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Agenda packet

City Council and Concurrent Authorities
December 5, 2023

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Agenda packet
Meeting
December 5, 2023
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City Council and Concurrent Authorities
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Text extracted from the city's file for reading and search. Open the original on www.stocktongov.com. That file is the official record.

City Council/Successor Agency to the
Redevelopment Agency/Public
Financing Authority/Parking Authority
Concurrent
City of Stockton
Meeting Agenda - Final
City Council/Successor
Agency of the
Redevelopment
Agency/Public Financing
Authority/Parking Authority
Concurrent Agenda
Council Chamber, City Hall, 425 N. El Dorado
Street, Stockton CA
4:00 PMTuesday, December 5, 2023
Closed Session 4:00 PM :: Regular Session 5:30 PM
Note: Vice Mayor Kimberly Warmsley participated in the meeting via teleconference from the following location: ACE Hotel Los Angeles, Business Center, 929 S. Broadway, Los Angeles, CA 90015

1. CLOSED SESSION CALL TO ORDER/ROLL CALL

2. ADDITIONS TO CLOSED SESSION AGENDA

3. ANNOUNCEMENT OF CLOSED SESSION

3.1 23-1121

CONFERENCE WITH LEGAL COUNSEL - EXISTING LITIGATION
Number of Cases: Four
Name of Case: Karla Heneby v. City of Stockton, et al. (San Joaquin County Superior Court Case No.

STK-CV-UCR-2022-9993)
Name of Case: Yachne Noah v. City of Stockton, et al. (San Joaquin County Superior Court Case No.

STK-CV-UNPI-2022-9992)
Name of Case: Angela Pelligra v. City of Stockton, et al. (San Joaquin County Superior Court Case No.

STK-CV-UCR-2022-9859)
Name of Case: Kurt Wilson v. City Council of Stockton, et al. (San Joaquin County Superior Court Case No.

STK-CV-UVM-2019-12404)
This Closed Session is authorized pursuant to section 54956.9(d) (1) of the Government Code.

Department:

City Attorney

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3.2 23-1122

CONFERENCE WITH LABOR NEGOTIATOR
Recommended Action: Agency Designated Representative: City Manager Harry Black Employee Organizations: Unrepresented Units, Stockton City Employees' Association, Operating Engineer's Local 3, Mid-Management/Supervisory Level Unit, Unrepresented Management/Confidential, Law Department, Stockton Police Management Association, Stockton Firefighters Local 456 International Association of Firefighters, Stockton Fire Management, Stockton Police Officers' Association (SPOA)
This Closed Session is authorized pursuant to section 54957.6(a) of the Government Code.

Department:

City Attorney

3.3 23-1123 PUBLIC EMPLOYEE PERFORMANCE EVALUATION:

Recommended Action: City Manager

This Closed Session is authorized pursuant to Government Code section 54957.

Department:

City Attorney

3.4 23-1124 PUBLIC EMPLOYEE PERFORMANCE EVALUATION:

Recommended Action: City Attorney

This Closed Session is authorized pursuant to Government Code section 54957.

Department:

3.4City Attorney

3.5 23-1125 PUBLIC EMPLOYEE PERFORMANCE EVALUATION:

Recommended Action: City Clerk

This Closed Session is authorized pursuant to Government Code section 54957.

Department:

City Attorney

3.6 23-1126 CONFERENCE WITH LEGAL COUNSEL - POTENTIAL LITIGATION Number of Cases: One
Based on existing facts and circumstances, there is significant exposure to litigation pursuant to Government Code section 54956.9(d)(2).

Department:

City Attorney

3.7 23-1127 CONFERENCE WITH LEGAL COUNSEL - INITIATION OF

LITIGATION

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Authority Concurrent
Meeting Agenda - Final
Number of Cases: One
Based on existing facts and circumstances, there is significant exposure to litigation pursuant to Government Code section 54956.9(d)(4).

Department:

City Attorney

4. CLOSED SESSION PUBLIC COMMENT*

5. RECESS TO CLOSED SESSION

6. REGULAR SESSION CALL TO ORDER/ROLL CALL

7. INVOCATION/PLEDGE TO FLAG

8. REPORT OF ACTION TAKEN IN CLOSED SESSION

9. ADDITIONS TO REGULAR SESSION AGENDA***

10. RECOGNITIONS, ANNOUNCEMENTS, OR REPORTS

11. PUBLIC COMMENTS* – MATTERS NOT ON THE AGENDA

12. CONSENT AGENDA

12.1 23-1162

APPOINTMENT TO THE CHARTER REVIEW ADVISORY

COMMISSION
Recommended Action: RECOMMENDATION
Resolution ratifying the Councilmember Wright's appointment to the Charter Review Advisory Commission for a term commencing immediately ending December 31, 2024,
Department:

City Clerk
Attachment A - Redacted Application
Proposed Resolution
Attachments:

12.2 23-0909 APPROVE MOTION TO AMEND THE THREE-YEAR STANDARD

AGREEMENT BETWEEN THE CITY OF STOCKTON AND JACK

ROBERSON FOR THE CALIFORNIA VIOLENCE INTERVENTION

AND PREVENTION (CALVIP) GRANT

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3 December 5, 2023City Council/Successor Agency to
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Meeting Agenda - Final
Recommended Action:

RECOMMENDATION
It is recommended that the City Council approve a motion to:

1. Amend a standard agreement with Jack Roberson of Mora Learning Institute (MLI) to assume the lead technical assistance role and provide direct support and consulting to the OVP director, staff, and CalVIP sub-recipients for the overall implementation of the CalVIP Cohort 4 initiative in the not-to-exceed amount of $290,000.

2. Authorize the City Manager to move CalVIP funds between approved sub-recipients as necessary.

3. Authorize the City Manager to take appropriate and necessary actions to carry out the purpose and intent of this motion.

Department:

City Manager
Attachment A - Approved Resolution
Attachment B - 2022-25 CalVIP Grant Agreement
Attachment C - Contract Amendment 1
Attachments:

12.3 23-0953 RESOLUTION AUTHORIZING ACCEPTANCE OF GRANT FUNDS

FROM THE STATE OF CALIFORNIA BOARD OF STATE
COMMUNITY CORRECTIONS, IN THE AMOUNT OF $9,174 FOR THE

CALIFORNIA VIOLENCE INTERVENTION AND PREVENTION
(CALVIP) MENTAL HEALTH SERVICES FOR FRONT LINE
WORKERS GRANT FOR THE PERIOD JULY 1, 2023, THROUGH
JUNE 30, 2025, AND AUTHORIZING EXECUTION OF GRANT

AGREEMENT

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Meeting Agenda - Final
Recommended Action:

RECOMMENDATION
It is recommended that the City Council approve a resolution to:

1. Authorize the City Manager to accept grant funding from the State of California Board of State Community Corrections California Violence Intervention and Prevention (CalVIP) Grant; and

2. Authorize all required appropriations and expenditures in compliance with and for the purposes stated in the project agreement over a two year period; and

3. The grant funds received hereunder shall not be used to supplant expenditures controlled by this body; and

4. The City Manager, or designee, is authorized and directed to execute on behalf of the City of Stockton all required contracts or agreements with the granting agency, provide additional information and furnish such documents as may be required, execute all documents and amendments or extensions pertaining to the grant project; and

5. The City Manager, or designee, is hereby authorized to take appropriate and necessary actions to carry out the purpose and intent of the resolution.

Department:

City Manager
Attachment A - CALVIP April 2023 Application
Proposed Resolution
Attachments:

12.4 23-0993 APPROVE A MOTION ACCEPTING THE 2023 ANNUAL PROGRESS REPORT TO CONFIRM 200-YEAR URBAN LEVEL OF FLOOD
PROTECTION FINDING FOR RECLAMATION DISTRICT 2042 AREA
Recommended Action:

RECOMMENDATION
Staff recommends that City Council:

1. Approve a motion accepting the 2023 Annual Progress Report to confirm the 200-year urban level of flood protection adequate progress finding for the Reclamation District 2042 boundary area; and

2. Authorize the City Manager or designee to take necessary and appropriate actions to carry out the purpose and the intent of this motion.

