a variety of "new urbanism" policies, staff does not accept the characterization of "new urbanism" contained in, or the residential densities proposed by the Pajaro Valley Futures Study. As part of the livable Communities program, staff will continue to explore how compact, transit- oriented, infill development can be implemented in the Watsonville context.

One approach being pursued is the Livable Communities Design Charrette in late March. The charrette will bring nationally-recognized experts on "new urbanism" together with Watsonville residents to explore how "new urbanism" principles can be implemented in Watsonville's largest remaining residential development area in Landmark. The charrette is funded in part by the U.S. Department of Energy (CDD p. 6).

III.B. Commissioner Statements

Comm. Beautz: She is not particularly impressed with the studies. We talk about things not wanting to look like San Jose, but a [sic] she feels the Futures Study would make it look like San Jose. She was appalled at the high density housing and what it would look like. That is not what seems to fit into Watsonville (COMM, p.12).

Comm. Wormhoudt: In fact, the demand for housing might very well increase with the introduction of new jobs raising housing prices and decreasing the vacancy rate thus further disadvantaging low income people.

Jobs and housing for low income people are the two issues that would be overriding considerations in being willing to sacrifice prime agricultural land. Unfortunately, she doesn't feel that in this case, it can met the test of reasonably attainable results (COMM, p. 10).

IV. EMPLOYMENT

IV.A. Findings and Conclusions of Studies/Staff Reports/City Memoranda

Futures Study: Industrial Recommendations

Recommendation 20: Attraction of Santa Cruz County Businesses.

Create a program to attract industrial companies currently located in Santa Cruz County (Futures Study, p. E-12, Industrial Recommendation).

City:

In addition to the financial incentives program offered to industrial businesses, the City's industrial business outreach program is already largely focused on Santa Cruz County. Attachment 4 is a summary of serious inquires for space from new business prospects in Watsonville. It indicates that 54 percent of the inquiries have come from the Pajaro Valley, Santa Cruz or Monterey counties. Attachment 5 is a summary of industrial businesses that have opened in Watsonville since 1989, for which we know the origin of business. Of the 55 businesses listed, 43 were from Santa Cruz County. Given the finite availability of industrial land and buildings, we have done an excellent job of attracting businesses from the immediate market area (CDD, p. 13).

Futures Study: Industrial Recommendations

Recommendation 21: Job Training.

Expand City's job training programs to prepare workers for food manufacturing and high-tech companies (Futures Study, p. E-12, Industrial Recommendation).

City:

The City currently has two job training programs: the Retail Readiness Program and the Enterprise Community Youth Network Job Training. . . The Enterprise Community Youth Network Job Training is funded by the U.S. Department of Agriculture program with very specific guidelines and limited funding. . . The curriculum provides youth with basic job skills that are needed in every field. Consistent with the PV Futures recommendation, City staff will redouble our efforts to ensure that the existing job training programs include general skills desired by both high tech and food processing employers. The current funding limits our ability to expand our program. The City does work closely with the County of Santa Cruz Careerworks, which is funded through the Job Training Partnership Act (JTPA). Careerworks has a $4 to $7 million annual operating budget and may be the better candidate to implement this recommendation.

In addition, the City has worked closely with Cabrillo Community College and has been successful in efforts to develop a satellite campus in Watsonville. The Community College system also provides technical training. We will continue to foster this cooperative relationship with Cabrillo College and encourage the development of curriculum that provides basic job skills (CDD, pp. 13-14).

The City will also work closely with the County of Santa Cruz' job training programs, Cabrillo College, and other local job training programs. For example, City staff participates on the Steering Committee of the Ladders Project, Private Industry Council (PIC), Summer Youth Employment Training, Cooperative Work Experience Program, and the Coalition for Workforce Preparation (CITY, p. 5).

LAFCO Staff: Standard 2.4.1:

For city annexation proposals, if the city has more jobs than places for workers to live (jobs to employed residents ratio greater than 1.00) then a proposal which will directly result in urban development including new permanent employment may only be approved if sufficient land is designated for residential uses in the city's general plan to create a jobs/housing balance.

Staff Findings and Determinations:

In 1996, within the city limits the Economic Development Department (EDD) estimate of employed residents was 14,150 out of a total labor force of 17,070 (82.9%). The 1997 EPS study for LAFCO estimated that in 1996 there were 29,738 non-governmental jobs in the greater Watsonville/Freedom area. Since the jobs data is based upon an area larger than the city limits, an accurate ratio for the city limits cannot be calculated. The City's general plan designates a balanced program of industrial, commercial, and residential growth (LAFCO STAFF, p. 6).

