1998 - 1999

COUNTY OF KERN

GRAND JURY

FINAL REPORT

COUNTY OF KERN OFFICIAL SEAL

The seal of the County of Kern depicts many of the major elements making up this

garden spot in the southern San Joaquin Valley.

The important early and long- time oil and gas industry is represented by the oil derrick.

In contrast, the space shuttle represents the county’s involvement in present day air

transportation and the military complex.

Sun rays remind us of our plentiful sunshine so important to our agricultural and

recreational activities. An outline of the county is the backdrop for a multiplicity of

county agricultural, industrial, and business endeavors.

The California bear stands behind scales representing equal justice to our citizens.

Mountains form the background. Cattle graze beside the Kern River. The pick and

shovel attest to the county’s mining industry. The railroad tracks refer to important rail

activities. Our agricultural importance is represented by the grapes, citrus fruits, and

bale of cotton shown on the seal.

ACKNOWLEDGEMENTS

Our deep appreciation goes to those close by who guided, encouraged, and helped us

through this one year of Grand Jury service – Kay Beavers, our Court Liaison; Bernard

C. Barmann, County Counsel; and Clarence Westra, Presiding Judge of the Kern

County Superior Court.

And there are so many others – they know who they are – who patiently answered all

our questions, showed us around their facilities, and assisted us in many ways as we

endeavored to fulfill our duties as jury members.

The 1998- 1999 Grand Jury

TABLE OF CONTENTS

County of Kern official seal… … … … … … … . … … … … … … … … … … … … … … … ..

Seal description and acknowledgements… … … … … … … … … … … … … … … … …

Table of contents… … … … … … … … … … … … … … … … … … … … … … … … … … … .

Foreman’s letter… … … … … … … … … … … … … … … … … … … … … … … … … … … …

Grand Jury members… … … … … … … … … … … … … … … … … … … … … … … … … …

Grand Jury photograph… … … … … … … … … … … … … … … … … … … … … … … … … .

Administration / Audit Committee… … … … … … … … … … … … … … … … … … … … ..

Mission statement… … … … … … … … … … … … … … … … … … … … … … … … ....

General Services – Reprographics… … … … … … … … … … … … … … … … … …

County Administrative office – Administrative Analysts… … … … … … … … … ..

General Services – Purchasing… … … … … … … … … … … … … … … … … … ...…

Information Technology Services… … … … … … … … … … … … … … … … … … ....

General Services – Construction Services Disvision… … … … … … … … … ..…

Health / Education / Social Services… … … … … … … … … … … … … … … … … … … …

Mission statement… … … … … … … … … … … … … … … … … … … … … … … … … ..

Hart Memorial Park / Buena Vista Recreation Area… … … … … … … … … … … .

Farm and Home Advisors Office… … … … … … … … … … … … … … … … … … … ..

Kern Family Health Care… … … … … … … … … … … … … … … … … … … … … ...…

Kern County Mental Health… … … … … … … … … … … … … … … … … … … … … …

Bakersfield Association of Retarded Citizens… … … … … … … … … … … … … … .

Jamison Children’s Center… … … … … … … … … … … … … … … … … … … … … .....

Department of Human Services… … … … … … … … … … … … … … … … … … … … .

Law / Justice Committee… … … … … … … … … … … … … … … … … … … … … … .

Mission statement… … … … … … … … … … … … … … … … … … … … … … … .

Kern County Sheriff– Lamont Substation… … … … … … … … … … … … .....

Lerdo Minimum Detention Facility… … … … … … … … … … … … … … … … ..

Lerdo Maximum / Medium Detention Facility… … … … … … … … … … … ....

McFarland Community Correctional Facility… … … … … … … … … … … … ..

Kern County Sheriff – Mojave Substation… … … … … … … … … … … … ..…

Camp Erwin Owen… … … … … … … … … … … … … … … … … … … … … … .....

Taft Correctional Instituition… … … … … … … … … … … … … … … … … … .....

Kern County Sheriff – Buttonwillow Substation… … … … … … … … … … …

Kern County Sheriff – Coroner / Public Administrator… … … … … … ..… ..

Cities / Service Districts… … … … … … … … … … … … … … … … … … … … … ...… ..

Mission statement… … … … … … … … … … … … … … … … … … … … … … … ..

City of Maricopa… … … … … … … … … … … … … … … … … … … … … … … ..…

City of Arvin… … … … … … … … … … … … … … … … … … … … … … … … … … ..

City of Tehachapi… … … … … … … … … … … … … … … … … … … … … … … … .

Golden Hills Community Service District… … … … … … … … … … … … … …

City of Bakersfield… … … … … … … … … … … … … … … … … … … … … … … …

City of Ridgecrest… … … … … … … … … … … … … … … … … … … … … … … ....

Airports Department… … … … … … … … … … … … … … … … … … … … … … …

Engineering and Survey Service… … … … … … … … … … … … … … … … ....

Edit Committee… … … … … … … … … … … … … … … … … … … … … … … … … … …

Mission statement… … … … … … … … … … … … … … … … … … … … … … ..…

Activities… … … … … … … … … … … … … … … … … … … … … … … … … … … ..

Recruiting Committee… … … … … … … … … … … … … … … … … … … … … … … ..

Mission statement… … … … … … … … … … … … … … … … … … … … … … …

Activities… … … … … … … … … … … … … … … … … … … … … … … … … ...… .

Continuity Committee… … … … … … … … … … … … … … … … … … … … … … … …

Mission statement/ activities… … … … … … … … … … … … … … … … … … … .

Responses to final reports… … … … … … … … … … … … … … … … … … … ..

Continuity report… … … … … … … … … … … … … … … … … … … … … … ...… ..

Ad Hoc Committee… … … … … … … … … … … … … … … … … … … … … … … … ..…

Mission statement… … … … … … … … … … … … … … … … … … … … … … … ...

Central District Development Agency… … … … … … … … … … … … … … … .

Citizen complaints and indictments… … … … … … … … … … … … … … … … … … ..

June 30, 1999

Honorable Clarence Westra Jr.

Presiding Judge of the Superior Court

1415 Truxtun Avenue

Bakersfield, California 93301

Dear Judge Westra,

The Final Report of the 1998- 99 Kern County Grand Jury is respectfully submitted to

you for filing with the County Clerk in accordance with Section 933( a) of the California

Penal Code. It contains the findings and recommendations resulting from the Grand

Jury investigations carried out under Sections 919, 925, 933.1 and 933.5 of the

California Penal Code. Each individual report received the concurrence of the Grand

Jurors as required by Section 916 of the California Penal Code.

This Grand Jury consists of 19 individuals of various backgrounds and abilities. They

range in age from 44 to 81 years. For many, the preparation of a report was their first

foray into the world of computers. They developed into a cohesive unit during the

course of the year and undertook the task of monitoring public agencies and

investigating citizen’s complaints in a positive manner. The individual expertise and

perspective which each brought to the jury has helped make the Final Report both

objective and positive.

The support and encouragement that you have so generously given throughout the

year is appreciated by all members of the Jury, especially myself. In addition, we wish

to thank the Court Staff for the many instances where they aided us in administrative

matters, which seemed to come up almost daily. Singling out Mr. Terry McNally, Mrs.

Kay Beavers, and Mrs. Joanne Schrock in no way detracts from our appreciation of the

efforts of the entire staff.

The guidance and advice of County Counsel, Mr. Bernard Barmann, and Mr. Stephen

Schuett has been invaluable during our tenure as Grand Jurors. They were never too

busy to explain the nuances of the law to those of us not initiated in its finer points.

We wish to express our thanks to Mr. Ed Jagels and his staff, who were always

available when we called for assistance. A special thanks to Mr. Steve Tauzer and our

prayers for a complete and speedy recovery from his health problems. Lt. Tam

Hodgson, of the Bureau of Investigation for the Office of the District Attorney, has been

especially helpful and is to be commended.

One of the tasks undertaken by the Jury each year is the recruiting of new members for

the following year. The assistance of the Kern County Fire Department in allowing us

to share their space at the Kern County Fair to set up an informational booth is greatly

appreciated.

This year’s Jury has made a commitment to computerize our operation in order to make

the preparation of the Final Report both uniform and timely. The Auditor/ Controller’s

office has kindly donated several of their surplus computers to the Grand Jury, greatly

enhancing our capabilities. The majority of the members started the year with little or

no knowledge of how to use a computer. Thanks to the patience and guidance of Miss

Karri Fogle, in a sometimes- hectic training program, most are now among the

“ computer literate”.

The various agencies and departments with which we have dealt during the past year

have reinforced the perception expressed by past Grand Juries that Kern County has

some of the most capable and dedicated employees to be found anywhere.

On a more personal note, I wish to express my feelings about serving on the 1998- 99

Grand Jury. I deem it an honor and a privilege to have served with 18 talented and

selfless individuals who have taken on a momentous task and completed it.

Sincerely,

Robert Schilly, Foreman

Kern County Grand Jury 1998- 99

GRAND JURY MEMBERS

PANEL

Elmer M. Anderson

Shafter

Charles C. Bennett

Bakersfield

Anna Cleveland

Bakersfield

MaryHelen Cordova

Bakersfield

Robert Gallaher

Bakersfield

Harry J. Helsley

Shafter

George Howell

Bakersfield

Frank K. Johnson

Bakersfield

Norman E. Johnson

Bakersfield

Harold W. Nelson

Ridgecrest

Frank G. Pitts

Bakersfield

Lloyd R. Rudberg

Caliente

Charles P. Schumann

Bakersfield

Robert A. Schilly

Bakersfield

Thomas D. Stockton

Glenville

Walter E. Swanson

Bakersfield

Judith E. Valenzuela

Bakersfield

Robert T. B. Walker

Bakersfield

Ferrelene Zachary

Bakersfield

OFFICERS

Foreman

Robert A. Schilly

Foreman Pro Tem

Norman E. Johnson

Secretary

Ferrelene Zachary

Assistant Secretary

Lloyd R. Rudberg

Sergeant At Arms

George Howell

Parliamentarian

Frank G. Pitts

Advisors

Clarence Westra Jr.- Presiding Judge Superior Court

Bernard C. Barmann- County Counsel

Kay Beavers- Superior Court Liaison

ADMINISTRATION & AUDIT COMMITTEE

Norman E. Johnson, Chair

Robert Gallaher

Anna Cleveland

Harry J. Helsley

Frank K. Johnson

MISSION STATEMENT

The Administration & Audit Committee is responsible for reviewing and overseeing

departments and agencies in their management and performance of operations and

execution of fiscal responsibilities. This committee also addresses citizen complaints

pertaining to the same areas.

The committee was pleased to discover this year that the County Administration

operations and policies for the most part were both well designed and well executed.

The county employees the committee worked with were knowledgeable about their

respective positions and very interested in any improvements the members could

suggest. Their warm and open welcome made it easy to discuss the various county

functions, goals, and purposes as the committee reviewed their operations. Committee

member views of local government activities and management improved through

exposure to the county management and employees.

The following pages reflect many hours of interviews, reading, discussion, researching,

and writing to compile as accurate a view as is possible of the county functions that the

committee addressed. The reports cannot capture all of the peripheral sources and

effort that people made to help the committee to understand and appreciate the “ whole

picture” of local government and where each department contributes to the success of

the county. While other county operations could have also been high- lighted in these

reports, time did not permit the kind of in- depth review and analysis that seems

necessary in order to present a balanced view of their contributions.

This committee extends its thanks to our fellow grand jurors as well as to the many

county employees who helped us this year.

GENERAL SERVICES - REPROGRAPHICS

PURPOSE OF INQUIRY:

To review the cost effectiveness of in- house duplicating, copying, and printing.

LOCATION:

Reprographics is a unit of the General Services Division of the County Administrative

Offices and is located at 1501 L Street.

BACKGROUND:

A management audit by Allred & Associates, Inc. in 1994 recommended that the county

phase out the duplicating ( later called Reprographics) function “ because commercial

printers can provide equal or better service at a reduced cost.” Since the operation is

still continuing to date, the committiee was interested in looking into the reasons for it.

METHOD OF REVIEW:

The committee toured the facilities; interviewed the Supervisor of Reprographics;

selected printing job samples, which were priced at several local printers; and

compared the costs of having those items printed in- house versus being printed by

commercial printers.