Department:

Community Development
Attachment A - RD2042 Map
Attachment B - SB 5 Overview
Attachment C - 200 Yr Floodplain Map
Attachment D - 2023 Annual Progress Report
Attachments:

12.5 23-0012 ADOPT A RESOLUTION TO ACCEPT AND APPROPRIATE FUNDING

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Meeting Agenda - Final

FOR THE CALIFORNIA DEPARTMENT OF TRANSPORTATION

SUSTAINABLE TRANSPORTATION PLANNING GRANT AWARDED

TO SAN JOAQUIN COUNCIL OF GOVERNMENTS
Recommended Action:

RECOMMENDATION
It is recommended that the City Council approve a resolution to:

1. Authorize the City Manager, or designee, to accept the grant suballocation from SJCOG as a subrecipient, contribute the local match requirement, execute and submit all documents including agreements, amendments, and payment requests, and make all necessary appropriations in compliance with and for the purposes stated in the grant award and application; and

2. Authorize the City Manager, or designee, to take appropriate and necessary actions to carry out the purpose and intent of this resolution.

Department:

Economic Development
Proposed Resolution - Caltrans GrantAttachments:

12.6 23-1059 APPROVE A MOTION TO EXECUTE CONTRACT AMENDMENT NO.

TWO WITH UKG KRONOS SYSTEMS, LLC (FORMERLY KRONOS

INCORPORATED) FOR THE TELESTAFF SCHEDULING SOLUTION
Recommended Action:

RECOMMENDATION
It is recommended that the City Council approve a motion to:

1. Authorize the City Manager to execute Contract Amendment No. Two to the UKG Kronos Systems, LLC (formerly Kronos Incorporated) Agreement in an amount not to exceed $28,645.05.

2. Approve findings pursuant to Stockton Municipal Code section

3.68.070 in support of an exception to the competitive bidding process; and

3. Authorize the City Manager to take appropriate and necessary actions to carry out the purpose and intent of this motion.

Department:

FIRE
Attachment A - Original Agreement
Attachment B - Amendment 1
Attachment C - Amendment 2
Attachments:

12.7 23-1088 APPROVE MOTION TO EXECUTE A FIVE-YEAR MASTER SERVICE

AGREEMENT WITH LEXIPOL, LLC FOR POLICY MANAGEMENT
SERVICES IN AN AMOUNT NOT TO EXCEED $179,700

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Recommended Action:

RECOMMENDATION
It is recommended that the City Council approve a motion to:

1. Authorize the City Manager to execute a five-year Master Service Agreement with Lexipol, LLC (Lexipol), in an amount not to exceed $179,688.70.

2. Approve findings pursuant to Stockton Municipal Code section

3.68.070 in support of an exception to the competitive bidding process; and

3. It is further recommended that the City Manager be authorized and directed to make any and all expenditures and appropriations on behalf of the City as appropriate and necessary to carry out the purpose and intent of this motion.

Department:

FIRE
Attachment A - Master Service AgreementAttachments:

12.8 23-0891 AUTHORIZE THE CITY MANAGER TO EXECUTE A CONTRACT WITH LAW ENFORCEMENT PSYCHOLOGICAL SERVICES, INC. TO

PROVIDE PRE-EMPLOYMENT PSYCHOLOGICAL EVALUATION

SERVICES
Recommended Action:

RECOMMENDATION
It is recommended that the City Council approve a motion authorizing the City Manager to:

1. Execute a five (5) year contract with Law Enforcement Psychological Services, Inc. to provide pre-employment psychological testing for police and fire department candidates.

2. Approve exception to the competitive bidding process pursuant to Stockton Municipal Code section 3.68.070.

3. Authorize the City Manager to take appropriate and necessary actions to carry out the purpose and intent of this motion.

Department:

Human Resources
Attachment A - Proposed Contract with LEPSAttachments:

12.9 23-1075 ACCEPT THE FINAL 2022-23 SAN JOAQUIN COUNTY CIVIL GRAND

JURY REPORT AND APPROVE THE CITY OF STOCKTON
RESPONSE CASE NO. 0322 SCHOOL SAFETY IN SAN JOAQUIN
COUNTY: DEVELOPING A CULTURE OF SAFETY
Recommended Action:

RECOMMENDATION
It is recommended that the City Council accept the final 2022-23 San Joaquin County Civil Grand Jury Report and approve by motion the City's response to the School Safety in San Joaquin County: Developing a Culture of Safety investigation (Case No. 0322).

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Department:

Police
Attachment A - 2022-23 SJC Grand Jury Final Report
Attachment B - SPD Response Letter
Attachments:

12.10 23-0894 ADOPT RESOLUTION TO AWARD A PROFESSIONAL SERVICES

CONTRACT AND APPROPRIATE FUNDS FOR THE DOWNTOWN

EAST-WEST CONNECTION PROJECT
Recommended Action:

RECOMMENDATION
It is recommended that the City Council adopt a resolution to:

1. Award a Professional Services Contract to Siegfried Engineering, Inc. of Stockton, CA, in the amount of $258,500, for design of the Downtown East-West Connection, Project No. WT22050/ATPL-5008(199).

2. Approve findings pursuant to Stockton Municipal Code section

3.68.070 in support of an exception to the competitive bidding process.

3. Appropriate funds in the amount of $20,000 from the Public Facilities Fee Air Quality Fund Balance to the Downtown East-West Connection, Project No. WT22050/ATPL-5008(199).

It is recommended that the City Manager be authorized to take appropriate and necessary actions to carry out the purpose and intent of this resolution.

Department:

Public Works
Attachment A - Vicinity Map
Proposed Resolution
Exhibit 1 - Professional Services Contract
Attachments:

12.11 23-0897 REJECT BIDS FOR THE CITYWIDE SIDEWALK REPAIR PROJECT Recommended Action: RECOMMENDATION
It is recommended that the City Council approve a motion to reject all bids received for the Citywide Sidewalk Repair, Project No. WD22053, pursuant to Stockton Municipal Code section 3.68.160(B).

It is also recommended that the City Manager be authorized to take appropriate and necessary actions to carry out the purpose and intent of this motion.

Department:

Public Works
Attachment A - Project Map
Attachment B - Location List
Attachments:

12.12 23-0905 ADOPT RESOLUTION TO AUTHORIZE THE ADA CURB RAMP

INSTALLATION PROJECT

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Recommended Action:

RECOMMENDATION
It is recommended that the City Council adopt a resolution to:

1. Approve Notice of Exemption No. NOE39-23 under the California Environmental Quality Act for the ADA Curb Ramp Installation, Project No. WD23004.

2. Approve the plans and specifications for the ADA Curb Ramp Installation, Project No. WD23004.

3. Award a Construction Contract in the amount of $785,000 to Terocons, Inc. of San Francisco, CA, for the ADA Curb Ramp Installation, Project No. WD23004.

It is also recommended that the City Manager be authorized to take appropriate and necessary actions to carry out the purpose and intent of this resolution.

Department:

Public Works
Attachment A - Location List
Attachment B - Vicinity Map
Proposed Resolution
Exhibit 1 - Notice of Exemption
Exhibit 2 - Construction Contract
Attachments:

12.13 23-0785 ADOPT RESOLUTION TO AUTHORIZE SUBMITTAL OF A GRANT AGREEMENT UNDER THE FISCAL YEAR 2022 SAFE STREETS AND

ROADS FOR ALL GRANT PROGRAM
Recommended Action:

RECOMMENDATION
It is recommended that the City Council adopt a resolution to:

1. Authorize the City Manager to execute a Grant Agreement under the Federal Fiscal Year 2022 Safe Streets and Roads for All Grant Program with the U.S. Department of Transportation Federal Highways Administration.

2. Authorize the City Manager, or designee, to submit future Safe Streets and Roads for All Grant Program applications and execute all necessary implementation related documents and agreements with the U.S.

Department of Transportation Federal Highways Administration.

It is also recommended that the City Manager be authorized to take appropriate and necessary actions to carry out the purpose and intent of this resolution.

Department:

Public Works
Proposed Resolution - SS4A
Exhibit 1 - US Dept. of Trans - Grant Agreement
Attachments:

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12.14 23-0830

APPROVE MOTION TO AWARD A PROFESSIONAL SERVICES

CONTRACT FOR THE EQUINOA PARK PHASE II PROJECT
Recommended Action: RECOMMENDATION
It is recommended that the City Council approve a motion to:

1. Award a Professional Services Contract to Callander Associates of Gold River, CA, in the amount of $198,942, for design of the Equinoa Park Phase II, Project No. WP13173.

2. Approve findings pursuant to Stockton Municipal Code section

3.68.070 in support of an exception to the competitive bidding process.

It is also recommended that the City Manager be authorized to take appropriate and necessary actions to carry out the purpose and intent of this motion.

Department:

Public Works
Attachment A - Vicinity Map
Attachment B - Professional Services Contract
Attachments:

12.15 23-0833 ADOPT RESOLUTION TO AWARD A PROFESSIONAL SERVICES

CONTRACT AND APPROPRIATE FUNDS TO THE CANNERY PARK

PROJECT
Recommended Action:

RECOMMENDATION
It is recommended that the City Council adopt a resolution to:

1. Award a Professional Services Contract to O'Dell Engineering of Modesto, CA, in the amount of $222,542, for design of Cannery Park, Project No. WP13270.