IV. B. Commissioner Statements

Comm. Gualtieri: If you just take 94 acres and commit to producing 900 jobs, that is a tall order. He only heard from one person who would be willing to expand his industry in this area. It would have been helpful for him to have some letters of intent on the part of industries interested in moving here. In general he thinks this is something that will happen. He doesn't think this is the time for it to happen (COMM, p. 14).

Comm. Wormhoudt: The problem of unemployment in Watsonville does not appear to be the result of too few jobs, but rather of a poorly matched job market and work force. Employment in Watsonville has actually increased far more rapidly than in other parts of the county. In fact, the EDD labor market data indicates that there are far more jobs in Watsonville than there are adults in the full-time labor force (COMM, p. 10).

There are things we can do to increase opportunities for young people in Watsonville. Job training, specifically geared to future high-tech activity and away from dead-end or low paying jobs is one strategy. Arrangements with new employers to try to hire locally and to do on-the-job training in exchange for benefits of enterprise district tax breaks. Working with the school district and Cabrillo College in specific job training programs and ways to encourage kids to stay in school is of critical importance. She is more than willing to participate in any of these discussions and to encourage the Board of Supervisors to continue to use resources in this area in any way possible (COMM, p. 11).

CONDITION #2:

Evaluate the potential to re-designate part or all of the vacant Landmark planning area, immediately north of the Manabe/Burgstrom site, from residential to industrial.

- this evaluation to include consideration by the City of appropriate regulatory or other actions which would encourage industrial development, including redesignation and rezoning of all or part of the property for industrial use. (LAFCO Exec. Officer's Report, 7.12.99, page 3)

Note: It is not within the purview of the LAFCO body to directly regulate land use, such as general plan and zoning designations, within a city (Government Code Section 56375 (a)). The Landmark properties under question (including Bay Breeze and Stonecreek residential) have been within the City limits since 1979.

A. Findings and Conclusions of Studies/Staff Reports/City Memoranda

Landmark Study:

The Landmark properties are not competitive as an industrial site in the near term. The cost of developing the sites is too great to support industrial use (CITY, p. 2).

City :

The reasons given to support this conclusion are that the cost of a needed infrastructure, the hilly terrain, and the soils conditions (caused by the existence of peat moss - an organic compound) associated with the Landmark property significantly increases the cost of development. The Landmark Study further indicated that whereas industrial development was not feasible on the Landmark property, that same conclusion would not apply to the proposed 219-acre Riverside Drive annexation because the Riverside Drive area is closer to existing infrastructure and does not have the same topography and soil challenges. This conclusion substantiates the conclusions of a prior analysis prepared by the Urban Land Institute in February 1997 (CITY, p. 2).

On October 13, 1998, the Watsonville City Council adopted a resolution accepting the Landmark Study and found that the Landmark properties are not competitive industrial site under current market conditions and determined, for the purposes of LAFCO, that sufficient industrial potential did not exist to warrant rezoning the property to industrial use without a request from the property owner to do so (CITY, p. 3).

Landmark Study:

Market-rate multi-family residential development may not be feasible on the Landmark site either. The cost of developing the sites is too great to support unsubsidized multi-family housing (CITY, p. 2).

City:

. . . the Landmark Study concluded that subsidized affordable or perhaps mixed income multi-family development would be more viable than strictly market-rate multi-family housing. The Stonecreek project, the 120-unit project presently under construction on the lower level of the Landmark site, is a tax-credit project that will create 120 affordable units. The competition for similar funding has become extremely competitive, and other subsidies are not available in significant magnitude to make additional affordable housing feasible. Additionally, it would not be good policy to concentrate strictly affordable housing projects within one geographical area (CITY, p. 2).

MEMO:

The Landmark Study did not address the impact zoning has on land value and questions whether residual land value might be increased if the property was zoned for commercial use (MEMO, p. 2).