FINDINGS:

Reprographics provides duplication and “ desktop publishing” services for county

departments. This includes composing/ set- up, reproduction, and finishing functions

that are necessary to complete the processing of duplicating requests. The department

is also responsible for stocking and providing items that are in large demand by county

departments, such as paper products and copy machine supplies. Base paper stock is

also printed and stored for repetitive printing requests to save time and costs in

producing them.

This department has a wide array of copy and printing equipment to produce

documents from plain black printing to multi- colored, from single sheet to folded, and

bindings from unbound, glued, stapled, or multi- ring. There is a computer graphics

artist on staff to produce or assist department heads with preparing appropriate copy

for the printing operations. At present, the majority of its printing orders arrive via hard

copy by mail, with others arriving via telephone or by e- mail. On hand software is state

of the art in order to meet design and composition requests. Most multi- colored jobs

are produced on copy equipment, but it does have the ability to print two color jobs in

one- run. Recently a new inserter was purchased that can do more in about one- third

the time than the old machine and is able to gather and stuff flat books, ready for

mailing.

The management audit by Allred & Associates, Inc. recommended that the county

phase out the duplicating ( later called Reprographics) function “ because commercial

printers can provide equal or better service at a reduced cost.” The recommendation

led to efforts by a Reengineering Team to determine how products of this operation

could be produced in a cost- effective manner. At the same time the store and

warehousing operation was greatly reduced, moving to just- in- time stock delivery. It

apparently was determined that certain time- sensitive products needed to continue to

be produced by the county and that increased cost- effectiveness could be achieved by

modernizing the reprographics function. The department became a stand- alone

internal service fund for budgeting purposes. Its cost effectiveness is now dependent

upon increased product volume to cover the capital investment in modernizing the

operation.

Since all county departments have the option of using private printers and most have

their own copy machines, this department is aware of the need to promote it’s ability to

produce quality items promptly at a reasonable cost. It is doing all it can think of to

advertise its ability and win other departments as customers. It is also aware of the

need for controlled growth in order to maintain quality and service standards while

increasing the number of printing orders. It sees its present market niche in the

medium to small orders, recognizing that major orders could tie up equipment and

manpower sufficiently to disrupt service and quality.

Currently its major customers are the Kern Medical Center, Mental Health Department

and Public Health Services Department. Outlying county operations also use

Reprographics extensively for their printing needs. The outlying areas receive items

once a month via scheduled deliveries, but are encouraged to pick up their items when

in Bakersfield, or they are more commonly sent with Human Resources vehicles, which

make periodical visits to those areas.

COMMENTS:

Staff expertise and modern equipment enable this department to produce impressive

products for the county operations. However, when the committee took twenty samples

( requiring varying degrees of expertise) that it produced to commercial printers in the

area, we found that Reprographics prices were approximately 20% higher, on average.

However, in some cases the “ best price” was by printing in- house. In addition, many

departments have computer equipment and copiers that permit some products to be

produced within the department.

While we recognize the need for this in- house function in order to produce certain

products that cannot be safely printed by outside sources, many departments could

enjoy considerable dollar savings by utilizing other printing alternatives. However, it is

too easy for departments to utilize the in- house source without taking the time to make

valid price comparisons at outside commercial printers that are available to them. One

solution could be to establish Reprographics as THE printing source for departments

for all their printing needs. It should then utilize the private vendors for printing, at less

cost, whenever possible and add an up- charge to the order as a handling fee. While

this may make it impossible for Reprographics to reach a break- even cost level, and

will require continued county subsidization, the over- all county costs will be greatly

reduced.

RECOMMENDATIONS:

That the Reprographics Department take the following actions:

Research and utilize area commercial printers for printing that they can do cheaper

than can be done using the in- house facility.

Produce only cost effective products or items that are time- sensitive or for other

reasons must be produced in- house.

Focus promotions on the ability of this department to assure that printed products for all

departments will always be produced in the most cost effective manner.

RESPONSE REQUIRED WITHIN 90 DAYS TO:

PRESIDING JUDGE

KERN COUNTY SUPERIOR COURT

1415 TRUXTUN AVENUE

BAKERSFIELD, CA 93301

Board of Supervisors' Response to Findings

The Board of Supervisors notes that the findings regarding the operations of the unit are

substantially correct.

Board of Supervisors' Response to Recommendations

One of the key components of the decision to continue the reprographics function as an

in- house service was the introduction of competition in the manner in which printing

services are delivered to County departments. Reprographics staff will commonly refer

customers to private vendors for items which cannot be produced competitively. County

departments also seek bids from outside vendors. The Grand Jury's report suggests that a

potential cost savings can be incurred if other vendors are used. This determination was

made based on a small sample of products whereby private vendors were asked to

provide a bid. Unknown is whether these vendors were aware of the reasons for the

request, such as for comparison only, or if all costs ( i. e. setup) were included in the bid

request. Nonetheless, the Board of Supervisors concurs that it is desirable to frequently

compare prices and costs.

Reprographics is available to assist and advise County departments on printing needs.

Requiring departments to use Reprographics would remove the decision from

departments as to how to most cost effectively meet their operational needs and would

remove the competitive element that has been effective in maintaining lower costs.

COUNTY ADMINISTRATIVE OFFICE

ADMINISTRATIVE ANALYSTS

PURPOSE OF INQUIRY:

To identify the role of Administrative Analysts in budget preparation and their

effectiveness.

LOCATION:

This position reports to the Budget Director, who in turn reports to the Assistant County

Administrative Officer. The offices are located on the fifth floor of the County

Administration building at 1115 Truxtun Avenue.

BACKGROUND:

While observing the annual budget hearings before the Board of Supervisors, Grand

Jury members realized that the Administrative Analysts played a unique role in the

County operations as they were called on to be the constraining force to expanding

department budgets. The Grand Jury is interested in supporting their efforts and in

seeking ways to assist them.

METHOD OF REVIEW:

Initially the Grand Jury invited an Assistant County Administrative Officer to speak to it,

followed by a series of individual interviews with the Budget Director and each

Administrative Analyst to review budget questions pertaining to their assigned

departments. The Jury also reviewed every “ Request For Budget Transfer” forms that

departments filled out at the end of the 1997- 1998 fiscal year as well as any sent

monthly during the following fiscal year to track budget events throughout the year.

FINDINGS:

The County Administrative Office ( CAO) provides staff services to the Board of

Supervisors. Part of the responsibilities include reviewing all departmental budget

requests and submitting recommendations to the Board; coordinating budget

development and providing general oversight of budget execution; performing

continuous research, investigation, analysis of administrative practices to recommend

improvements; providing departments with consultation and coordination on budgetary

matters; and performing analyses and preparing reports in response to referrals from

the Board. The Budget Director and a staff of Administrative Analysts assist in the

performance of these duties.

The Administrative Analyst deals with powerful elected officials and appointed

department heads who act as the engine to drive services, and their accompanying

costs, forward in response to their constituencies. The analyst acts as the brakes to

the system to maintain a balance between competing groups for available dollars and

limiting costs within budget guidelines. The tension between these objectives requires

professional conduct, questioning minds, and critical thinking in order to accomplish

solid working relationships and responsive government in the county. The Jury found

that the current staff accomplishes these goals and are deserving of the jury support

and compliments.

The CAO understands the need for critical analysis of budget requests, and attempts to

keep critical and fresh analysis available. Proposed budgets are required to justify

every new expenditure or deletion and stay within the annual budget guidelines that are

usually issued in March. Preliminary dialog will often begin between the analysts and

department staff, but the final recommended budget will be decided between analyst

and department head, unless disagreements lead to the CAO being involved as well.

Generally there is no public involvement in the early stages of budget development,

although some County Supervisors have held town meetings or district workshops to

gather data and identify priorities.

Since the county is self- insured, department insurance costs ( liability, workers

compensation, medical, etc.) are experience- rated, adjusted, and allocated

accordingly. Analysts take into consideration county population growth, federal and

state mandates, special departmental needs, and they try to identify any other factors

that will impact a particular department.

All of the current administrative analysts have come to the position from staff in other

county functions, and their pay level permits appropriate transfers. When selecting

candidates emphasis is placed on superior verbal and writing skills and independent

and critical thinking skills. Most of the responsibilities entail researching and analyzing

data to respond to Board of Supervisors referrals. Each analyst utilizes the Automated

Budget Preparation System.

COMMENTS:

The committee found that these individuals were well trained. They conduct

themselves in a professional manner and make sincere efforts to curtail any

unnecessary budget expansion.

Currently some analysts have been assigned to review the same group of departments

for at least ten years. The goal is to have analysts rotate among departments every

one to five years, with the longer time frame required for certain groups ( like medical)

that require more technical expertise. It is beneficial to leave an analyst in the same

position for up to five years in some cases; however, a balance must be maintained

between fresh “ eyes” that see opportunities for improvements and experience to

understand the department operations, needs, and goals. Undoubtedly

communications are enhanced by years of working together; however, there is a

danger at some point of becoming part of the “ team” and losing the perspective of an

“ outsider” looking for improvements to the operations. While it takes significant effort

on the part of both the departments and the administrative analysts to change

assignments every several years, changes have been successfully accommodated

when those changes occurred through promotions, terminations, or other personnel

actions in the past. Perhaps the value of having fresh perspectives introduced into

budget discussions will out- weigh the effort needed to implement it.

A second opportunity for “ fresh” or “ outsider” perspectives could be accomplished by

forming analyst teams ( in some ways similar to the reengineering teams that have been

used so successfully in the county) to select a department budget for zero base

analysis during the off- peak budget season. As the “ team” dissects and re- builds a

budget from a zero base, and when justifying each budget item, perhaps opportunities

will present themselves for new ways to accomplish the department mission at reduced

cost. In any case, it will afford opportunity for critical analysis by several experienced

analysts.

Departmental budget changes made subsequent to final budget approval are

introduced through a “ Request for Budget Transfer Form.” These transfers provide a

way to adjust approved budgets to meet the actual events that a department

experiences which may vary from what was anticipated. Moving money between

accounts within the budget doesn’t affect the overall budgetary limits that had been

established.

Budgets also contain a category for “ contingencies” that can be called on for

emergency funds when unanticipated expenses occur. This category is also used for

unanticipated revenues should they occur during the year. Significant use of this

category can occur when Federal or State programs are shifted to the county during the

budget year or new ones are initiated. Usually, new responsibilities are accompanied

by the funds to meet them, thus requiring budget transfer requests to move the funds

into the contingency account and back out to another budget category. Use of the

“ contingency fund” for these situations confuses the record of true contingencies and

could be avoided by establishing a separate budget or creating a separate addendum

to the existing budget for new programs when they are initiated during the budget year.

While some evidence points to a continuing mind set of “ use it or lose it” toward budget

dollars, this county has made good strides toward resisting it through the Budget

Savings Incentive Program ( BSI) and developing accountability through individual

budget units. Yet, it is easy to fall into the thinking of annual budgets being

departmental entitlements that must be spent by fiscal year end in order to qualify for

equal future budget dollars. We would encourage both the department heads and the

administrative analyst group to continue to search for ways to overcome the “ use it or

lose it” approach.

Occasionally, individual departments have opportunity to utilize surplus County

equipment that would otherwise be sent to auction for disposal. Departments also have

information available to them from the Purchasing Department regarding the “ best

value” prices for commodities when seeking them. Unfortunately, it doesn’t seem as

though all departments take full advantage of these opportunities. If the analysts were

made aware of this lack, they might be able to encourage greater participation by the

departments for which they are responsible.

RECOMMENDATIONS:

That the County Administrative Officer establish the following policies:

The County Administrative Office continue to rotate the Analysts responsibility among

all of the county departments to provide critical and analytical budget evaluations with

fresh perspectives.

Analysts form teams to select and dissect a department budget from a zero base

position to identify cost savings during the off- peak months of budget activities.

Department Heads and Administrative Analysts look for ways to overcome tendencies

toward thinking of budgets as a “ use it or lose it” proposition.

Special budgets or addendum to existing budgets should be developed to

accommodate new programs when they are introduced during a budget year and avoid

use of the contingency fund for these situations.

Administrative Analysts seek information from the Purchasing Department regarding

department utilization of surplus county equipment and “ best value” buying habits and

use this information during budget formulation and review.