2. Approve findings pursuant to Stockton Municipal Code section

3.68.070 in support of an exception to the competitive bidding process.

3. Appropriate funds in the amount of $125,000 from the Public Facilities Fee Parkland Fund Balance to Cannery Park, Project No. WP13270.

It is also recommended that the City Manager be authorized to take appropriate and necessary actions to carry out the purpose and intent of this resolution.

Department:

Public Works
Attachment A - Vicinity Map
Proposed Resolution
Exhibit 1 - Professional Services Contract
Attachments:

13. ADMINISTRATIVE MATTERS

14. UNFINISHED BUSINESS

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Meeting Agenda - Final

15. NEW BUSINESS

15.1 23-0965

UPDATE ON CLEAN CITY INITIATIVE
Recommended Action: RECOMMENDATION
Information only. No action to be taken.

Department: Public Works
PPT - 15.1 - Update - Clean City InitiativeAttachments:

16. HEARINGS**

16.1 23-0978 ADOPT AN ORDINANCE AMENDING TITLE 16 OF THE STOCKTON

MUNICIPAL CODE TO ESTABLISH NEW LOGISTIC WAREHOUSE

STANDARDS
Recommended Action:

RECOMMENDATION
It is recommended that the City Council:

1. Find the proposed ordinance is exempt pursuant to the California Environmental Quality Act (CEQA) Section 15061(b)(3) (Common Sense Exemption), and that no future environmental review is required for proposed code amendments pursuant to CEQA Section 15183 (Consistency with General Plan and Community Plan); and

2. Adopt an Ordinance Amending Title 16 (Development Code) of the Stockton Municipal Code (SMC) Chapter 16.80 (Standards for Specific Land Uses) to add a new Section 16.80.390 (Logistic Warehouse), including one of the Options below:

Option A - Standards that reflect Memorandum of Agreement with the State of California Attorney General; or
Option B - Standards that reflect the Memorandum of Agreement with adjustments consistent with the Agreement requirements; or Option C - Standards that reflect industry recommendations.

Department:

Community Development

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Attachment A - CA Attorney General Approved Agreement
Attachment B - Sierra Club Approved Agreement
Attachment C - Outreach and Comment Summary
Attachment D - Proposed Ordinance (Option A)
Attachment E - Proposed Ordinance (Option B)
Attachment F - Proposed Ordinance (Option C)
Attachment G - Ordinance Option Comparison Table
Attachment H - Option B Feasibility Analysis
Attachment I - Option C Feasibility Analysis
Attachment J - Approved PC Resolution
Attachment K - Public Comment
PPT - 16.1 - Amending SMC Title 16 - Warehouse Standards Attachments:

16.2 23-1104 PUBLIC HEARING FOR THE CONSIDERATION OF THE PROPOSED MEASURE A SUNSET EXTENSION; ADOPTION OF AN ORDINANCE
EXTENDING THE TERM OF THE TAX MEASURE; AND ADOPTION

OF A RESOLUTION AMENDING THE ANNUAL BUDGET
Recommended Action:

RECOMMENDATION
It is recommended that the City Council hold the second required public hearing to discuss an extension of the 3/4 Cent General Transaction and Use Tax previously approved by voters at the November 5, 2013 election (Measure A) and at the conclusion of the public hearing:

1. Adopt an ordinance which adopts requisite findings and extends the sunset of the tax measure, and

2. Adopt a resolution amending the authorized positions in the FY 2023-24 Annual Budget.

It is further recommended that the City Manager be authorized to take appropriate and necessary actions to carry out the purpose and intent of the ordinance and resolution.

Department:

Administrative Services
Attachment A - Ordinance No. 2013-07-09-1601
Proposed Resolution
Proposed Ordinance
Exhibit 1 - LRFP With and Without Measure A
Exhibit 2 - Services Restored Using General Fund
Exhibit 3 - Services Threatened by Sunset of Measure A
Exhibit 4 - Methodology Used - Salary Comp Studies
Exhibit 5 - Successor MOU Appendices
PPT - 16.2 - Measure A Extension
Attachments:

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17. CITY MANAGER'S UPDATE

18. COUNCIL COMMENTS

19. ADJOURNMENT

INFORMATIONAL ITEMS

CERTIFICATE OF POSTING
I declare, under penalty of perjury, that I am employed by the City of Stockton and that I caused this agenda to be posted in the City Hall notice case on November 30, 2023, in compliance with the Brown Act.

Eliza R. Garza, CMC
City Clerk
By: ________________________________

Deputy

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PUBLIC COMMENTS
*Citizens may comment on any subject within the jurisdiction of the City Council/Successor Agency to the Redevelopment Agency/Public Finance Authority/Parking Authority, including items on the Agenda. Each speaker is limited to two minutes. Speakers must submit “Request to Speak” cards to the City Clerk, and be prepared to speak when called. No speaker cards will be received after the close of the Citizen’s Comments portion of the meeting.
**Speakers should hold comments on items listed as a Hearing until the Hearing is opened.

The City of Stockton invites public comments in multiple forms. You provide your comments by using one of these methods:

1. e-Comment - follow the e-comment link on the City's agenda page stockton.granicusideas.com/meetings

2. Email - you may email your comments to [email protected]

3. Voicemail - you can leave a voice message by dialing (209) 937-8459.

4. In-Person Comments - a) Speakers must submit "request to speak cards" to the Clerk prior to the Public Comment portion of the agenda. No speaker cards will be accepted after the close of Public Comment. Please redirect any inquiries to [email protected]. b) Address only issues over which the meeting body has jurisdiction. c) Each speaker will be limited to one 2-minute comment opportunity. Donating time is not authorized. d) Your time will be displayed on the speaker podium for convenience. *All written and voicemail public comments received by the Clerk's Office 90 minutes prior to the meeting start time will be forwarded to the meeting body members as correspondence and attached the minutes. All comments received after that time will be forwarded as correspondence the following business day. ***Additions to the Agenda - Government Code Section 54954.2(b)(2), allows members of the City Council present at the meeting to take immediate action, with either a two-thirds or unanimous vote, to place an item on the agenda that action must be taken and that the item came to the attention of the City subsequent to the agenda being posted.

All proceedings before this meeting body are conducted in English. The City of Stockton does not furnish language interpreters and, if one is needed, it shall be the responsibility of the person needing one.

In accordance with the Americans With Disabilities Act and California Law, it is the policy of the City of Stockton to offer its public programs, services and meetings in a manner that is readily accessible to everyone, including those with disabilities. If you are a person with a disability and require a copy of a public hearing notice, or an agenda and/or agenda packet in an appropriate alternative format; or if you require other accommodation, please contact the Office of the City Clerk located at 425 North El Dorado Street, Stockton, California 95202 during normal business hours or by calling (209) 937-8458, at least 5 days in advance of the hearing/meeting. Advance notification within this guideline will enable the City/Agency to make reasonable arrangements to ensure accessibility.

Materials related to an item on this agenda submitted to City Council after distribution of the agenda packet are available for public inspection in the City Clerk's Office at 425 North El Dorado Street, Stockton, California 95202, during normal business hours. Such documents are also available on the City's website at www.stocktongov.com subject to staff's ability to post the documents before the meeting.

CHALLENGING CITY DECISIONS: The time limit within which to commence any lawsuit or legal challenge to any quasi-adjudicative decision made by the City is governed by Section 1094.6 of the Code of Civil Procedure, unless a shorter limitation period is specified by any other provision. Under Section 1094.6, any lawsuit or legal challenge to any quasi-adjudicative decision made by the City must be filed no later than the 90th day following the date on which such decision becomes final. Any lawsuit or legal challenge, which is not filed within that 90-day period, will be barred. If a person wishes to challenge the nature of the above section in court, they may

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be limited to raising only those issues they or someone else raised at the meeting described in this notice, or in written correspondence delivered to the City of Stockton, at or prior to the meeting. In addition, judicial challenge may be limited or barred where the interested party has not sought and exhausted all available administrative remedies.

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15 City of Stockton
Legislation Text
File #: 23-1162, Version: 1

APPOINTMENT TO THE CHARTER REVIEW ADVISORY COMMISSION

RECOMMENDATION
Resolution ratifying the Councilmember Wright’s appointment to the Charter Review Advisory Commission for a term commencing immediately ending December 31, 2024,

DISCUSSION
Background
This is an advisory body that reports to the Charter Review Ad-Hoc Committee. The Commission has been tasked with a specific scope of work, concrete deliverables, and a time schedule for project completion that coincides with certain scheduled upcoming elections.