City:

There is no question that residual land value could be increased if either the Landmark property or the Manabe-Burgstrom sites were zoned commercially. There is also no question that prior market studies have indicated that the amount of sales-tax leakage is such that Watsonville could absorb more commercial development. However, the City Council has made the policy decision that the lack of jobs and housing are of primary importance in the creation of a balanced community. The Council has approved industrial pre-zoning for the Manabe-Burgstrom property and residential developments are in pre-development stages for the Landmark properties. In addition, the City has agreed to a tax-sharing agreement for the Manabe-Burgstrom annexation which mandates than [sic] any sales-tax generated from this area in excess of $300,000 per year be shared with the County. This is a strong indication of their commitment that this proposed annexation be developed as an industrial park (MEMO, p. 2).

B. Commissioner Statements

Comm. Anderson: As the people in Watsonville know, he has been critical of the Landmark Feasibility Study. He thinks there are lots of things promised in that study that the consultants did not produce. In particular they did not consider the possibility of any kind of subsidies in terms of development of the Landmark property. It seemed the result of that study was preordained to support housing.

. . . The question being: Is the financial and economic development plan of the City sufficient to be able to actually do something for their unemployment problems? When he looks at it, he finds several contradictions. Their own consultant says that the Enterprise Zone designation really didn't make any difference about putting industrial growth on the Landmark property. This is surprising to him and he wonders how much this will transfer over to the Manabe/Burgstrom property. He also doesn't understand the claim that visibility from Highway 1 increases the value of land in the Manabe/Burgstrom property. He can understand it if an auto dealer is being considered, or a box store, but for industry he doesn't see it at all. Maybe the City would like to make a comment about that (COMM, pp. 13-14).

Comm. Bell: First, the City needs to re-address the Landmark development feasibility study of 1998. Initially this development was to be residential to help reduce the housing shortage in the Watsonville area. In this study the consultant concluded that multi-family development on this site was not viable without subsidy because market rents would not support the cost of construction (COMM, p. 9).

CONDITION #3:

Enter into an agreement with the agencies with land use planning authority (the County of Santa Cruz and the California Coastal Commission) in order to improve the process to coordinate planning efforts.

A. Findings and Conclusions of Studies/Staff Reports/City Memoranda

City:

The City of Watsonville has executed into a Memorandum of Understanding with the County of Santa Cruz regarding an expanded review process involving the City, County and Coastal Commission for Sphere of Influence requests west of Highway One. The expanded review process involves the following:

1. Early Review of Environmental Process - 4(a): In addition to the typical pre review scoping process, the City will notify County and Coastal Commission when initiating environmental review and the agencies will meet and confer to review preliminary issues. (Normally this is accomplished through a Scoping Session and Notice of Preparation);

2. Pre-Release of Relevant Portions of EIR's - 2 (d): The City will submit preliminary drafts of sections of any EIR discussing County or Coastal policies for review by the respective agencies (County and Coastal Commission). (Normally comments are handled through the review of the draft EIR. Such review would still occur);

3. Pre-Application Notice: The City will notify County and Coastal Commission and submit copies of any Sphere of Influence prior to filing the application with LAFCO. (Normally referral to these agencies would be handled by LAFCO, after the application is filed. This referral will likely continue);

4. Review and Comment on Application to LAFCO: Prior to submitting a Sphere of Influence application with LAFCO, the City will meet with County and Coastal Commission staff to review consistency of the application with relevant policies of the respective agencies. The agencies will submit comments in writing to the City prior to submitting comments to LAFCO. (Normally this type of interaction is optional and comments from other agencies would be submitted directly to LAFCO. Agencies still may submit final comments to LAFCO);

5. Consideration of Thresholds of Significance: Under the California Environmental Quality Act (CEQA) agencies are empowered within prescribed guidelines to adopt "thresholds of significance," which are standards determining when an impact is considered "significant." The City shall use thresholds of significance as requested by the County's Planning Department and/or Coastal Commission staff for potential impacts related to relevant policies of these agencies. (Normally the City would look at other agency standards in the process of adopting its own, but it is not mandatory) (CITY, pp. 5-6).

B. Commissioner Statements

Comm. Ainsworth: It seems to her that the City has a much larger agenda, and it's only a matter of time that we'll be back to consider the next annexation that will be equally prime ag land (COMM, p. 13).

Comm. Van Houten: The agreement between the City, the County, with participation from the Coastal Commission does very little toward improving planning in the coastal zone (COMM, p. 15).

Other comments made by Commissioners:

Comm. Ainsworth: Because of the configuration of this property, eventually it will be annexed because of the liability issues. But she is not clear that the City is far enough along in the general plan process revisions, the response to the Futures Study, and the master plan for the wetlands (COMM, p. 12).