RESPONSE REQUIRED WITHIN 90 DAYS TO:

PRESIDING JUDGE

KERN COUNTY SUPERIOR COURT

1415 TRUXTUN AVENUE

BAKERSFIELD, CA 93301

Board of Supervisors' Response to Findings

The Board of Supervisors notes that the findings are substantially correct.

Board of Supervisors' Response to Recommendations

The Board of Supervisors concurs with the Grand Jury's assessment that the need for

expertise in topical areas must be balanced with the need to gain new perspectives on issues.

The rotation of analysis in the budget area will continue on an as needed basis. The County

Administrative Office works closely with County department heads in the development and

execution of their budgets. Work will continue and ideas sought to alter individual mind-sets

of the budgeting and expenditure process.

The County Administrative Office in coordination with the Auditor- Controller- County

Clerk's Office devised a number of administrative and accounting changes to accurately

track unanticipated revenues throughout the year and separate them from the annual

amount budgeted for contingencies. This modification has already been implemented.

The availability of surplus equipment that may be used to fulfill the needs of another County

department will be reviewed during budget formulation and review. The concept of zero-based

budgeting within a team environment is meritorious and the County Administrative

Office will take this recommendation under consideration. Budgetary constraints and the

requirement to hold an analyst position vacant during FY 1999- 2000 will likely prevent

implementation of this concept in the near future.

COUNTY ADMINISTRATIVE OFFICE

MEMORANDUM

Scott E Jones

County Administrative Officer

TO- Robert A. Schilly, Foreman DATE: February 10, 1999

Kern County Grand Jury.

FROM: Scott E. Jones

County Administrative Officer

SUBJECT: CAO IMPLEMENTATION OF GRAND JURY RECOMMENDATION RE:

APPROPRIATIONS FOR CONTINTGENCEES

During a meeting between members of the Grand jury and staff of the County Administrative

Office, Grand Jury members. noted difficulty in differentiating and tracking the County’s use of

budgeted Appropriations for Contingencies for emergency and unplanned expenditures versus the

mid- year appropriation and use of unanticipated revenue by County departments. Immediately

after the meeting my staff set out to resolve the issues cited.

In working with staff from the Auditor- Controller- County Clerk's office, it was determined that

making a few administrative and accounting changes used for the appropriation of mid- year

unanticipated revenues would allow for a method of tracking unanticipated revenues throughout

the year and separate them from the annual amount budgeted for contingencies. I issued a memo

notifying all departments of the change to be implemented immediately. A copy of that memo is

attached for your information. My staff - will continue to monitor Board of Supervisors' action

and departmental budget transfers to ensure that the change is appropriately implemented and

provides the correct results.

My staff were able to coordinate and implement this simplified tracking system with a minimum of

effort and yet feel it will yield significant results in clearly segregating the County's use of

contingency funds. Not only will this allow county- wide tracking of unanticipated revenues, it

will aid in identifying revenue areas and new programs which might be handled more effectively in

subsequent budget years.

This may be a first in Grand Jury. history, a County department that implements a solution even

before the issuance of the Grand jury’s report! I know we were a little quick on the draw, but my

staff is enthusiastic about working together and they seek to implement creative and cooperative

solutions to problems whenever possible.

GENERAL SERVICES - PURCHASING

PURPOSE OF INQUIRY:

To investigate buying procedures in the county.

LOCATION:

Purchasing is a unit of the General Services Division of the County Administrative

Offices. It is located on the third floor of the County Administration building at 1115

Truxtun Avenue.

BACKGROUND:

The 1993- 1994 Grand Jury contracted for a Management Audit by Allred & Associates,

Inc. whose report included recommendations to change some county purchasing

procedures. The committee wanted to observe current procedures to verify that

procedures had changed since that report was issued.

METHOD OF REVIEW:

Jury members interviewed the Purchasing Manager; individual buyers based upon their

assigned commodities; visited the Tri- State Auction yard a few days before sales of

office equipment and vehicles; and made inquires of other department personnel to

discover the feasibility of some of jury recommendations.

FINDINGS:

The Purchasing Department is responsible for the purchase and rental of supplies,

services, and equipment for all of the county departments and special districts that are

governed by the Board of Supervisors. It also provides purchasing services for other

governmental agencies when so authorized by the Board. This department also

arranges the sale of surplus county property. The Assistant County Administrative

Officer for General Services serves as the county purchasing agent.

This department investigates costs and prices whenever other departments need to

purchase an item, looking for the best value available. Many small items, such as

office supplies, are included under one blanket contract agreement whenever possible,

so that all individual departments can purchase them readily and at the best cost.

Other items require research and evaluation at the time of purchase to determine the

preferred vendor. Internet access has greatly increased opportunities to identify the

best value vendors. Contracts are usually for one year, but could extend for as much

as five years in a very few cases. The length of time for a contract to run is determined

at the time of signing and usually provides inflation protections and penalties for late

delivery of items. Costs for many items achieve fifty percent or more savings by

purchasing through this department. Buyers retain documentation showing reasons

and justification for their decisions for three years in this office plus two more years in

off site files, should they be needed. All buyers belong to the California Association of

Public Purchasing Agents and attend regular meetings and seminars to keep up with

the latest methods for identifying the latest “ best value” prices. When buyers sign off

on a purchase decision, it is then given to a different buyer for review and confirmation

that the decision was a proper one.

Vendors who wish to sell items to the county fill out a request form, listing their

commodities, etc. in order to be considered when items are purchased. Each buyer in

the department is responsible for blanket orders, price agreements, fixed assets, and

budget prices for all assigned commodities. Buyers also operate under a “ local vendor

preference” philosophy, giving local vendors an opportunity to match the low bid

whenever their original bid comes within five percent of the lowest bid.

County departments can purchase items up to $ 4,999.00 using a debit card that is

issued to department heads. This procedure has greatly increased the efficiency of

purchase activities, avoiding significant paperwork, and eliminating delays while waiting

for approvals. Debit card purchases are reconciled to authorized budgets for each

department. Additional cards can also be furnished within a department, but usually

carry lower maximums for budget control purposes. Buyers encourage departments to

purchase items from vendors covered by contract, but items can also be purchased on

their card from other vendors as well. This system has significantly reduced county

costs for purchasing and has reduced staff while retaining the necessary integrity and

controls that are needed. There used to be seven buyers performing this function, with

roughly the same number of staff people assisting them. Presently the department

consists of five buyers with one secretary and one staff person.

Worn out, expendable, or surplus county properties are consigned to Tri- State Auction

Services to be sold at auction. Monies collected are returned to the general fund after

paying a four percent commission to the auction house. Any usable items are first

advertised as available to all county departments via a local area network e- mail

system before consignment to Tri- State.

The county has implemented a computer requisition and order system. Every

department head was given training in procurement processes and contracting during

September, 1998.

COMMENTS:

The Grand Jury found that many changes had been implemented since the 1993- 1994

management audit, including use of purchase/ debit cards, internet use, and with

significantly fewer staff.

It seems that no minimum standards are set by the county for equipment purchases as

is often the case in private industry ( for example: all computer equipment purchased

must be compatible with all other county computer equipment). The primary reason

given is that county departments do not have the same mission, so the needs are

different, whereas in most private companies all of the entities have the same or similar

missions. Considerable latitude can be granted within a wide range of options, but the

lack of any minimums indicate the need for direction to generate unified goals and

future targets.

For example, during this Grand Jury year one department purchased a Macintosh

computer for specific use in the department. While it may be superior to all other

computers for its current use, it also will not be compatible without converting software

and may not be usable for passing on to another department in the future when a

replacement is needed. Department heads are not asked to see the broader current

and future total county operation and could benefit from guidelines and directions.

Another example is that buyer research may indicate that vehicle purchase is more cost

effective over several years than is leasing or lease- purchase agreements. However,

departments may lease- purchase vehicles anyway, because budget restraints permit a

greater number of new vehicles immediately under that arrangement. The greater cost

may not become apparent until the lease agreement runs its course, and significantly

more vehicles could have been purchased for the same dollars that were spent. Also,

vehicle mileage limits that trigger replacement procedures could be adjusted in

recognition of the relatively trouble free extended mileage that modern vehicles

provide.

Future concerns that could also benefit from board direction might be digital versus

analog cellular telephones, digital photographic equipment that some departments are

already beginning to use, or other technological advances that are identified as future

directions that the county wishes to follow. While premature constraints could cause

unnecessary expenses in some cases, tardy or lack of direction can also cause

departments to continue to purchase out- dated equipment that may have a short useful

life or is of no use to other departments once the department completes its use of the

unit. It appears that the Purchasing Department could be a repository of limits beyond

which a department would need to justify purchases outside the latitude they are given

within policy.

Another area of concern is that buyers sometime recognize that a department is paying

too much for an item or is buying something less than the “ best value.” When

persuasion doesn’t modify the purchase decision, they have few alternatives other than

to simply watch the mistake being made. Further, smaller cost items ( like light bulbs)

that are used in many departments might be purchased at a variety of prices without

anyone’s being aware unless the Purchasing Department was asked to research the

best price and establish a " best value” contract price for all. Or, if a contract price is

established, a department could still purchase the item elsewhere, even if the cost is

somewhat higher. It appears that the appropriate Administrative Analyst should be

notified of specific instances of these and similar situations in order to address them

with the department during budget formulation and review.

RECOMMENDATIONS:

That the County establish the following procedures:

Buyers should notify the appropriate Administrative Analyst when funds are expended

unnecessarily through department purchase decisions that exceed the established

“ best buy” price.

When county- wide minimum technological standards are established for future county

direction and plans, the Purchasing Department should have the authority to decline a

department’s purchase request for items outside those limits.

Vehicle mileage limits that trigger replacement procedures should be adjusted to reflect

current automobile performance realities.

RESPONSE REQUIRED TO:

PRESIDING JUDGE

KERN COUNTY SUPERIOR COURT

1415 TRUXTUN AVENUE

BAKERSFIELD, CA 93301

Board of Supervisors' Response to Findings

The Board of Supervisors notes that the findings are substantially correct.

Board of Supervisors' Response to Recommendations

When a situation Occurs that appears questionable the Purchasing Division will call the

involved department to seek additional information. If the request appears to be inappropriate

or not within the law, the Division will contact the requesting department and the department's

assigned administrative analyst. The department is advised that unusual and/ or unique requests

require approval by the Board of Supervisors.

The Purchasing Division makes every effort to assist operating departments in making informed

and prudent purchasing decisions. However, the ultimate decision and responsibility rests with

the operating department head who must allocate limited financial resources appropriately and

is subject to review and direction by the Board of Supervisors.

The County has adopted few technological equipment standards. The standards that have been

adopted are related to common usage equipment. Each department has varying needs internal

to their operations and are responsible for making decisions that assure the effective operation

of their department. In the instance where standards have been adopted, the Purchasing

Division checks if the request meets the " County's Established Minimum Requirement" and will

advise the requesting department of any deviations.

Each department head is responsible for managing their resources wisely and assuring that the

department's mission is accomplished. The decision to replace a vehicle is within the discretion of the

department head, subject to budgetary approval by the Board of Supervisors, and is founded on the operational

needs and vehicle performance records of the department.

INFORMATION TECHNOLOGY SERVICES

PURPOSE OF INQUIRY:

To review the activities and mission of this department.

LOCATION:

This department reports to the County Administrative Officer. The offices are located

on the bottom floor of the Municipal Court Building at 1215 Truxtun Avenue.

BACKGROUND:

Game software was used to assist jury trainees to become proficient in the use of the

personal computer mouse. The jury became interested in what use was made of the

game software after it was no longer needed for training.

METHOD OF REVIEW:

Committee members met with the Manager of Information Technology Services ( ITS).

During the committee’s visit to the department, the managers of Applications

Programming, Data Services/ Operations, and the Project Manager/ Budgets explained

the function of their areas of expertise.

FINDINGS:

ITS provides coordinated data processing and technology support services for county

departments, special districts, and outside agencies, including:

1. Mainframe, mid- range, and mini computer systems analysis, design,

programming, testing, and production;

2. Personal computer systems review, recommendations, installation, and staff

training when asked by county departments;

3. Telephone systems planning, coordination, and administration.

The department is also responsible for the operation of the county’s mainframe

computer system, administration of the Wide Area Network ( WAN) system, maintaining

the Kern Integrated Property System ( KIPS), the Criminal Justice Information System

( CJIS), the Payroll/ Personnel System, the Financial Management Information System,

and providing a Help Desk for county computer users. In addition to the on- going

operations of computer use, current activities require preparing and testing all

computer operations for Y2K compatibility and developing a disaster recovery program

to ensure continuing operations following a major disaster.