The Charter Review Advisory Commission was established by Council Resolution 2023-10-24-1502 and is comprised of seven appointees, each chosen by a City Council member, including the Mayor.

Present Situation
At this time the Gary Prost for District 2 has been selected by Councilmember Wright and will be appointed with terms beginning immediately end December 31, 2024

FINANCIAL SUMMARY
There is no immediate financial impact to the General Fund from this appointment; there is no remuneration for service on the Charter Review Advisory Commission. There may be impacts to City staff time.

City of Stockton Printed on 11/30/2023Page 1 of 1
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16 Submit Date: Nov 30, 2023
Email Address
First Name Middle Initial Last Name
Street Address
City State Postal Code
Primary Phone Alternate Phone
Employer
Application for appointment and background information for City of Stockton Boards, Commissions, and Committees
Profile
Ethnicity
Gender
What district do you live in? *
District 2
I declare under penalty of disqualification/termination that I have been a resident at the above address for years/months?
2358 Bennets Mill Way
The City of Stockton uses email as the preferred method of communication regarding your application. Is this acceptable to you?
Yes No
Are you currently serving on a City of Stockton Board, Commission, or Committee? Yes No
Gary E Prost
Stockton CA
Gary E Prost
Attachment A
17 Which Boards would you like to apply for?
Charter Review Advisory Commission: Submitted
I have been a resident of Stockton for at least 3 years.

Yes No
Interests & Experiences
Please tell us about yourself and why you want to serve.

I am a retired congressional staff member and former state legislative staff member, and I have a long- standing interest in governmental organization.

Please state the reason you would like to be a member of this board/commission.

I want to play a part in Stockton's bright future, and Councilmember Wright suggested this position.

Have you served on an advisory group before?
Yes No
How did you hear about the position?
As stated above, Councilmember Wright suggested I serve Stockton in this capacity.

City Council Policy 100-2 states that Commissioners are required to attend meetings on a regular basis. If appointed, will you be able to attend meetings regularly and devote the time necessary to fulfill your duties as a member?
Yes No
Do you or immediate family members have any relationship (professional, financial, other) that may present a potential conflict of interest for this advisory group? Yes No
Gary E Prost
Attachment A
18 Upload a Resume
Background Information
Based on your best judgment, does this Commission make decisions that may affect any sources of income, interests in real property, or investments of you or your spouse? Yes No
Voter Registration (Questions appear if required)
Submit Application
Enter Your Initials:

GEP
Date Signed
11/30/2023
Gary E Prost
Attachment A
19 Resolution No.

STOCKTON CITY COUNCIL

RESOLUTION APPOINTING ONE COMMISSIONER TO THE CHARTER REVIEW

ADVISORY COMMISSION

The Charter Review Advisory Commission is comprised of seven appointees, each chosen by a City Council member, including the Mayor; and

Having reviewed the active applications on file, Councilmember Wright has nominated Gary Prost to fill the vacancy; now, therefore,

BE IT RESOLVED BY THE CITY COUNCIL OF THE CITY OF STOCKTON, AS FOLLOWS:

1. Gary Prost is hereby appointed to the Charter Review Ad Commission, for a term effective immediately, and ending on December 31, 2024.

PASSED, APPROVED, and ADOPTED December 5, 2023 .

KEVIN J. LINCOLN II
Mayor of the City of Stockton
ATTEST:

ELIZA R. GARZA, CMC
City Clerk, City of Stockton

20 City of Stockton
Legislation Text
File #: 23-0909, Version: 1

APPROVE MOTION TO AMEND THE THREE-YEAR STANDARD AGREEMENT BETWEEN THE

CITY OF STOCKTON AND JACK ROBERSON FOR THE CALIFORNIA VIOLENCE

INTERVENTION AND PREVENTION (CALVIP) GRANT

RECOMMENDATION
It is recommended that the City Council approve a motion to:

1. Amend a standard agreement with Jack Roberson of Mora Learning Institute (MLI) to assume the lead technical assistance role and provide direct support and consulting to the OVP director, staff, and CalVIP sub-recipients for the overall implementation of the CalVIP Cohort 4 initiative in the not-to-exceed amount of $290,000.

2. Authorize the City Manager to move CalVIP funds between approved sub-recipients as necessary.

3. Authorize the City Manager to take appropriate and necessary actions to carry out the purpose and intent of this motion.

Summary
With resolution 2022-10-04-1501 (Attachment A), the City Council authorized the acceptance and appropriation of the 2022-25 CalVIP grant in the amount of $2,019,656 from the State of California, Board of State Community Corrections (BSCC). In November 2022, the City of Stockton received the fully executed CalVIP grant agreement from the BSCC (Attachment B). The grant period runs from October 1, 2022, to December 31, 2025.

With the CalVIP grant funds, the Office of Violence Prevention (OVP) will expand its Ceasefire strategies to youth ages 12-17 while creating a youth prevention and intervention program to deter people from violence. Additionally, utilizing the Office of Juvenile Justice and Delinquency Prevention (OJJDP) Comprehensive Gang Model, the OVP and community partners seek to create a youth prevention and intervention steering committee to address gun violence through an integrated system collectively. Equally as crucial as suppressing violence in Stockton is fostering wellness and resilience in individuals, communities, and service providers impacted by gun violence. The OVP and partners also will engage in trauma-informed activities focused on healing and wellness.

DISCUSSION
Background
Over the past twelve months, the Office of Violence Prevention (OVP) has diligently collaborated with sub-recipients of the CalVIP grant. OVP attempted to collaborate with Peace Partners Consulting City of Stockton Printed on 11/30/2023Page 1 of 2
powered by Legistar™
21 File #: 23-0909, Version: 1
(PPCG) LLC for technical assistance. Regrettably, the vendor faced challenges in fulfilling their contractual obligations due to capacity constraints. Consequently, the OVP terminated its contract with PPCG LLC.

The OVP requests that Council approve an agreement with another approved CalVIP sub-recipient currently providing TA support, Jack Roberson, doing business as Mora Learning Institute (MLI), and transfer responsibilities and funding originally granted to PPCG LLC as the lead technical assistant (TA). The transfer will ensure continuity and quality of TA support for all CalVIP cohort 4 participants.

MLI has been a dedicated and valuable partner of OVP for the past 12 months. MLI’s deep understanding of the specific requirements and duties associated with the CalVIP grant technical assistance scope of work equips MLI to assume the additional TA responsibilities seamlessly.

Present Situation
MLI's comprehensive scope of work aligns with PPCG's responsibilities, demonstrating their shared commitment to enhancing the Office of Violence Prevention's (OVP) capabilities. MLI's emphasis on Leadership Training and Strategic Planning, Curriculum Development, Life Coach Training Certification for OVP staff and partners mirrors PPCG's goal of actively supporting the implementation and expansion of OVP's violence intervention services. MLI's focus on creating leaders within OVP's client base resonates with PPCG's objective of providing direct support and consulting to OVP's director and staff, ensuring the project's success. MLI currently meets with and provides support and training to all CalVIP sub-recipients.

The technical assistance scopes of work for MLI and PPCG are closely interconnected, indicating that MLI is well-prepared to assume PPCG's responsibilities. This seamless transition ensures a continued streamlined and effective implementation of the CalVIP initiatives.

FINANCIAL SUMMARY
The vendor intends to provide leadership training, curriculum development, life coaching training certification, life coaching for the administration team, certified real colors facilitator, leadership video, technical assistance, and meeting facilitation services for $290,000.