The 2005 general plan seems pretty aggressive in terms of growth rate and plans for the future. She wonders if LAFCO and Watsonville will ever be in agreement on this. She doesn't know how the City will ever alleviate this short of putting another general plan in place (COMM, p. 13).

Comm. Anderson: What it comes down to is the question: Can the City do it, and who is to decide that they can or cannot? He doesn't want to be in the position of saying they can't do it. He would rather have the City be given a chance to do it, and it will not be easy (COMM, p. 14).

Comm. Beautz: The City Council that represents the City supports this annexation. There is a broad spectrum on the Council. We have heard from a lot of young people that they don't feel there is a future here and that has to be addressed. This annexation, of only 94 acres, is a reasonable request. She is struck by the issue that it might not ever get addressed as industrial land and she would personally trust the current Council to do what they say they are going to do. Since Councils can change, there are ways to address that. She thinks it would be appropriate to remove the PD overlay to put in other ways to make decisions on that property (COMM, p. 12).Comm. Bell: Even though the City states that the 94-acres will be used to develop an industrial park, she is concerned that without a long-range plan there is no specific commitment to follow through. She would like to see the City work with the new coalition of City and County officials, environmentalists, business leaders, non-profit organizations, as well as the agricultural and public community to develop a long-range vision plan for the Watsonville area. She recommends that this coalition consider the Pajaro Valley Futures Study.

Without an overall plan for the Watsonville area the City seems doomed to a future structure dominated by urban sprawl (COMM, p. 9).

Comm Gualtieri: The City has come forth with many ideas, most of which focus on generating jobs. The key to jobs is not so much to getting land and putting industrial buildings on it, but is to get an education. He heard many ideas on how to do that and he applauds them and supports them. He encourages the citizens of the area to support the education of the young. That's the way you get jobs. And they don't have to be in a particular location. They can be anywhere in the region.

The thing that he would like to see is incremental annexation of the area. . . . There are 35 acres that are east of Errington road, and his thought was that incremental annexation of this area starting with that portion would be something that might be favorable. The response could be that would not be enough to do anything with. In situations where you don't have a complete plan, where you are hoping to establish goals, a beginning might be incremental annexation (COMM, p. 14).

Comm. Van Houten: He was disappointed in the industrial feasible study of the Landmark property. He was disappointed in the response to the Futures Study.

He was disappointed to see residential development appear so quickly on the Landmark property and the project along Watsonville Slough. He is not comfortable with the plan for restoration of Watsonville Slough or some of the other sloughs within the City. He is not satisfied that, given the annexation that the good things that are sought will come. He is not convinced that these things will be good for the City. He is not satisfied with the commitment to infill development.

He is voting on principles (COMM, p. 15).

Comm. Wormhoudt: The City theorizes that it would free up better housing for low income people and eliminate the worst housing situations. Actually, if you could build a moat around the City of Watsonville insuring a stable population and new housing, that desired effect might occur. However, without that protection, new jobs would attract new residents. She finds it unlikely that low income people will benefit (COMM, p. 10).

Standard recommended by staff but not addressed in Commissioner statements during public hearing held August 3, 1999:

Standard 2.3.1:

The Commission shall amend or reject any proposal that, in its estimation, appears to select principally revenue-producing properties for inclusion in a jurisdiction.

Staff Findings and Determinations:

Industrial uses usually do not generate significant net income to a city. The City is conducting a program to annex the largely residential areas of Freedom; therefore, the Manabe/Burgstrom proposal is part of a balanced annexation effort by the City (LAFCO STAFF, p. 6).

ACTION

Motion: Wormhoudt Second: Bell

That the Commission deny this annexation application on the ground that it is not consistent with the Cortese-Knox Local Government Act or with local LAFCO policy and that staff is directed to return with the necessary resolutions and findings to support this action.

Commission Anderson asks if this motion is with or without prejudice?

Commission Wormhoudt responds that it is without prejudice.

ROLL CALL

Commissioner Beautz No

Commissioner Bell Yes

Commissioner Wormhoudt Yes

Commissioner Ainsworth No

Commissioner Gualtieri Yes

Commissioner Anderson No

Commissioner Van Houten Yes

Motion Carries with four Commissioners voting "Yes" and three voting "No" (COMM, p. 15).

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