Several major county departments have their own information systems operations and

only use this department for consulting or assistance as needed.

COMMENTS:

The committee found the management of this department technically knowledgeable

and interested in improving departmental operations whenever possible.

It is surprising that county cellular telephone expansion and use does not involve this

department. Without County Administration oversight, those departments utilizing

cellular telephones are limited only by budgetary considerations and department head

policies. Some departments appear to have significantly greater financing

opportunities, generally with federal or state monies, than do other departments.

Consequently, without any designated administration oversight, there is significant

potential for wasting taxpayer dollars.

County departments have been notified of the “ County Software Licensing and Use

Policy” via Administration Bulletin No. 294 ( Revised), dated July 17, 1997, which

reiterates the importance of controlling computer software use to only programs that

are properly licensed and authorized. Departments were also asked to establish a

permanent file that documents that information and to audit their computers at least

once a year to ensure compliance with all of the licensing requirements. However,

there is no established mechanism where anyone outside the department verifies that

these steps are accomplished annually. However, taxpayer dollars will be required to

pay any penalties should violations be discovered in the future. County administrators

could help protect against this vulnerability by requiring an annual report from

department heads and periodically auditing their accuracy.

Grand jury letters, documentation, and reports could be most efficiently accomplished

utilizing personal computers, although the majority of members were not proficient in

their use. The Information Technology Services Department was asked to train the

members in the rudiments of computer use. Game software was used to assist jury

trainees to become proficient in the use of the computer mouse, with impressive

results. The jury’s experience indicated that a novice could become relatively proficient

in using the computer mouse within two months. However, it was also necessary to

establish game use limits after the training time because it interfered with getting work

done. This experience lead to an interest in what use was made of the game software,

after it was no longer needed for training, in other county departments. It was

discovered that some wise department heads have deleted all game software from their

machines to avoid the need for supervising its use during the workday. Other

departments continue to allow employee access to game software in the workplace.

To avoid any suspicion of misuse, the county would be well- served if all departments

deleted game software from personal computers except for those used in the training

process.

Many county functions benefit significantly from internet access in the performance of

their official duties. Because the internet also provides opportunities for misuse, the

county has established a policy governing the use of and access to it. Any employees

who are authorized use of the internet are to be instructed in the policy and to sign an

acknowledgment form that is kept in their personnel files. In addition, a “ Firewall Log”

that outlines which web sites were accessed by a department is printed weekly and

furnished to department heads for their review. No one outside the department is

designated to monitor violations of the policy nor are department heads required to

report any actions taken when violations are discovered. Lack of any administration

over- sight could lead departments to conclude that the policy is not particularly serious.

RECOMMENDATIONS:

That the Information Technology Services Department be given the following

responsibilities:

To review, track, and report monthly to the County Administrative Officer overall cellular

telephone use, growth, and cost by department.

To receive annual departmental reports verifying compliance with the county software

policy and to audit departmental personal computers physically on a periodic basis.

To write a county policy declaring game software inappropriate in the workplace,

except for training facilities, assisting departments in deleting it from personal

computers and monitoring compliance through physical audits.

To review monthly Firewall Logs for inappropriate web site contacts and verify

departmental remedial actions.

RESPONSE REQUIRED WITHIN 90 DAYS TO:

PRESIDING JUDGE

KERN COUNTY SUPERIOR COURT

1415 TRUXTUN AVENUE

BAKERSFIELD, CA 93301

GENERAL SERVICES

CONSTRUCTION SERVICES DIVISION

PURPOSE OF INQUIRY:

To inquire about the procedures that lead to cost estimates for capital and major

maintenance projects.

LOCATION:

Construction Services Division is a unit of General Services of the County

Administrative Offices, located on the third floor of the County Administration building at

1115 Truxtun Avenue.

BACKGROUND:

During visits to various county facilities, negative comments were heard by committee

members regarding excessively high estimated costs associated with new construction

or major maintenance projects that the departments felt were needed. The assumption

was that the high estimated costs prohibited projects from serious consideration during

times of tight capital budgets.

METHOD OF REVIEW:

Committee members met with the Construction Services Division Manager to discuss

procedures and methods of capital projects cost estimating. The committee also

reviewed files of a couple projects that seemed out- of- line when compared to other

projects on the current list. The department also furnished the committee with estimate

and actual cost data for the most recent eighteen completed projects.

FINDINGS:

The responsibilities of the division are to provide design, inspection, and administrative

support services for capital and major maintenance projects for the county. While

smaller maintenance jobs are handled by the maintenance staff, projects costing more

than $ 6,500 must have drawings, specifications, and plans from this division and be

approved by the Board of Supervisors, pursuant to state law.

Two civil engineers, one mechanical engineer, two drafting technicians, three

architects, two support staff, and four inspectors handle the present workload in this

division. The staff used to total 21 people, but now they are handling the work load

with just 14 total people. At present approximately 50% of the project design work is

handled in- house with the rest contracted out to firms in the area. Construction

engineers are hired as needed during building phases. This department also assists

department heads with drawings and plans when needed to complete funding

applications for federal or state grants, HUD funds, or other sources of revenue.

Additional projects may also be added throughout the year, usually due to grant

funding, HUD money, or other block grants becoming available from federal or state

monies.

Funding from federal and state sources always comes with many strings attached.

Construction Services tracks all aspects of projects to ensure that every requirement is

fulfilled. Presently, about 20% of capital projects are being funded from outside of the

county funds.

Departments submit individual projects on a Form 37, ranked by department priority, to

the County Administration Office. All new or revised project requests are forwarded to

Construction Services, requesting a “ ball- park” cost estimate for each and returned to

the CAO’s office. Construction Services can only be as accurate as the information

given them via a Form 37. Since significantly off- the- mark dollar figures at this point

might be a factor in a project not being funded in the near future, departments should

carefully consider all aspects of the project being requested at the beginning of the

process. When affordable projects are selected during budget talks for action, they are

returned to the Construction Services office for detailed cost estimating. At this point

Construction Services will visit the actual construction site and make an accurate

assessment of the costs involved. The committee reviewed the most recent eighteen

projects and found that, on average, both the first estimate and the second estimate at

the time of bid fell well within a 10% plus or minus range of the eventual actual project

costs. The Board of Supervisors gives final approval to all capital projects.

As a “ General Law County,” legally mandated requirements such as newspaper

advertising, insurance and bonding, and prevailing wages, etc. generally add 20- 25%

to the overall contract costs.

COMMENTS:

Department heads are annually asked to review existing capital and major maintenance

project requests, add new ones as needed using Form 37, and send them to the

County Administrative Office by December 1 for consideration for the following fiscal

year. All new project requests are bundled together and sent to the Construction

Services Division for preliminary cost estimates, with annual cost escalation added to

existing projects on the list, under a tight deadline. The combination of a large volume

of requests and short time frame leads to hasty estimates without significant research

to verify that all of the information is complete and without on- site visits. If an initial

cost estimate is considerably inaccurate, subsequent inflationary and other cost

adjustments will further exacerbate the inaccuracies.

While it isn’t cost effective to spend significant time and expense on the initial estimate,

it seems as though a rough review to establish “ ball- park” cost believability is in order

after the initial estimates are completed. Since Construction Services has exposure

and experience with capital projects throughout all of the departments, they are in the

best position to do a general project comparison. By grouping estimates by dollar

amounts, any out- of- line estimates should stand out by falling among projects more or

less sophisticated than the one being requested. Projects appearing out of line could

be clarified through requests for more information. Asking the department to review its

request will also emphasize the importance of including accurate and complete

information with the initial Form 37.

Another opportunity for review of cost estimates occurs when the department visits

near- by construction sites for other projects. Such field visits could be expanded to

include surrounding project sites to verify that the current estimated costs for them

appear to be accurate. Utilizing this opportunity might help overcome any feeling that

the initial estimate is off- the- mark and re- assure department heads that their projects

will receive fair consideration as capital project monies become available.

RECOMMENDATIONS:

That the Construction Services Division:

Group projects annually by dollar amount categories, after assigning initial cost

estimates and applying annual escalation adjustments, and compare the results,

utilizing education, experience, and expertise to verify that projects are grouped

together as would be expected.

Seize field visit opportunities to verify that initial project cost estimates are reasonably

accurate and request an up- dated Form 37 from department heads when they are not.

RESPONSE REQUIRED WITHIN 90 DAYS TO:

PRESIDING JUDGE OF THE

KERN COUNTY SUPERIOR COURT

1415 TRUXTUN AVENUE

BAKERSFIELD, CA 93301

HEALTH, EDUCATION, AND SOCIAL SERVICES COMMITTEE

Thomas D. Stockton, Chair

Harry J. Helsley

George Howell

Walter E. Swanson

Charles P. Schumann

MISSION STATEMENT

The Kern County Grand Jury Committee on Health, Education, and Social Services

has the responsibility to inquire into the operations of all agencies and facilities dealing

with:

· Education, such as administrative offices, classrooms, and training facilities

· Health, both mental and physical, such as Mental Health, Health Department,

hospitals, and health facilities

· Social Services, such as Human Services or Welfare, Parks and Recreation,

museums, libraries, Office on Aging, and Housing Authority etc.

Time constraints did not permit the committee to visit all departments under the

mission responsibility, so the committee has chosen those which have not been visited

recently by past Grand Juries, or those which are involved in areas of paramount

interest to the public.

In order to accomplish the mission the committee has visited the following departments

listed by the categories Health , Education, and Social Services. A number of the

facilities visited, such as prisons, Juvenile Hall, Camp Erwin Owen, and Jamison

Children’s Center, have both educational classrooms and medical infirmaries. Many of

the classrooms are operated under the direction of the Kern County Superintendent of

Schools office. Final Reports have been issued on those departments denoted by an

asterisk * following the name of the department visited.

HEALTH

Kern Health Department

Mental Health *

Farm & Home Advisors Office *

Mary K. Shell Center

Jamison Children’s Center

Kern Family Health Care *

Kern Medical Center Emergency Department

Union Villa Care Facility ( provider to Mental Health)

Green Gardens Residential facility ( provider to Mental Health)

Medical facilities at Juvenile Hall , Camp Erwin Owen, Lerdo Prison, Taft Prison,

Wasco Prison, and Tehachapi Prison

EDUCATION

Regional Occupational Center Kern High School District

Migrant Education Kern High School District

Camp Erwin Owen classrooms

Juvenile Hall classrooms

Court Day School classrooms

Classrooms, Libraries, and vocational training at Tehachapi Prison, Wasco Prison, Taft

Prison, and Lerdo Prison

SOCIAL SERVICES

Human Services *

Jamison Children’s Center *

Jess Diamond Child Assessment Center*

Kern County Office on Aging

Tehachapi Senior Center

Communications Center 911 facility

Bakersfield Police Department 911 facility

Bakersfield Police Department Identification Bureau

Family Support Division District Attorney’s Office

Bakersfield Association of Retarded Citizens ( BARC) *

Hart Park *

Buena Vista Lake & Park Complex *

Kern Housing Authority

HART MEMORIAL PARK AND

BUENA VISTA AQUATIC RECREATION AREA

PURPOSE OF INQUIRY:

Annual visitation.

LOCATIONS:

Hart Memorial Park is located about twelve miles northeast of Bakersfield. It is reached

by way of Alfred Harrell Highway.

Buena Vista Aquatic Recreation Area is twenty- three miles southwest of Bakersfield

and twelve miles northeast of Taft.

County parks are under the supervision of Kern County Parks and Recreation

Department at 1110 Golden State Avenue, Bakersfield, California, 93301.

METHOD OF REVIEW:

Discussions with the Director of the Department, the Assistant Director, and Area Park

Supervisors.

Visits to Hart Park and Buena Vista Aquatic Recreation Area.

Review of previous jury reports.