Attachment A - Approved Resolution
Attachment B - 2022-25 CalVIP Grant Agreement
Attachment C - Contract Amendment 1
City of Stockton Printed on 11/30/2023Page 2 of 2
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Digitally signed by Ricardo Goodridge
Date: 2022.11.09 17:23:44 -08'00'

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ATTACHMENT B
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ATTACHMENT B
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ATTACHMENT B
55 ]D>k6FQJ>P<>k/T>d>P]FQPk0>?>UTEPCk&QaP<FKkF>k PaN;>UkQ?kN>>]FPC\k R:U]F<FR:]FPCk R:V]P>U\k:P=kN>>]FPCkQa]<QO>\k







 









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62 


 



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ATTACHMENT B
74 Attachment C
75 City of Stockton
Legislation Text
File #: 23-0953, Version: 1

RESOLUTION AUTHORIZING ACCEPTANCE OF GRANT FUNDS FROM THE STATE OF CALIFORNIA BOARD OF STATE COMMUNITY CORRECTIONS, IN THE AMOUNT OF $9,174

FOR THE CALIFORNIA VIOLENCE INTERVENTION AND PREVENTION (CALVIP) MENTAL HEALTH SERVICES FOR FRONT LINE WORKERS GRANT FOR THE PERIOD JULY 1, 2023, THROUGH JUNE 30, 2025, AND AUTHORIZING EXECUTION OF GRANT AGREEMENT

RECOMMENDATION
It is recommended that the City Council approve a resolution to:

1. Authorize the City Manager to accept grant funding from the State of California Board of State Community Corrections California Violence Intervention and Prevention (CalVIP) Grant; and

2. Authorize all required appropriations and expenditures in compliance with and for the purposes stated in the project agreement over a two year period; and

3. The grant funds received hereunder shall not be used to supplant expenditures controlled by this body; and

4. The City Manager, or designee, is authorized and directed to execute on behalf of the City of Stockton all required contracts or agreements with the granting agency, provide additional information and furnish such documents as may be required, execute all documents and amendments or extensions pertaining to the grant project; and

5. The City Manager, or designee, is hereby authorized to take appropriate and necessary actions to carry out the purpose and intent of the resolution.

Summary
In April 2023, the City of Stockton’s Office of Violence Prevention (OVP) applied to the State of California’s Board of State Community Corrections (BSCC) CalVIP Grant Program (Attachment A).

On October 9, 2023, the City of Stockton OVP was notified by the BSCC that the application was approved for $9,174 for two years.

The Ceasefire model is a well-known public health approach to reducing gun violence that has been effective in various cities across the United States (National Institute of Justice, 2014). In Stockton, the Ceasefire strategy has successfully reduced gang and gun violence. Stockton’s Office of Violence Prevention (OVP) supports this strategy by offering positive alternatives to individuals at the highest risk of becoming victims or perpetrators of gun and gang violence. The OVP strategies are carried out by community violence interrupters (CVls), or what the Stockton OVP calls Peacekeepers. The Peacekeepers are susceptible to vicarious trauma, anxiety, depression, and other mental health issues due to their exposure to gun violence and work with families impacted by violence.

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76 File #: 23-0953, Version: 1
The Office of Violence Prevention proposes to build on the success of the Ceasefire model by providing Mental Health Services to staff, which includes an 8-week mindful-based stress reduction training with mindful leaders and one one-on-one coaching. This project is aligned with the City of Stockton's Ceasefire model, a proven public health approach to reducing gun violence. By providing advanced mindfulness training to Peacekeepers, we aim to enhance effectiveness, promote wellness, and contribute to building a more peaceful and resilient Stockton. The grant period runs from July 1, 2023, to June 30, 2025.

DISCUSSION
Background
The California Violence Intervention and Prevention (CalVIP) Grant Program was established through the Budget Act of 2019 (Assembly Bill 74, Chapter 23, Statutes of 2019) and appropriated $136,000,000 in funding for competitive awards to cities and community-based organizations to support evidence-based violence reduction initiatives.

On October 11, 2019, Governor Newsom signed Assembly Bill 1603 (Chapter 735, Statutes of 2019) - also known as the Break the Cycle of Violence Act - which adds Section 14130 to the California Penal Code, codifying the establishment of the CalVIP Grant and the authority and duties of BSCC in administering the program, including selection criteria for grants and reporting requirements to the Legislature.

The Break the Cycle of Violence Act specifies that the purpose of CalVIP is to “improve public health and safety by supporting effective violence reduction initiatives in communities that are disproportionately impacted by violence, particularly group-member-involved homicides, shootings, and aggravated assaults.” CalVIP Grants shall be used to support, expand, and replicate evidence- based violence reduction initiatives, including but not limited to hospital-based violence intervention programs, evidence-based street outreach programs, and focused deterrence strategies.

These initiatives seek to interrupt cycles of violence and retaliation to reduce the incidence of homicides, shootings, and aggravated assaults. Further, these initiatives are primarily focused on providing violence intervention services to the small segment of the population that is identified as having the highest risk of perpetrating or being victimized by violence in the near future.

In consideration of the OVP’s current programs and activities, we propose to enhance these efforts to accomplish the goal of increased resilience scores and mindfulness awareness, improved ability to manage emotions, stay focused, and communicate skillfully in high-pressure situations. Additionally, we believe the skills and tools learned in the program can be shared with family members, creating a ripple effect of positive impact in the broader community.

Present Situation
On October 9, 2023, the City of Stockton OVP was notified by the BSCC that the application was approved in the amount of $9,174 for two years. This CalVIP grant period is legislatively designated for July 1, 2023, through June 30, 2025.

City of Stockton Printed on 11/30/2023Page 2 of 3
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77 File #: 23-0953, Version: 1
This funding from the Board of State and Community Corrections (BSCC) CalVIP program, specifically to support frontline workers, is to provide mindful-based stress reduction training to OVP staff, improving the outcomes of clients and their family members with trauma-informed practices.

The OVP chose the MBSR program offered by Mindful Leader because it is the most extensively tested evidence-based mindfulness program available. The Mindful-based Stress Reduction Training (MBSR) training will provide tools that can help staff manage trauma, stress, and anxiety, improve resilience, and reduce symptoms of depression, anxiety, and PTSD (Kearney et al., 2013).

Additionally, developing self-awareness and emotional regulation can lead to healthier coping mechanisms and better interpersonal relationships.

The objective of this grant project is to provide an eight-week online MBSR led by certified instructors to the City’s OVP staff. The San Joaquin Community Data Co-op will be evaluating the effectiveness of the mindfulness training program by utilizing pre-and post-training assessments, including the Five Facet Mindfulness Questionnaire and the Resilience Scale Questionnaire. The program's impact on the work of violence interrupters will also be evaluated through qualitative data gathering, including interviews and focus groups with program participants.

FINANCIAL SUMMARY
The grant award is $9,174. There are no impacts to the general fund or any unrestricted funds.

To account for the grant funds, the following appropriation in FY 2023-24 is necessary:
· Revenue appropriation of $9,174 to the FY 2023-24 CalVIP Grant in the OVP’s Special Grants fund, Reimbursements, Office of Violence Prevention Division. · Expenditure appropriation of $9,174 to the FY 2023-24 CalVIP Grant in the OVP’s Special Grants fund, Reimbursements, Office of Violence Prevention Division.

Attachment A - CalVIP July 2023 Application
City of Stockton Printed on 11/30/2023Page 3 of 3
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78 STATE OF CALIFORNIA DEPARTMENT OF GENERAL SERVICES SCO ID: 5227-BSCC85823 STANDARD AGREEMENT AGREEMENT NUMBER PURCHASING AUTHORIITY NUMBER (If Applicable) STD 213 (Rev 03/2019) BSCC 858-23 BSCC-5227

1. This Agreement is entered into between the Contracting Agency and the Contractor named below:

CONTRACTING AGENCY NAME

BOARD OF STATE AND COMMUNITY CORRECTIONS

CONTRACTOR NAME
City of Stockton

2. The term of this Agreement is:

START DATE
JULY 1, 2023

THROUGH END DATE
JUNE 30, 2025

3. The maximum amount of this Agreement is:
$9,174.00

4. The parties agree to comply with the terms and conditions of the following exhibits, attachments, and appendices which are by this reference made a part of the Agreement.

EXHIBITS TITLE PAGES
Exhibit A Scope of Work 2
Exhibit B Budget Detail and Payment Provisions 3
Exhibit C General Terms and Conditions (04/2017) 4
Exhibit D Special Terms and Conditions 5
Attachment 1* California Violence Intervention & Prevention Program: Mental Health Services for Frontline Workers Request for Applications *
Attachment 2 California Violence Intervention & Prevention Program: Mental Health Services for Frontline Workers Grant Application 9
* This item is hereby incorporated by reference and can be viewed at: http://www.bscc.ca.gov/s_cpgpcalvipgrant/ IN WITNESS WHEREOF, THIS AGREEMENT HAS BEEN EXECUTED BY THE PARTIES HERETO.