FINDINGS:

The interest in establishing Hart Memorial Park began in 1921. In 1927 construction

was started on the recreational facility known as Kern River Park. The park was

officially opened that same year. The name was formally changed to Hart Memorial

Park in 1947 in honor of an early- year supervisor, John Hart.

The park is open from 7: 00 am to 10: 00 pm. Daily admission is free. Alcoholic

beverages may be consumed in the park only if a permit has been obtained. Children’s

playgrounds, barbecue stations, tables, and benches are available. The area is

covered by beautiful large trees and well- kept lawns.

Historically, Buena Vista Lake was the terminus for the Kern River. However, during

years of heavy rainfall, water would flow out of the lake northward via a slough to

Tulare Lake and eventually to the San Francisco bay. Later, Kern River water was

used for irrigation. When Lake Isabella reservoir was created in 1953, the “ old” lake

ceased to exist.

In 1973 water first flowed into Lake Webb and Lake Evans, which together make up

the Buena Vista Aquatic Recreational Area. Almost 1000 acres of lake surface are

available for boating, jet skiing, fishing, and swimming. The main campground alone

has 112 campsites, with other sites scattered throughout the area. A camp store and

rental service for jet ski equipment and boat mooring exist. As many as five to six

thousand persons use the park on an active weekend.

The County Parks and Recreation Department is responsible for the maintenance and

operation of eight regional parks, forty neighborhood parks, and landscaped areas

around eighty- seven county- owned and/ or occupied buildings. Recreational facilities

include seven lakes, campgrounds, group picnic areas, playgrounds, horse trails, and

ballfields. Security and public safety services are provided by boat patrols on the lakes

and by roving patrols in the regional park facilities. The department provides

administrative support to the Kern County Wildlife Resources Commission and the

Parks and Recreation Commission. The department is also responsible for janitorial

services and operation of the county’s twenty- eight veterans, seniors, community, and

recreation buildings.

COMMENTS:

With Hart Park being an open public park, caretakers are faced with both theft and

graffiti problems. This is a constant for them. Providing sanitary supplies, other than

toilet paper, is not practical. This park appears well maintained and is very attractive.

With the present high flow of water in the Kern River, the park lake constantly

overflows, providing a continuous throughflow. When the river flow is down, water has

to be pumped into the lake to preserve it. Plans are underway for the city to build a

reservoir up- stream of the park and to pump water to a storage tank on the bluffs to the

south. It would benefit the park if a continuous flow of water to the lake could be

assured as a part of that project.

Buena Vista stands out as an extremely attractive recreation facility. All campsites

are well cared for, and the variety of lake- use possibilities attracts visitors from as far

away as Los Angeles. Admissions and service charges result in appreciable income

gain for the parks. Good management practice in care of the grounds and control of

use behavior is very apparent.

Need for replacement of older equipment and for purchase of additional equipment

represents a major challenge to the department. Some 17,000 trees are scattered

throughout the county park system and the public buildings where the department has

landscaping maintenance responsibilities. Only one high- lift bucket truck and chipper

are available for necessary tree trimming. There are severe limitations in minimizing

hazards from broken limbs and falling branches.

RECOMMENDATION:

That the county give attention to providing additional tree- trimming equipment by

purchasing or renting equipment, or by contracting the trimming service.

RESPONSE REQUIRED WITHIN 90 DAYS TO:

PRESIDING JUDGE

KERN COUNTY SUPERIOR COURT

1415 TRUXTUN AVENUE

BAKERSFIELD, CA. 93301

Board of Supervisors' Response to Findings

The Board of Supervisors' notes that the findings are substantially correct and appreciates and

concurs with the Grand Jury's complimentary remarks regarding the Parks Department's sound

management of the operations at the Buena Vista Aquatic Recreation Area.

Board of Supervisors' Response to Recommendations

The Parks Department has been working diligently to create a tree maintenance program within

the budgetary resources allocated to the Department. In this Fiscal Year, the Department has

invested in an additional chipper and several chainsaws to assist in accomplishing essential tree

maintenance work.

Additionally, contracts were executed ($ 30,000) with two tree trimming companies to assist with

the massive clean- up effort needed due to the recent storms. The Board of Supervisors

recognizes the many needs of all County departments to accomplish their missions. However,

limited budgetary resources does not allow the Board to fund all of the activities desired or

needed.

FARM AND HOME ADVISORS OFFICE

PURPOSE OF INQUIRY:

Annual Visitation.

LOCATION:

This organization is located at 1031 South Mt. Vernon Avenue, Bakersfield, California.

METHOD OF REVIEW:

Discussions with the County Director, Nutrition Program Manager, Program

Coordinator, Farm Advisor, Science Advisor, and other staff personnel.

Visit to the office and shop facilities.

Review of previous jury reports.

FINDINGS:

Cooperative Extension is an off- campus arm of the University of California. Since

1914, Cooperative Extension has provided the citizens of California and Kern County

information and educational programs in natural resources, family, and consumer

sciences, community resources development, and 4- H youth development. The Kern

County office is staffed with a group of farm, home, and youth advisors who are

employees of the University of California.

In California, most county offices of Cooperative Extension are recognized by the name

of Farm and Home Advisors Office. For many years it was known as the Agricultural

Extension Service. In addition to its traditional mission of increasing agricultural

efficiency and improving farm family living, it has been responsive to the changing

needs of both rural and urban people of all economic levels, including the need to

protect the environment. Programs are designed to adapt and deliver the results of

research and new knowledge to people located throughout California and to bring

problems and needs from individuals and communities back to the academic centers

for exploration and research. Advisors conduct educational programs and seminars,

design and implement research projects, and provide consultations within their

respective areas of expertise.

Cooperative Extension professional services are provided without charge. There may

be a nominal charge for publications printed and distributed by the University of

California. Funding comes from the federal, state, and county governments

( approximately twenty- one, sixty, and nineteen percent, respectively). The state and

federal contributions pay the salaries and administrative support for the advisors. The

county support provides office space and facilities, clerical staff, field assistance, and

transportation.

Cooperative Extension advisors are “ close- at hand” representatives of University of

California. Information and assistance in assigned areas of expertise are available by

phone or office appointments.

The farm advisor’s expertise is broadly based and is responsive to the needs of

agriculture, the homeowner, nurseries, ag- related businesses, and many allied

industries.

The areas of expertise in the Extension office are as follows:

4- H Youth Development Natural resources

Citrus and subtropical horticulture Nursery production

Cotton Nutrition, family & consumer science

Deciduous fruits Plant pathology

Expanded Food and Nutrition Program Range and livestock

Entomology and pest control Small fruits

Environmental horticulture Vegetable crops

Irrigation management Viticulture

Agronomy

The office has a radio outreach through stations KERI, KLYD, KNZR, and KLOA.

Periodic newsletters may be obtained by calling the office. Kern County provides

$ 154,000 for the six county staff and facilities. The twelve authorized extension staff

members are funded through the University.

COMMENTS:

It is obvious that this office provides a very essential service to the valley agricultural

activities. Without this local office the extension of resources of the University of

California to the people of Kern County would be severely limited.

The office operates on a tight budget, particularly in the area of transportation. As

additional hires are funded, vehicle availability and mileage money are seriously

impacted. Without adequate transportation, technical staff cannot provide service to

persons needing their on- site counsel and guidance.

RECOMMENDATION:

That the county provides additional transportation, commensurate with the needs of

this size staff.

RESPONSE REQUIRED WITHIN 90 DAYS TO:

PRESIDING JUDGE

KERN COUNTY SUPERIOR COURT

1415 TRUXTUN AVENUE

BAKERSFIELD, CA. 93301

Board of Supervisors' Response to Findings

The Board of Supervisors notes that the findings are substantially correct, excepting that

$ 379,503 in County funding was provided to the Farm and Home Advisor for Fiscal Year 1998-

99, not $ 154,000. This funding provides for the Farm and Home Advisor's facility, seven County

employees, a travel and transportation budget, certain services and supplies, and fixed asset

equipment 7he Board of Supervisors joins the Grand Jury in complimenting the Farm and Home

Advisor on the quality of service provided.

Board of Supervisors' Response to Recommendations

The Board of Supervisors' allocation of budgetary resources must be accomplished in an

environment of an ever increasing demand for services and declining resources. Over the last

three years, the Farm and Home Advisor's budget allocation has remained relatively constant.

KERN FAMILY HEALTH CARE

PURPOSE OF INQUIRY:

Annual visitation

LOCATION:

The Kern Family Health Care main office is located at 1600 Norris Road, Bakersfield,

CA.

FINDINGS:

Originally formed in August 1993, as a non- profit, public benefit corporation, Kern

Health Systems ( KHS) was organized in response to the expansion of the Medi- Cal

Managed Care Program in 13 California counties. The corporation, initially managed

by the County’s Kern Health Care Management Service Department, was converted

into a County Health Authority effective January, 1995, based on an ordinance enacted

by the Kern County Board of Supervisors on December 6,1994.

It was constituted for the purpose of contracting with the California Department of

Health Services to provide managed health care services to Medi- Cal beneficiaries in

Kern County. It received a license as a health plan from the Department of

Corporations in the spring of 1996 and began providing health care services to Kern

County Medi- Cal beneficiaries in July, 1996, through the HMO product, Kern Family

Health Care. Since July of 1996, 102,000 Medi- Cal beneficiaries have received health

care as members of the Kern Family Health Care Medi- Cal Managed Health Care

program in Kern County.

Original funding for start- up costs was provided by a subordinated loan from the

enterprise fund of Kern Medical Center. Accelerated payments have permitted the loan

to be repaid on October 13, 1998.

In April of 1998, Kern Health Systems was awarded the Community Provider Plan

Designation from the Managed Risk Medical Insurance Board ( MRMIB) to provide

uninsured children with the Kern Family Health Care Healthy Families health care

product. The Healthy Families Program was developed by the State of California to

provide affordable health care coverage for children ages one through 19 who do not

qualify for Medi- Cal and cannot afford commercial insurance. An estimated 15,000

children in Kern County may qualify for Healthy Families.

MRMIB began soliciting applications and enrolling eligible individuals in June of 1998.

Kern Health Systems began seeing members under the Kern Family Health Care

Healthy Families on July 1, 1998.

Since 1993, Kern Health Systems has created jobs for 79 full- time employees.

Dedicated staff efforts have resulted in lower administrative expenses and achieving

targeted performance standards. Administrative costs are normally budgeted at 15%,

and as of December 1997, were running at 8.43%. For 1998, annual budget is

$ 50,000,000, with administrative costs running at 12%.

COMMENTS:

The following are points the Grand Jury believes would be of major assistance to Kern

Health Systems:

1. Better communications would facilitate administrative functions and therefore the

delivery of optimal health care services. Communication with members receiving

Medi- Cal benefits would benefit if KHS could receive more information from the

County Human Services Department. When KHS receives eligibility lists from

the state, those lists do not include telephone numbers, and frequently,

beneficiaries’ addresses are inaccurate. On the other hand, the Welfare

Department collects more complete and updated information on beneficiaries.

KHS would benefit immensely if it could access demographic data such as

telephone numbers and addresses from Welfare's database. Sharing by direct

communication or electronic exchange would result in more efficient and

improved service.

2. KHS works closely with the local office of California Children's Services ( CCS).

This working relationship is crucial in the provision of care to members. Certain

conditions are excluded from KHS responsibility. When members are admitted

to hospitals with these conditions or treated in other settings, it is essential that

KHS and CCS communicate in a timely manner and that decisions affecting

coverage are made rapidly. Many physicians and some hospitals in Kern

County are not on the CCS provider list. If a patient is admitted to one of these

facilities it is important that a transfer be arranged to a CCS facility so that

claims are paid appropriately and in a timely manner. CCS can deny payment

for an admission to a non- CCS hospital. The facility then looks to KHS for

payment when it has not received funding from the State for these services.

3. The employees staffing the local CCS office are hired by the County Health

Department, but they report to the regional director of CCS. The organizational

structure of CCS throughout the state created a situation where there are no

universal standards for reviewing a medical condition and deciding if CCS will

cover it. Some decisions have at times seemed arbitrary. There is no guarantee

that even if all procedures are followed, an appropriate decision will be made.

4. Another area where sharing information and services would facilitate health care

to KHS members is in tracking immunizations. One goal of the federal

government, and consequently the state, is to have a certain percentage of the

population fully immunized by the year 2000. Most immunizations are

administered in the first two or three years of life. Recent welfare reform

legislation put a requirement on recipients who have children to provide

documentation of up- to- date immunization in order to continue to receive

assistance checks. KHS is judged by the state on the percentage of complete

immunizations given.

5. Achieving adequate immunization in the Medi- Care population presents

significant challenges. Beneficiaries may not remain in the program long

enough to bring shots up to date. Also, they often receive care from multiple

providers who seldom share records. One benefit of Medi- Cal managed care

will be better tracking of preventive services delivered to this population. The

county, in an effort that is ahead of much of the rest of the state, has begun

implementation of a computerized tracking system for immunizations. KHS has

worked with the county to both add data to their system and extract data from it

that bears on members. While this would seem to be a logical and simple

process it has not been. As a result, greater effort must be made by all

participants to effect the necessary results.

6. As a result of the efforts of the Grand Jury a meeting was arranged between

Human Services ( Welfare Department) and Kern Health Systems in early

December of l998 to resolve the problems outlined in paragraphs 1., 4., and 5.

above. A series of solutions to these problems has been worked out through

the efforts of Kathy Irvine, Director of Human Services, and Carol Sorrell,

Director of Kern Health Systems. Human Services Director, Kathy Irvine, is to

be commended for forming teams within her department necessary to overcome

the shortcomings of the state’s informational system in order to accommodate

the needs of Kern Health Systems.

7. Since these comments for improvement are essentially beyond control of Kern

Health Care, copies of this report will be presented to those agencies that can

effect beneficial changes.

SUGGESTED ACTIONS FOR CCS:

1. That California Children’s Services ( CCS) advise all non- CCS hospitals that

patients admitted to such a hospital must be transferred promptly to a CCS

facility for claims to be paid appropriately, so that KHS will not be improperly

charged with the cost.

2. That appropriate universal standards be established by CCS for reviewing

medical conditions to determine if it will be covered by CCS.

NO RESPONSE REQUIRED

KERN COUNTY MENTAL HEALTH DEPARTMENT

PURPOSE OF INQUIRY:

To review the responsibilities and activities of this department and identify the reasons

for the rapidly accelerating growth that has occurred during recent years.

LOCATION:

The administration offices are located at 3300 Truxtun Avenue, Suite 290, in the

Commonwealth building.

BACKGROUND:

Program realignment of the State of California’s social service departments initiated

significant growth in responsibilities and expenditures for this department that have

increased more than thirty percent ( 30%) each of the last two fiscal years. The Grand

Jury became interested in what was being done with these public funds and what was

causing the rapidly accelerating growth.

METHOD OF REVIEW:

Since the department is composed of several significant operations, with administrators

for each of them, the committee decided to assign a couple of members to each

separate operation to review and report on their activities. With this approach, different

committee members visited with the administrators of Outreach & Crisis, Children’s

System of Care, Adult System of Care, Rehabilitation Services, Quality Improvement,

Financial Services, Behavior Health System of Care, Kern Linkage, and the Special

Projects Manager.

FINDINGS:

The department vision statement says “ We provide the most effective, highest quality

combination of treatment and support to persons with emotional disturbance, addiction,

and mental illness.” Each section of the department focuses on this general goal in

performing its particular function. Jury members found the administrators and staff

highly professional, experienced, and significant contributors to this effort.

The Outreach and Crisis section maintains a twenty- four hour, seven- days- a- week

crisis outpatient unit for emergency stabilization and to provide an alternative to more

restrictive levels of care. The unit is available to all County Mental Health Systems,

their contracted providers, public safety and protection organizations, as well as the

general public. Services can include emergency psychiatric evaluations, medication

monitoring, nursing services, crisis intervention/ counseling and emergency treatment

planning and service linkage to other department sections. Consumers are not held in

this unit for more than 24 hours, during which time evaluations determine the next

phase of treatment and consumers are passed on to the appropriate department

section. This office processes 25 to 90 crisis cases per month, plus 300 to 400 walk-ins,

and around 1500 phone calls. Due to the nature of their role in the department,

some occasions require an emergency type vehicle with radio communication and

safety restraint devices for transporting an individual in a crisis situation and

transporting them to the unit. At the present time, law enforcement people are called

on to transport the person in crisis to the mental health crisis facility. Perhaps a retired

vehicle from the Sheriff’s Department could be utilized for this purpose.

The Children’s System of Care section provides a full range of mental health

services, including assessment, evaluation, therapy, rehabilitation, plan development,

case management, medication support, crisis intervention, and substance abuse

treatment as it relates to a mental illness. This unit is divided into geographic areas to

better serve the community and has developed a collaborative association with schools

and all other agencies involved with children to build a sound foundation for an

integrated system of care for at- risk children. Through integrated case planning,

assessment and linkage, intensive mental health services such as family substance

abuse interventions, the goal aims toward an improvement in child/ family functioning

and academic performance; decrease in out- of- home placements; and provides

intensive counseling and support services to families. This section focuses on

prevention activities and family involvement to avoid future mental health problems for

these consumers.

The Judicial Services section handles mental health consumers who have often

become entangled with other agencies such as law enforcement and social care

systems. Expense and overlapping treatment is limited through a collaborative

association with these and other agencies. The substance abuse response team

serves pregnant women and court related referrals who have an alcohol or drug

addiction and who request treatment. The drug court and penal code 1000 program is

for first time drug offenders where consumers are required to attend a prescribed

program that includes assessment, group counseling, education and routine reporting

to the Probation Department. Forensic services provides a full range of services to

individuals with a mental disorder who have been convicted of a crime, charged with a

criminal offense, and ordered by the court to receive psychological examination; those

who have been referred for evaluation to determine if they need to be placed in

conservatorship; and others who have been determined incompetent for the purpose of

standing trial on misdemeanor charges. This group also provides mental health and

psychiatric services for jail inmates and provide a link to society when inmates are

ready for release.

The Adult System of Care and Rehabilitation Services section mission is to provide

comprehensive rehabilitative services to mentally ill adults residing in Kern County.

Department rehabilitation and external contract teams, consisting of licensed

professionals in the mental health field, provide assessment, psychiatric evaluation,

medication evaluation and monitoring, group and individual therapy, case management

services and linkages to community resources. The long term care team provides

services to mentally ill consumers who are placed in residential and locked facilities

throughout Kern County or state hospitals and for consumers who generally remain in

their residential placements for greater than one year at a time. The “ homes team” is

designed to provide intensive case management for mentally ill consumers who are in

transition from assisted living arrangements to independent living, as well as housing

assistance for consumers who have recently been homeless. Services include care

coordination, intensive case management, housing assistance, medication monitoring,

linkage with community resources, and extended service hours. Finally, through Board

and Care service providers, who are licensed by the state, supplemental funding for

individualized services are provided. Services include teaching independent living

skills, special groups and programs, and socialization skills enhancement. These

services are aimed at enabling consumers to obtain skills to allow them to move to a

less restrictive level of care, or to prevent them from requiring a higher level of care.

The Quality Improvement section handles all requests for proposals and contracts,

verifies credentials of providers, is a statistical and information resource for the other

sections of the department, and acts as a liaison with the state to provide technical

assistance. This section performs audits at 40 separate sites of the system of care to

ensure understanding and compliance with quality standards and regulations and

makes recommendations for further training when needed. The goal is to tailor

treatment to individual situations in order to “ provide the right treatment at the right time

in the right amount”. Because communication and response is best when the consumer

and the counselor speak the same language, training in cultural differences is given to

all care providers.

The Business Manager for Financial Services tracks and maintains the accounting,

budget, and financial records for the entire Mental Health Department. The county only

contributes about $ 750 thousand out of an approximate $ 60 million budget, while the

federal government contributes about 60% and the state about 40% of the remainder.

It is this section’s goal to establish and maintain a reserve operating fund of 5% to 8%

of the total operating budget over a multi- year span of time to provide funds when

budget reductions may occur in the future.

The Behavior and Managed Care/ Substance Abuse Systems of Care section

focuses on issues surrounding addictions and the abuse of drugs and alcohol,

manages a state- wide framework for providing mental health services to Medi- Cal

patients, and integrates the mental health and substance abuse services. The

substance abuse system of care has been in operation for approximately twenty- five

years. Treatment is provided through a network of community- based providers. Since

mentally ill people appear to be more susceptible to drug use, many current clientele

are repeat patients. Research strongly indicates that treatment works and those

receiving it show significant improvement. This section also monitors patient rights and

family advocacy.

The Kern Linkage section was started in 1986, with a current annual budget of one

and a half million dollars. This group locates mentally ill individuals who are living on

the streets, in shelters, or in other inadequate facilities. Upon admission, clients are

initially given a thorough needs assessment that includes psychosocial, psychiatric,

and physical evaluations. Case managers serve as advocates and service brokers to

perform linking services between consumers and community resources to stabilize the

individual’s situation and obtain financial resources, provide shelter, psychiatric care,

teach daily living skills, manage psychotropic medications, and provide professional

consultation as necessary.

The Special Projects Manager provides information technology services for the

department. A Macintosh computer was purchased in order to utilize a special software

package called “ Go Live Cyber” in order to develop a sophisticated web site to

advertise the department’s ability to address community mental health problems.

COMMENTS:

Kern County Mental Health Department consumers must have dysfunctional life

activities to qualify for treatment by this department. For many years the state under-funded

certain aspects of mental health activities, primarily those affecting children in

our community. Additionally, in the 1980’ s, a change in philosophy for dealing with the

mentally ill led to the rapid emptying of state mental hospitals. It resulted in many of

the mentally ill becoming homeless, substance abusers, and sometimes led to criminal

activity. In the 1990’ s, the state turned over to the counties the primary responsibility

for the mentally ill which had been previously handled by the state through state mental

hospitals. These two circumstances have required significant increases in funding for

county mental health activities.

Future capitation limits is of concern at present due to the under- funding of mental

health activities in recent years. Statistical evidence suggests that two and one- half to

six percent of any given population group will require some mental health treatment.

Recent and current budgets are still in a catch- up mode to achieve a sufficient level of

funding to cope with the anticipated future responsibilities of the department.

It appears that it is an unnecessary effort and expense to develop a sophisticated web

site, since the primary consumers utilizing department services are the homeless,

indigent, welfare recipients, prisoners, seniors, Medi- Cal patients, SSI recipients, etc.

who seldom have access to the internet. In addition, other assets were available in the

county that could have produced an acceptable website for the department.

The citizens of this county greatly benefit from the over- all effort of this group of

professionals who devote much time and effort to assist those among us who need the

most help. Without their attention this community would suffer a significant

deterioration in livability environment, including an increase in homeless individuals, as

well as increasing the suffering of individuals who share the community.

RECOMMENDATIONS:

That the Mental Health Department:

Arrange to transfer a used sheriff’s department car, with protective devices intact, to the

department’s Outreach and Crisis Section to safely transport individuals to care

facilities when needed.

Avoid time, expense, and effort on activities that do not directly focus on the

department mission, such as a sophisticated web site.

RESPONSE REQUIRED WITHIN 90 DAYS TO:

PRESIDING JUDGE OF THE

KERN COUNTY SUPERIOR COURT

1415 TRUXTUN AVENUE

BAKERSFIELD, CA 93301

BAKERSFIELD ASSOCIATION OF RETARDED CITIZENS

PURPOSE OF INQUIRY:

To review the activities at the facility and determine how the needs of the clients are

being met, though the Grand Jury has no oversight authority for this non- profit

corporataion ( Penal Code section 933.6)

LOCATION :

The Bakersfield Association of Retarded Citizens ( BARC) is located at 2240 South

Union Avenue, Bakersfield, California.

METHOD OF REVIEW:

A tour of the facility conducted by Nathan E. Acuna, Coordinator of Community Affairs

and Development for BARC.

FINDINGS:

BARC was founded in 1949 and incorporated in 1951; more than 400 people are

served daily in the programs and with support to families. The old method of

warehousing clients in institutions was neither a benefit to the retarded citizen nor a

beneficial use of tax dollars.