CONTRACTOR
CONTRACTOR NAME (if other than an individual, state whether a corporation, partnership, etc.) City of Stockton

CITY STATE ZIP CONTRACTOR BUSINESS ADDRESS
425 North El Dorado Street Stockton CA 95202

TITLE PRINTED NAME OF PERSON SIGNING
Harry Black City Manager

CONTRACTOR AUTHORIZED SIGNATURE DATE SIGNED

STATE OF CALIFORNIA

CONTRACTING AGENCY NAME

BOARD OF STATE AND COMMUNITY CORRECTIONS

CONTRACTING AGENCY ADDRESS CITY STATE ZIP
2590 Venture Oaks Way, Suite 200 Sacramento CA 95833

PRINTED NAME OF PERSON SIGNING TITLE
COLLEEN CURTIN Acting Deputy Director

CONTRACTING AGENCY AUTHORIZED SIGNATURE DATE SIGNED

CALIFORNIA DEPARTMENT OF GENERAL SERVICES APPROVAL: EXEMPT PER SCM, VOLUME 1, CH. 4.06

ATTACHMENT A
79 City of Stockton
BSCC
858-23 Page
1 of 2 EXHIBIT A: SCOPE OF WORK
Rev 04/2020

1. GRANT AGREEMENT – CALIFORNIA VIOLENCE INTERVENTION AND PREVENTION (CalVIP) MENTAL HEALTH SERVICES FOR FRONTLINE WORKERS GRANT PROGRAM This Grant Agreement is between the State of California, Board of State and Community Corrections (hereafter referred to as BSCC) and City of Stockton (hereafter referred to as the Grantee or Contractor).

2. PROJECT SUMMARY AND ADMINISTRATION
A. The CalVIP Program: Mental Health Services for Frontline Workers Grant Opportunity provides supplemental grants for CalVIP Cohort IV grantees to provide mental health services to frontline workers and their families.

B. Grantee agrees to administer the project in accordance with Attachment 1: CalVIP Program:

Mental Health Services for Frontline Workers Grant Request for Applications (incorporated by reference) and Attachment 2: CalVIP Program: Mental Health Services for Frontline Workers Grant Application, which are attached hereto and made part of this agreement.

3. PROJECT OFFICIALS
A. The BSCC's Executive Director or designee shall be t he BSCC's representative for administration of the Grant Agreement and shall have authority to make determinations relating to any controversies that may arise under or regarding the interpretation, performance, or payment for work performed under this Grant Agreement.

B. The Grantee’s project officials shall be those identified as follows:

Authorized Officer with legal authority to sign:

Name: Harry Black
Title: City Manager
Address: 425 North El Dorado Street, Stockton, CA 95202 Phone:

Email:
209-937-8212
[email protected]
Designated Financial Officer authorized to receive warrants:

Name: Gerardo Ponce
Title: Senior Management Assistant
Address: 425 North El Dorado Street, Stockton, CA 95202 Phone:

Email:
209-937-8227
[email protected]
Project Director authorized to administer the project:

Name: Lora M. Larson, MSW
Title: Violence Prevention Director
Address: 425 North El Dorado Street, Stockton, CA 95202 Phone: 209-937-5614
Email: [email protected]
C. Either party may change its project representatives upon written notice to the other party.

D. By signing this Grant Agreement, the Authorized Officer listed above warrants that he or she has full legal authority to bind the entity for which he or she signs.

ATTACHMENT A
80 City of Stockton
BSCC 858-23

Page 2 of 2 ends

EXHIBIT A: SCOPE OF WORK
Rev 04/2020

4. DATA COLLECTION
Grantees will be required to comply with all data collection and reporting requirements as described in Attachment 1: CalVIP Program: Mental Health Services for Frontline Workers Grant Request for Applications (incorporated by reference) and Attachment 2: CalVIP Program: Mental Health Services for Frontline Workers Grant Application.

5. PROJECT RECORDS
A. The Grantee shall establish an official file for the project. The file shall contain adequate documentation of all actions taken with respect to the project, including copies of this Grant Agreement, approved program/budget modifications, financial records and required reports.

B. The Grantee shall establish separate accounting records and maintain documents and other evidence sufficient to properly reflect the am ount, receipt, and disposition of all project funds, including grant funds and the total cost of the project. Source documentation includes copies of all awards, applications, approved modifications, financial records, and narrative reports.

C. Personnel and payroll records shall include the time and attendance reports for all individuals reimbursed under the grant, whether they are employed full -time or part-time. Time and effort reports are also required for all subcontractors and consultants.

D. The grantee shall maintain documentation of donated goods and/or services, including the basis for valuation.

E. Grantee agrees to protect records adequately from fire or other damage. When records are stored away from the Grantee’s principal office, a written index of the location of records stored must be on hand and ready access must be assured.

F. All Grantee records relevant to the project must be preserved a minimum of three (3) years after closeout of the grant project and shall be subject at all reasonable times t o inspection, examination, monitoring, copying, excerpting, transcribing, and auditing by the BSCC or designees. If any litigation, claim, negotiation, audit, or other action involving the records has been started before the expiration of the three -year period, the records must be retained until the completion of the action and resolution of all issues which arise from it or until the end of the regular three-year period, whichever is later.

ATTACHMENT A
81 City of Stockton
BSCC 858-23

Page 1 of 3 ends

EXHIBIT B: BUDGET DETAIL AND PAYMENT PROVISIONS
Rev 04/2020

1. INVOICING AND PAYMENTS
A. The Grantee shall be paid in quarterly in arrears by submitting an invoice (Form 201) to the BSCC that outlines actual expenditures claimed for the invoicing period.

Quarterly Invoicing Periods: Due no later than:

1. July 1, 2023 to September 30, 2023 November 15, 2023

2. October 1, 2023 to December 31, 2023 February 15, 2024

3. January 1, 2024 to March 31, 2024 May 15, 2024

4. April 1, 2024 to June 30, 2024 August 15, 2024

5. July 1, 2024 to September 30, 2024 November 15, 2024

6. October 1, 2024 to December 31, 2024 February 15, 2025

7. January 1, 2025 to March 31, 2025 May 15, 2025

8. April 1, 2025 to June 30, 2025 August 15, 2025
B. Grantee shall submit an invoice to the BSCC each invoicing period, even if grant funds are not expended or requested during the invoicing period.

C. Upon the BSCC’s request, suppor ting documentation must be submitted for project expenditures. Grantees are required to maintain supporting documentation for all expenditures on the project site for the life of the grant and make it readily available for review during BSCC site visits. See Exhibit A. Scope of Work, Item 6. Project Records.

2. GRANT AMOUNT AND LIMITATION
A. In no event shall the BSCC be obligated to pay any amount in excess of the grant award.

Grantee waives any and all claims against the BSCC, and the State of California on account of project costs that may exceed the sum of the grant award.

B. Under no circumstance will a budget item change be authorized that would cause the project to exceed the amount of the grant award identified in this Grant Agreement.

3. BUDGET CONTINGENCY CLAUSE
A. This grant agreement is valid through CalVIP funding generated from the General Fund. The Grantee agrees that the BSCC’s obligation to pay any sum to the grantee under any provision of this agreement is contingent upon the availability of sufficient funding granted through the passage of Senate Bill 129 (Chapter 69, Statutes of 2021) also known as the California Budget Act of 2021 and Senate Bill 154, Chapter 43, Statutes of 2022 also known as the California Budget Act of 2022. It is mutually agreed that if the Budget Act of the current year and/or a ny subsequent years covered under this Grant Agreement does not appropriate sufficient funds for the program, this Grant Agreement shall be of no further force and effect. In this event, the BSCC shall have no liability to pay any funds whatsoever to Gran tee or to furnish any other considerations under this Agreement and Grantee shall not be obligated to perform any provisions of this Grant Agreement.

B. If CalVIP funding is reduced or falls below estimates contained within the CalVIP Request for Proposals, the BSCC shall have the option to either cancel this Grant Agreement with no liability occurring to the BSCC or offer an amendment to this agreement to the Grantee to reflect a reduced amount.

C. If BSCC cancels the agreement pursuant to Paragraph 3(B) or Gran tee does not agree to an amendment in accordance with the option provided by Paragraph 3(B), it is mutually agreed that the Grant Agreement shall have no further force and effect. In this event, the BSCC shall have no liability to pay any funds whatsoever to Grantee or to furnish any other considerations under this Agreement and Grantee shall not be obligated to perform any provisions of this Grant

ATTACHMENT A
82 City of Stockton
BSCC 858-23

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Rev 04/2020
Agreement except that Grantee shall be required to maintain all project records required by Paragraph 6 of Ex hibit A for a period of three (3) years following the termination of this agreement.

4. PROJECT COSTS
A. Grantee is responsible for ensuring that actual expenditures are for eligible project costs. “Eligible” and “ineligible” project costs are set forth in the July 2020 BSCC Grant Administration Guide, which can be found under Quick Links here:
https://www.bscc.ca.gov/s_correctionsplanningandprograms/ The provisions of the BSCC Grant Administration Guide are incorporated by reference into this agreement and Grantee shall be responsible for adhering to the requirements set forth therein.