At present, 55% of the revenues is generated by the efforts of the clients, 40% is

supplied by the Department of Developmentally Disabled of the State and the balance

comes from grants and United Way funding. BARC is located on a 20 acre site on

South Union Ave. containing administrative offices, a recycling center ( for paper, glass,

plastic, and metal), a horticulture garden, auto shop, woodshops class rooms, and

training labs. Services include adult day care, day training activities, rehabilitation work

training, supported employment, transition support to independent and community

living, and protection and advocacy based on need.

Their programs consist of Infant Development & Prevention ( therapy for children

deemed likely to have disability problems); Adult Development Center ( motor skills for

adults with handicap conditions); Activity Center; Computer Lab ( reading , basic math,

money concept, and typing in self- paced computer learning); Packing & Assembly

( sorting nuts and bolts and repackaging products such as bottled goods for display

purposes); Wood Products; Service Training ( janitorial, landscape management, food

service, and auto wash training) at the BARC Facility; Personal & Social Adjustment

Program; BARC Thrift Store; BARC Recycling; Client Services ( guidance, counseling

and advocacy on behalf of clients, with support to their families; case management with

quarterly and yearly evaluations); BARC Transportation ( vans and buses to transport

clients to and from their daily programs); Recreation & Enrichment Activity ( supervised

group activity in bowling, dances, and excursions; vacation getaway to Camp KEEP,

and/ or escorted tours to Hawaii).

COMMENTS:

The vans and buses which are not being used to transport BARC clients during

evening hours could be used to transport CALWORKS clients of Human Services to

and from evening jobs when public transportation is not available.

The BARC Program is one of the best kept secrets in Bakersfield, providing training

and employment for people who might otherwise be either homeless or on the welfare

roles. The staff is professional; they obviously care for their clients and should be

commended for their efforts.

A tour is well worth taking if the opportunity presents itself, just to see the great job

they do and the care for their clients all of the employes demonstrate.

RECOMMENDATIONS:

That BARC look into an arrangement with Human Services to transport CALWORKS

clients in their vans and buses during evening hours and provide an additional source

of revenue for BARC.

NO RESPONSE REQUIRED

JAMISON CHILDREN’S CENTER

PURPOSE OF INQUIRY:

To observe buildings and grounds of the center and the activities engaged in by the

staff and the children present.

LOCATION:

The facilities are located at 1010 Shalimar Drive, Bakersfield, California

BACKGROUND:

In 1981, the A. Miriam Jamison Children’s Center was established as one of our

county’s solution to the growing number of reported child abuse cases. The Jamison

Children’s Center is a 24- hour, short- term emergency protective shelter that can

provide care for children up to 18 years of age. The facilities include the Jess Diamond

Assessment Center for observation and assessment of victims of suspected child

abuse.

METHOD OF REVIEW:

The committee visited the facility and was conducted on a tour by the director. The tour

included the living quarters, playrooms, cafeteria, classrooms ( operated under the

auspices of the Kern County Superintendent of Schools), the Jess Diamond

Assessment Center, and the facilities for forensic observation and evaluation of abused

children.

FINDINGS:

The purpose of the Jamison Children’s Center is to provide a safe, secure, haven for

children who have been neglected or have seen their parents’ abuse of drugs or

alcohol destroy their family life. Many have been abused physically, sexually, or

emotionally. The center provides a temporary home for children, from three days to

eighteen years of age. It is a 24- hour protective facility with a maximum capacity of 54

children. In prior years, if children were abandoned or their parents were incarcerated,

the only solution was to lock them up in juvenile hall, which was not a desirable

situation for the children or for law enforcement personnel who had to deal with them.

The Jess Diamond Assessment Center contains a forensic lab with an interview room

that is child- friendly, providing a relaxed atmosphere for a highly trained investigator to

interview abused children. The lab is equipped with television monitors, taping devices,

and one- way glass windows, where representatives of the District Attorney’s office and

law enforcement agencies may observe the interview process to assure that the rights

of all parties are protected.

The committee found the living quarters, cafeteria, playrooms, and the classroom in

good condition although there is always a shortage of bed space and repairs are on

going. The cafeteria provides wholesome meals at a minimal cost as they continually

seek donations of food and materials through their network of contacts in the

community. The cafeteria also provides meals at cost for one of the nearby senior

centers. At the time of this visit there were approximately 65 children present, and the

center processes around 100 children per month.

The Jamison Center operates in concert with the Jamison Children’s Foundation which

provides funding for monthly enrichment outings and has donated computers for

classrooms, enhanced play areas, and scholarships to foster- children. This is an

outstanding combination of public- private energies cooperating for the benefit of the

children.

In addition to the other programs the center provides a training ground for Bakersfield

College students volunteering their time in exchange for class credits toward a career

in child care and child development. There is also a program for volunteer

grandparents to interact with foster children and take them on outings.

COMMENTS:

The committee felt that this entire facility was operated with the highest standards by

an obviously competent professional staff working in somewhat crowded conditions. In

these days of increasing numbers of child abuse situations the center has a definite

need to expand their facilities. There is a substantial land area south of the present

facility with room for two class rooms which would allow the classroom areas in the

main building to be converted to living quarters and play areas.

RECOMMENDATIONS:

That the Board of Supervisors provide the necessary funding for temporary classrooms

to be constructed on the site south of Jamison Center.

RESPONSE REQUIRED WITHIN 90 DAYS TO:

PRESIDING JUDGE

KERN COUNTY SUPERIOR COURT

1415 TRUXTUN AVENUE

BAKERSFIELD, CA 93301

KERN DEPARTMENT OF HUMAN SERVICES

PURPOSE OF INQUIRY:

To visit the main office and review all the functions of the department with emphasis

onimplementation of the welfare- to- work or CALWORKS Programs.

METHOD OF REVIEW:

The committee visited the main office at 100 California Avenue, Bakersfield, and met

with the director and different department heads for an overview of operations. It

conducted meetings with the director and staff, met with representatives of Kern Family

Health and attended CALWORKS conferences with talks by Assemblyman Roy

Ashburn ( author of Welfare to Work Legislation).

FINDINGS:

Human Services occupies 10 offices including a main office at 100 California Ave. and

locations at KMC, Jamison Children’s Center, and offices in Shafter, Delano, Taft,

Mojave, Lamont, Lake Isabella and Ridgecrest. They employ 1200 people and have an

operating budget of $ 228,000,000 of which the county provides approximately 5%. The

balance of their monies comes from the state and federal governments and some client

contributions.

Human Services administers:

CALWORKS ( Formerly AFDC) includes; Family Group, Unemployed, and Foster

Care. It also administers Employment Services, Adoption Assistance, General

Assistance, Medi- Cal and Food Stamp Programs. It also administers Emergency

Response Program providing for the needs of abused children through a phone room

system receiving reports of child abuse from mandated reporting agencies; a Court

Intake Unit for referrals from Law Enforcement; a Family Maintenance Program; a

Family Reunification Program; and a Permanent Placement Program consisting of long

term foster care, adoptions, and legal guardianship. Other programs include In Home

Supportive Services to enable blind, disabled and aged to live at home; Public

Guardianship for those unable to manage their own affairs; and Adult Protective

Services which investigates abuse of the elderly.

The CALWORKS Program came into being in January of 1998 and Kern County has

enrolled 16,598 participants, thus achieving the welfare reform goals established by the

reform legislation. 7,674 participants have found employment reducing the welfare

budget by $ 19,000,000 in grant savings. Of the 7,674 participants about 5,617 cases

had their grants reduced due to employment earnings. The number of cases in the

department has decreased by 2,596; of which 2,568 cases were closed due to

employment. Providing child care for CALWORKS participants is an ongoing activity

and to that end the Child Care Provider Project has trained 54 individuals with 36 of

those becoming fully licensed day care providers.

One of the major problems in implementing the CALWORKS program is transportation

for participants who are becoming employed in jobs that require their participation

during hours that public transportation is not available. Human Services is continuing

to work on this problem in collaboration with Employers Training Resource and the

Kern Works partnership.

Human Services investigates welfare fraud and has prevented payments of $ 589,922 in

1998, referred 50 cases to the district attorney and disqualified 911 food stamp

recipients. They are anticipating the implementation of an ATM type credit card

program to replace food stamps, thus eliminating further opportunities for “ Welfare

Fraud” by allowing only the purchase of nutritional foods. Legislation requires that the

ATM system be activated in 1999.

COMMENTS:

It appears from the committee’s investigation that the Kern Human Services

Department is doing an outstanding job of implementing welfare reform in a timely

fashion. In fact, according to comments made by Assemblyman Roy Ashburn in the

conferences attended by members of the Grand Jury, Kern County is leading the rest of

the state in welfare reform efforts and is well on its way to becoming the model for other

counties.

In addition to the ongoing efforts in furthering welfare reform, Human Services is to be

commended for its effective handling of a data- sharing problem with Kern Family

Health Care. Kern Family Health Care is a provider of services to Medi- Cal recipients

whose entitlement depends on their ability to access data provided by Human Services.

Human Services Director, Kathy Irvine, organized a team effort to meet the information

needs of Kern Family Health, resulting in improved cooperation between both

agencies.

When the committee visited Bakersfield Association of Retarded Citizens ( BARC), it

was discovered that BARC had a large number of buses and vans being used during

daytime hours to transport their clients. The committee suggested that perhaps an

arrangement could be made with Human Services to provide transportation to

CALWORKS participants who had jobs requiring their presence during hours when

public transportation was not available.

Committee members attending the annual Kern Works Conference were advised that

there are many forces throughout the state that would like to see the CALWORKS work

requirements relaxed which would jeopardize the Welfare Reform Program and make

the participants more dependent on welfare.

RECOMMENDATIONS:

That Human Services Department:

Continue its efforts to improve welfare reform in Kern County.

Inquire into the possibility of an arrangement with BARC to utilize its buses and vans to

transport CALWORKS participants during hours that public transportation is not

available.

That the Board of Supervisors maintain vigilance over any efforts to relax the work

requirements as established in the CALWORKS program and make sure that our

legislators do not undermine the current system.

NO RESPONSE REQUIRED:

LAW AND JUSTICE COMMITTEE

Frank K. Johnson, Chair

Norman E. Johnson

Anna Cleveland

Charles C. Bennett

Harold W. Nelson

MISSION STATEMENT

The California Penal Code is the Basic State Foundation for the investigation

procedures charged to the Law and Justice Committee within the Grand Jury. Penal

Code 919 ( b) states that the “ Grand Jury shall inquire into the condition and

management of the Public Prisons within the County.” The Law and Justice committee

visited these facilities to fulfill our obligations under the statute.

During the 1998- 1999 Grand Jury session, the Law and Justice Committee toured and

visited most of the law enforcement and detention facilities in Kern County. The

committee also received and responded ( by inquiry and investigation) to 22 individual

citizens’ complaints.

We sincerely thank all of the employees of the city, county, state, and federal facilities

who graciously welcomed us and gave their utmost energy and expertise, so that our

job could be more pleasant, exciting, and complete.

The Law and Justice Committee toured the following law enforcement agencies

during the fiscal year 1998- 1999.

1. Sheriff’s Headquarters ( Norris Road) 9. Sheriff’s Substation- McFarland

2. Sheriff’s Communication Center 10. Sheriff’s Substation- Mojave *

3. Sheriff’s Coroner’s Facility * 11. Sheriff’s Substation- Ridgecrest

4. Sheriff’s Substation- Buttonwillow * 12. Sheriff’s Substation- Rosamond

5. Sheriff’s Substation- Delano 13. Sheriff’s Substation- Taft

6. Sheriff’s Substation- Frazier Park 14. Sheriff’s Substation- Tehachapi

7. Sheriff’s Substation- Lake Isabella 15. Sheriff’s Substation- Wasco

8. Sheriff’s Substation- Lamont * 16. Arvin Police Department

17. Bakersfield Police Department 22. Taft Police Department

18. California City Police Department 23. Kern County Probation Dept.

19. Delano Police Department 24. Kern County Adult Probation Dept.

20. Ridgecrest Police Department 25. Kern County Central Jail

21. Shafter Police Department 26. District Attorney’s Crime Lab.

The following prison and detention facilities were also visited during the

Fiscal year.

1. Camp Erwin Owen * 7. Mesa Verde ( CCF)

2. Delano ( CCF) 8. North Kern State Prison ( NKSP)

3. Juvenile Hall 9. Taft ( CCF)

4. Lerdo Max/ Med. Detention Facility * 10. Taft Federal Prison ( TCI) *

5. Lerdo Minimum Detention Facility * 11. Tehachapi State Prison ( CCI)

6. Mc Farland ( CCF) * 12. Wasco State Prison ( WSP/ RC)

13. Shafter ( CCF)

* Asterisk denotes final report on following pages.