To the extent any of the provisions of the BSCC Grant Administration Guide and this agreement conflict, the language in this agreement shall prevail.

B. Grantee is responsible for ensuring that invoices submitted to the BSCC claim actual expenditures for eligible project costs.

C. Grantee shall, upon demand, remit to the B SCC any grant funds not expended for eligible project costs or an amount equal to any grant funds expended by the Grantee in violation of the terms, provisions, conditions or commitments of this Grant Agreement.

D. Grant funds must be used to support new pro gram activities or to augment existing funds that expand current program activities. Grant funds shall not replace (supplant) any federal, state and/or local funds that have been appropriated for the same purpose. Violations can result in recoupment of mo nies provided under this grantor suspension of future program funding through BSCC grants.

5. PROMPT PAYMENT CLAUSE
Payment will be made in accordance with, and within the time specified in, Government Code Chapter 4.5, commencing with Section 927.

6. WITHHOLDING OF GRANT DISBURSEMENTS
A. The BSCC may withhold all or any portion of the grant funds provided by this Grant Agreement in the event the Grantee has materially and substantially breached the terms and conditions of this Grant Agreement.

B. The BSCC will not reimburse Grantee for costs identified as ineligible for grant funding. If grant funds have been provided for costs subsequently deemed ineligible, the BSCC may either withhold an equal amount from future payments to the Grantee or require repayment of an equal amount to the State by the Grantee.

C. In the event that grant funds are withheld from the Grantee, the BSCC’s Executive Director or designee shall notify the Grantee of the reasons for withholding and advise the Grantee of the time within which the Grantee may remedy the failure or violation leading to the withholding.

7. EXECUTIVE ORDER N-6-22 – RUSSIA SANCTIONS
On March 4, 2022, Governor Gavin Newsom issued Executive Order N -6-22 (the EO) regarding Economic Sanctions against Russia and Russian entiti es and individuals. “Economic Sanctions” refers to sanctions imposed by the U.S. government in response to Russia’s actions in Ukraine, as well as any sanctions imposed under state law. The EO directs state agencies to terminate contracts with, and to refr ain from entering any new contracts with, individuals or entities that are determined to be a target of Economic Sanctions. Accordingly, should the State determine Contractor is a target of Economic Sanctions or is conducting prohibited transactions with

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Rev 04/2020
sanctioned individuals or entities, that shall be grounds for termination of this agreement. The State shall provide Contractor advance written notice of such termination, allowing Contractor at least 30 calendar days to provide a written response. Termination shall be at the sole discretion of the State.

8. PROJECT BUDGET
BSCC Budget Line Item A.

Grant Funds
B.

Total

1. Mental Health Services $9174 $9174
TOTALS $9174 $9174

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84 City of Stockton
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EXHIBIT C: GENERAL TERMS AND CONDITIONS (04/2017)
Rev 04/2020

1. APPROVAL: This Agreement is of no force or effect until signed by both parties and approved by the Department of General Services, if required. Contractor may not commence performance until such approval has been obtained.

2. AMENDMENT: No amendment or variation of th e terms of this Agreement shall be valid unless made in writing, signed by the parties and approved as required. No oral understanding or Agreement not incorporated in the Agreement is binding on any of the parties.

3. ASSIGNMENT: This Agreement is not assign able by the Contractor, either in whole or in part, without the consent of the State in the form of a formal written amendment.

4. AUDIT: Contractor agrees that the awarding department, the Department of General Services, the Bureau of State Audits, or their designated representative shall have the right to review and to copy any records and supporting documentation pertaining to the performance of this Agreement.

Contractor agrees to maintain such records for possible audit for a minimum of three (3) years after final payment, unless a longer period of records retention is stipulated. Contractor agrees to allow the auditor(s) access to such records during normal business hours and to allow interviews of any employees who might reasonably have information relat ed to such records. Further, Contractor agrees to include a similar right of the State to audit records and interview staff in any subcontract related to performance of this Agreement. (Gov. Code §8546.7, Pub. Contract Code §10115 et seq., CCR Title 2, Section 1896).

5. INDEMNIFICATION: Contractor agrees to indemnify, defend and save harmless the State, its officers, agents and employees from any and all claims and losses accruing or resulting to any and all contractors, subcontractors, suppliers, laborers, an d any other person, firm or corporation furnishing or supplying work services, materials, or supplies in connection with the performance of this Agreement, and from any and all claims and losses accruing or resulting to any person, firm or corporation who may be injured or damaged by Contractor in the performance of this Agreement.

6. DISPUTES: Contractor shall continue with the responsibilities under this Agreement during any dispute.

7. TERMINATION FOR CAUSE: The State may terminate this Agreement and be re lieved of any payments should the Contractor fail to perform the requirements of this Agreement at the time and in the manner herein provided. In the event of such termination, the State may proceed with the work in any manner deemed proper by the State. A ll costs to the State shall be deducted from any sum due the Contractor under this Agreement and the balance, if any, shall be paid to the Contractor upon demand.

8. INDEPENDENT CONTRACTOR: Contractor, and the agents and employees of Contractor, in the performance of this Agreement, shall act in an independent capacity and not as officers or employees or agents of the State.

9. RECYCLING CERTIFICATION: The Contractor shall certify in writing under penalty of perjury, the minimum, if not exact, percentage of post-consumer material as defined in the Public Contract Code Section 12200, in products, materials, goods, or supplies offered or sold to the State regardless of whether the product meets the requirements of Public Contract Code Section 12209. With respect to printer or duplication cartridges that comply with the requirements of Section 12156(e), the certification required by this subdivision shall specify that the cartridges so comply (Pub. Contract Code §12205).

10. NON-DISCRIMINATION CLAUSE: During the performa nce of this Agreement, Contractor and its subcontractors shall not deny the contract’s benefits to any person on the basis of race, religious creed, color, national origin, ancestry, physical disability, mental disability, medical condition, genetic

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information, marital status, sex, gender, gender identity, gender expression, age, sexual orientation, or military and veteran status, nor shall they discriminate unlawfully against any employee or applicant for employment because of race, religious creed, color , national origin, ancestry, physical disability, mental disability, medical condition, genetic information, marital status, sex, gender, gender identity, gender expression, age, sexual orientation, or military and veteran status.

Contractor shall insure that the evaluation and treatment of employees and applicants for employment are free of such discrimination. Contractor and subcontractors shall comply with the provisions of the Fair Employment and Housing Act (Gov. Code §12900 et seq.), the regulations promulgated thereunder (Cal. Code Regs., tit. 2, §11000 et seq.), the provisions of Article 9.5, Chapter 1, Part 1, Division 3, Title 2 of the Government Code (Gov. Code §§11135 -11139.5), and the regulations or standards adopted by the awarding state agen cy to implement such article.

Contractor shall permit access by representatives of the Department of Fair Employment and Housing and the awarding state agency upon reasonable notice at any time during the normal business hours, but in no case less than 24 hours’ notice, to such of its books, records, accounts, and all other sources of information and its facilities as said Department or Agency shall require to ascertain compliance with this clause. Contractor and its subcontractors shall give written notice of their obligations under this clause to labor organizations with which they have a collective bargaining or other agreement. (See Cal. Code Regs., tit. 2, §11105.) Contractor shall include the nondiscrimination and compliance provisions of this clau se in all subcontracts to perform work under the Agreement.

11. CERTIFICATION CLAUSES: The CONTRACTOR CERTIFICATION CLAUSES contained in the document CCC 04/2017 are hereby incorporated by reference and made a part of this Agreement by this reference as if attached hereto.

12. TIMELINESS: Time is of the essence in this Agreement.

13. COMPENSATION: The co nsideration to be paid Contractor, as provided herein, shall be in compensation for all of Contractor's expenses incurred in the performance hereof, including travel, per diem, and taxes, unless otherwise expressly so provided.

14. GOVERNING LAW: This contract is governed by and shall be interpreted in accordance with the laws of the State of California.

15. ANTITRUST CLAIMS: The Contractor by signing this agreement hereby certifies that if these services or goods are obtained by means of a competitive bid, the Co ntractor shall comply with the requirements of the Government Codes Sections set out below.

A. The Government Code Chapter on Antitrust claims contains the following definitions:
1) "Public purchase" means a purchase by means of competitive bids of goods, services, or materials by the State or any of its political subdivisions or public agencies on whose behalf the Attorney General may bring an action pursuant to subdivision (c) of Section 16750 of the Business and Professions Code.
2) "Public purchasing body" means the State or the subdivision or agency making a public purchase. Government Code Section 4550.