( CCF) Community Correctional Facility

( TCI) Taft Correctional Institution

( CCI) California Correctional Institution

( RC) Reception Center

KERN COUNTY SHERIFF’S LAMONT SUBSTATION

PURPOSE OF INQUIRY:

Annual visitation to observe the facility and review current procedures.

LOCATION:

The Lamont Substation is located at 12022 Main Street, south of Panama Road.

METHOD OF REVIEW:

The committee toured the facility and interviewed the sergeant in charge.

FINDINGS:

The location of this substation facility is home to a number of other government offices

and court rooms, with the station being located in the back southwest corner of the

building complex. This entire structure is approximately 10 years old and still very

attractive.

The interior of the substation looks new – very well kept and designed to effectively

accommodate staff procedures.

The reception area at the front of the building, with a large glass wall entrance, is

adequate, spacewise, with two clerks. Offices are provided for managerial staff along

with a kitchen style lounge area with refrigerator, stove, etc. The rest of the building

consists of a large staff room with 14 partitioned desks, two large ( men & women) rest

rooms with showers and adjoining locker rooms, an armory room with two safes to store

rifles, ammunition and confiscated narcotics; two interview rooms; a property storage

room, and a small patio area for smoking and relaxation.

The exterior west wall of the squad room is mostly glass looking out on a public

driveway that circles the complex. This condition along with the glass at the front

entrance constitutes a security problem for the deputies within.

There are complaints about too many people with keys coming in and out of the

building at all hours, day and night, without proper surveillance, which causes

confusion in keeping adequate records.

The staff consists of 1 commander ( stationed here at Lamont), 1 sergeant, 2 senior

deputies and 12 patrol deputies. The staff is reinforced with 10 reserves and 10

citizen’s service unit ( CSU) volunteers. There are 2 additional deputies assigned to

court bailiff duty.

The substation has 23 vehicles ( lacking adequate parking facilities); 3 are assigned as

pool vehicles for CSU use. Thirteen cars are considered drive- home vehicles. The

deputies are bound by the 15- mile limit for drive- home vehicles. Minor maintenance,

such as oil change, etc. is covered by local contract. Major vehicle maintenance is

taken to Kern County Fire Department maintenance facility on Olive Drive in

Bakersfield.

The facility has two holding cells along with a booking and finger printing area.

Prisoners are generally held for not more than a few hours. The prisoners are

transported to Lerdo Facility for pre- trial and returned for court procedures, usually by

reserves or CSU volunteers. Adjacent to the reception office, is a dispatch area with

tele- communications equipment for officers’ deployment along with surveillance

cameras to monitor the interior and exterior of the facility.

The South Area Substation Division jurisdiction covers an estimated 850 square miles

including Lamont, Taft, and Frazier Park areas.

The most prevalent crime in this area is agricultural theft, such as equipment of all

types, pipe, produce, etc. The area also has many assault calls from local

entertainment establishments. Like most Kern County substations, it is plagued with

gang problems and drug abuse by juveniles and adults alike.

The substation has a pass- through door to the court area, where two additional holding

cells for prisoners awaiting court appearances are located. These prisoners are

transported from Lerdo pre- trial back to court by this station.

This station has two information systems available at all times; the “ California Law

Enforcement Tele- Communications System ( CLETS)”, and the “ Criminal Justice

Information System ( CJIS).”

COMMENTS:

This substation is a very well kept, organized and commanded unit; the facility is well

equipped to accommodate staff procedures; and this substation is an outstanding

tribute to the City of Lamont and surrounding areas.

RECOMMENDATIONS:

That the following be done:

Enlarge the existing ( drive- thru) parking area to the west, with chain- link fencing and

covered areas for vehicle temperature control and security, which is now non- existent.

Provide a computerized keypad entry system on all existing entrance doors to the

substation, except for the public entrance.

Provide decorative concrete block protective walls in front of the reception entrance

and along the west side of the squad room for security purposes.

Increase the 15- mile limit to 25 miles for the drive- home vehicles.

RESPONSE REQUIRED WITHIN 90 DAYS TO:

PRESIDING JUDGE

KERN COUNTY SUPERIOR COURT

1415 TRUXTUN AVENUE

BAKERSFIELD, CA 93301

Response to the Grand Jury Final Report

LAMONT SUBSTATION

Recommendation: Enlarge the existing ( drive- through) parking area to the west, with chain-link-

fencing and covered areas for vehicle temperature control and security, which is now non-existent.

Response: Construction of additional secure parking, for the Lamont Substation has been

submitted as a capital project and is awaiting funding.

Recommendation: Provide a computerized keypad entry system on all existing entrance doors

to the substation, except for the public entrance.

Response: A keypad lock entry system is currently being considered for the Lamont

Substation.

Recommendation: Provide decorative concrete block protective walls in front of the

reception entrance and along the west side of the squad room for security purposes.

Response: The decorative concrete block protective walls are not critical and therefore

remain low on the priority list.

Recommendation: Increase the 15- mile limit to 25 miles for drive- home vehicles.

Response: The home retention mileage limitation has been increased to 25 miles. This has

aided in the parking situation.

LERDO MINIMUM DETENTION FACILITY

PURPOSE OF INQUIRY:

To review the prison conditions and operations.

LOCATION:

This minimum- security facility is one of three quite different prisons on the same

physical campus at 17635 Industrial Farm Road just north of the Lerdo Highway and

east of Highway 99. The other two prisons on this campus are a maximum and a pre-trial

detention facility.

BACKGROUND:

Penal Code 919( b) states that the “ Grand Jury shall inquire into the condition and

management of the public prisons within the county.” Grand Jury members visited this

facility to fulfill the obligation under this statute.

METHOD OF REVIEW:

Eight members of the Grand Jury toured this prison on October 6, 1998, and noticed

that visitors would have complete freedom for person to person contact, given the

visiting area arrangements. On November 23, 1998, three members of the Law &

Justice Committee returned to the facility to explore specific recommendations to

minimize illegal drug introduction into the inmate population.

FINDINGS:

Individuals who are detained while awaiting trial are housed in this facility as well as

those who are sentenced to spend up to one year in the County jail. The inmates are

primarily Kern County residents. Living quarters consist of dorms or barracks

surrounding an open yard with soccer, basketball, and other exercise facilities

available. Each housing unit has a patio and fenced grass area for outside relaxation.

Meal services are contracted for with the Wackenhut Corporation. The facility houses

approximately nine hundred males and one hundred females.

On any given day, ten to fifteen percent of the inmates are already sentenced to serve

time in the county jail. The rest of the inmates are in a pre- trial situation, requiring

transportation to court for hearings and trial. Inmates can earn time off of their

sentence by attending school classes, although they must serve at least one- third of

their sentence before being eligible for early release from jail. Low- risk, sentenced

prisoners provide a source of inmate labor for work crews to help public works, parks,

and other county departments. Work release programs are also available for

individuals convicted of misdemeanors who may elect to work unpaid for the city or

county and spend their nights at home rather than at the jail. If they fail to show up for

work assignments, they are picked up and placed in custody to complete their

sentence.

COMMENTS:

Since the vast majority of the residents are not yet sentenced by the courts, those

inmates must be considered innocent of the charges against them and cannot be

required to do manual labor like field or community work. Consequently, the

surrounding fields are sitting idle at this time, as is the dairy and butchering operations

that used to be part of the “ farm.” The horse training operation that was being

performed in conjunction with the Bureau of Land Management is also being phased

out for many of the same reasons, namely that excessive staff efforts are required in

these endeavors to benefit a very small number of inmates. Future education focus will

be on drug training, parenting classes, life skills training, and GED classes that will

help the majority of inmates as they return to their home communities.

Friends and family visiting facilities consist of an outside, tree shaded area with picnic

benches to sit on. It obviously permits person to person contact. As one would expect,

illegal drug use is difficult to control, and significant staff time is required to search

returning inmates following visiting privileges. Since all visitors pass through one small

gate to enter the visiting area, it could be possible to post drug- sniffing dogs at that

location to intercept any contraband prior to contact with inmates. Scheduling them on

a random, periodical basis would minimize the cost while retaining their deterrent

value.

RECOMMENDATIONS:

That the Sheriff’s Department does the following:

Schedule drug- sniffing canine assistance on a random, periodical basis during visiting

hours as a deterrent to introducing illegal substances into the facility.

RESPONSE REQUIRED WITHIN 90 DAYS TO:

PRESIDING JUDGE OF THE

KERN COUNTY SUPERIOR COURT

1415 TRUXTUN AVENUE

BAKERSFIELD, CA 93301

Response to the Grand Jury Final Report

The Grand Jury recommended the Kern County Sheriff s Department schedule drug- sniffing

canine assistance on a random, periodical basis during visiting hours as a deterrent to

introducing illegal substances into the facility. The following, is our response: We acknowledge

the value that a drug- sniffing dog might have on controlling the influx of drugs that might be

occurring as a result of contact visits at the Lerdo Minimum Facility. It is our intent to actively

consider the feasibility of adopting the Jury's recommendation during the next fiscal year.

LERDO MAXIMUM / MEDIUM DETENTION FACILITY

PURPOSE OF INQUIRY:

To review the prison conditions and operations.

LOCATION:

The Maximum/ Medium Security Facility is one of three quite different prisons on the

same physical campus at 17635 Industrial Farm Road, just north of Lerdo Highway and

east of Highway 99. The other two prisons on this campus are a minimum and a pre-trial

detention facility.

METHOD OF REVIEW:

Eight members of the Grand Jury toured this prison on October 6, 1998, and noticed

the lack of sufficient exercise space to handle the population mix and inmate needs.

On November 23, 1998, three members of the Law & Justice Committee returned to the

facility to explore specific recommendations to alleviate inmate exercise scheduling

problems.

BACKGROUND:

Penal Code 919( b) states that the “ Grand Jury shall inquire into the conditions and

management of the public prisons within the county.” Grand Jury members visited this

facility to fulfill jury obligations under this statute.

FINDINGS:

The Maximum/ Medium Security Facility is operated as a detention facility for both pre-sentenced

and sentenced adult federal inmates requiring secure incarceration. The

Sheriff leases jail bed space to Federal Government Agencies such as the Immigration

and Naturalization Service, Bureau of Prisons, and the United States Marshal’s Office.

This mix of prisoners poses significant challenges for the staff in that several inmates

must be housed in single cells and require individual attention for feeding, exercising,

and maintaining activities. While average costs are higher to house this population,

the per diem paid by the Federal Agencies involved makes the effort profitable and

annually contributes significant dollars to the Sheriff’s budget.

COMMENTS:

This facility houses only federal prisoners. The building is constructed as an old

fashioned prison, with many individual cells as well as several rows of group ( designed

for six to eight people) cells. There are also several dormitory type facilities for housing

inmates that can be accommodated in this fashion, such as groups of people the

Immigration and Naturalization Service might hold in detention while waiting for

deportation arrangements.

There is only one small exercise yard attached to this facility to accommodate all of the

prisoners housed here. This limitation is further exacerbated by the need to place

many prisoners in single cell accommodations for their own safety or for the safety of

others and to schedule individual exercise time for them. Groups that are housed

together also exercise together. The daily yard schedule begins at 6: 00 a. m. and runs

until 12: 00 midnight, with unscheduled blocks of time for meals or other necessary

prison routines. This schedule permits inmates a total of three hours each of exercise

outside their cell each week in blocks of one and one- half hours at a time.

There is an empty lot next door to the present exercise yard that could easily double

the exercise accommodations. A request to build this yard has been on the County’s

“ Capital and Major Maintenance Project Request List” since 1996 but has not been able

to reach the priority level that would permit the construction to go forward. Questions

were also raised about the estimated construction cost that is shown on the list as it

seems higher than one would anticipate for a simple concrete exercise yard similar to

the existing one.

While Jury members were outside the building to observe the potential exercise yard

site, an unfenced space was also pointed out that is behind the single and group cell

block area that could be fenced to confine prisoners near the building during

emergency evacuations. Exit doors from the building are in place