B. In submitting a bid to a public purchasing body, the bidder offers and agrees that if the bid is accepted, it will assign to the purchasing body all rights, title, and interest in and to all causes of action it may have under Section 4 of the Clayton Act (15 U.S.C. Sec. 15) or under the Cartwright Act (Chapter 2 (commencing with Se ction 16700) of Part 2 of Division 7 of the Business and Professions Code), arising from purchases of goods, materials, or services by the bidder for sale to the purchasing body pursuant to the bid. Such assignment shall be made and become effective

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at the time the purchasing body tenders final payment to the bidder. Government Code Section 4552.

C. If an awarding body or public purchasing body receives, either through judgment or settlement, a monetary recovery for a cause of action assigned under this chapte r, the assignor shall be entitled to receive reimbursement for actual legal costs incurred and may, upon demand, recover from the public body any portion of the recovery, including treble damages, attributable to overcharges that were paid by the assignor but were not paid by the public body as part of the bid price, less the expenses incurred in obtaining that portion of the recovery. Government Code Section 4553.

D. Upon demand in writing by the assignor, the assignee shall, within one year from such demand, reassign the cause of action assigned under this part if the assignor has been or may have been injured by the violation of law for which the cause of action arose and (a) the assignee has not been injured thereby, or (b) the assignee declines to file a c ourt action for the cause of action.

See Government Code Section 4554.

16. CHILD SUPPORT COMPLIANCE ACT: For any Agreement in excess of $100,000, the contractor acknowledges in accordance with Public Contract Code 7110, that:

A. The contractor recognizes the imp ortance of child and family support obligations and shall fully comply with all applicable state and federal laws relating to child and family support enforcement, including, but not limited to, disclosure of information and compliance with earnings assign ment orders, as provided in Chapter 8 (commencing with section 5200) of Part 5 of Division 9 of the Family Code; and
B. The contractor, to the best of its knowledge is fully complying with the earnings assignment orders of all employees and is providing the names of all new employees to the New Hire Registry maintained by the California Employment Development Department.

17. UNENFORCEABLE PROVISION: In the event that any provision of this Agreement is unenforceable or held to be unenforceable, then the parties agr ee that all other provisions of this Agreement have force and effect and shall not be affected thereby.

18. PRIORITY HIRING CONSIDERATIONS: If this Contract includes services in excess of $200,000, the Contractor shall give priority consideration in filling vacancies in positions funded by the Contract to qualified recipients of aid under Welfare and Institutions Code Section 11200 in accordance with Pub. Contract Code §10353.

19. SMALL BUSINE SS PARTICIPATION AND DVBE PARTICIPATION REPORTING REQUIREMENTS:

A. If for this Contract Contractor made a commitment to achieve small business participation, then Contractor must within 60 days of receiving final payment under this Contract (or within such other time period as may be specified elsewhere in this Contract) report to the awarding department the actual percentage of small business participation that was achieved. (Govt.

Code § 14841.)
B. If for this Contract Contractor made a commitment to achieve d isabled veteran business enterprise (DVBE) participation, then Contractor must within 60 days of receiving final payment under this Contract (or within such other time period as may be specified elsewhere in this Contract) certify in a report to the awarding department: (1) the total amount the prime Contractor received under the Contract; (2) the name and address of the DVBE(s) that participated in the performance of the Contract; (3) the amount each DVBE received from the prime Contractor; (4) that all pa yments under the Contract have been made to the DVBE; and (5) the actual

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Rev 04/2020
percentage of DVBE participation that was achieved. A person or entity that knowingly provides false information shall be subject to a civil penalty for each violation. (Mil. & Vets . Code § 999.5(d); Govt. Code § 14841.)

20. LOSS LEADER: If this contract involves the furnishing of equipment, materials, or supplies then the following statement is incorporated: It is unlawful for any person engaged in business within this state to sell or use any article or product as a “loss leader” as defined in Section 17030 of the Business and Professions Code. (PCC 10344(e).)

ATTACHMENT A
88 City of Stockton
BSCC 858-23

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EXHIBIT D: Special Terms and Conditions
Rev 04/2020

1. GRANTEE’S GENERAL RESPONSIBILITY
A. Grantee agrees to comply with all terms and conditions of this Grant Agreement. Review and approval by the BSCC are solely for the purpose of proper administration of grant funds and shall not be deemed to relieve or restrict the Grantee’s responsibility.

B. Grantee is responsible for the performance of all project activities identified in Attachment 1: CalVIP Mental Health Services for Frontline Workers Grant Program Request for Applications and Attachment 2: CalVIP Mental Health Services for Frontline Worke rs Grant Program Application.

C. Grantee shall immediately advise the BSCC of any significant problems or changes that arise during the course of the project.

2. GRANTEE ASSURANCES AND COMMITMENTS
A. Compliance with Laws and Regulations
This Grant Agreement is governed by and shall be interpreted in accordance with the laws of the State of California. Grantee shall at all times comply with all applicable State laws, rules and regulations, and all applicable local ordinances.

B. Fulfillment of Assurances and Declarations
Grantee shall fulfill all assurances, declarations, representations, and statements made by the Grantee in Attachment 1: CalVIP Mental Health Services for Frontline Workers Grant Program Request for Applications and Attachment 2: CalVIP Mental Health Service for Frontline Workers Grant Program Application , documents, amendments, approved modifications, and communications filed in support of its request for grant funds.

C. Permits and Licenses
Grantee agrees to procure all permits and licenses necessary to complete the project, pay all charges and fees, and give all notices necessary or incidental to the due and lawful proceeding of the project work.

3. POTENTIAL SUBCONTRACTORS
A. In accordance with the provisions of this Grant Agreement, the Grantee may subcontract for services needed to implement and/or support program activities. Grantee agrees that in the event of any inconsistency between this Grant Agreement and Grantee’s agreement with a subcontractor, the language of this Grant Agreement will prevail.

B. Nothing contained in this Grant Agreement or otherwise, shall create any contractual relation between the BSCC and any subcontractors, and no subcontract shall relieve the Grantee of his responsibilities and obligations hereunder. The Grantee agrees to be as fully responsible to the BSCC for the acts and omissions of its subcontractors and of persons either directly or indirectly employed by any of them as it is for the acts and omissions of persons directly employed by the Grantee. The Grantee's obligation to pay its subcontractors is an independent obligation from the BSCC's obligation to make payments to the Grantee. As a result, the BSCC shall have no obligation to pay or to enforce the payment of any moneys to any subcontractor.

C. Grantee shall ensure that all subcontractors comply with the eligibility requirements stated in the CalVIP RFP and described in Appendix B.

D. Grantee assures that for any subcontract awarded by the Grantee, such insurance and fidelity bonds, as is customary and appropriate, will be obtained.

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E. Grantee agrees to place appropriate language in all subcontracts for work on the project requiring the Grantee’s subcontractors to:
1) Books and Records
Maintain adequate fiscal and project books, records, documents, and other evidence pertinent to the subcontractor’s work on the project in accordance with generally accepted accounting principles. Adequate supporting documentation shall be maintained in such detail so as to permit tracing transactions from the invoices, to the accounting records, to the supporting documentation. These records shall be maintained for a minimum of three (3) years after the acceptance of the final grant project audit under t he Grant Agreement and shall be subject to examination and/or audit by the BSCC or designees, state government auditors or designees, or by federal government auditors or designees.
2) Access to Books and Records
Make such books, records, supporting documentations, and other evidence available to the BSCC or designee, the State Controller’s Office, the Department of General Services, the Department of Finance, California State Auditor, and their designated representatives during the course of the project and for a minimum of three (3) years after acceptance of the final grant project audit. The Subcontractor shall provide suitable facilities for access, monitoring, inspection, and copying of books and records related to the grant-funded project.

4. PROJECT ACCESS
Grantee shall ensure that the BSCC, or any authorized representative, will have suitable access to project activities, sites, staff and documents at all reasonable times during the grant period including those maintained by subcontractors. Access to program records will be made available by both the grantee and the subcontractors for a period of three (3) years following the end of the grant period.

5. ACCOUNTING AND AUDIT REQUIREMENTS
A. Grantee agrees that accounting procedures for grant funds received pursuant to this Grant Agreement shall be in accordance with generally accepted government accounting principles and practices, and adequate supporting documentation shall be maintained in such detail as to provide an audit trail. Supporting documentation shall permit the tracing of transactions from such documents to relevant accounting records, financial reports and invoices.

B. The BSCC reserves the right to call for a program or financial audit at any time between the execution of this Grant Agreement and three years following the end of the grant period. At any time, the BSCC may disallow all or part of the cost of the activity or action determined to not be in compliance with the terms and conditions of this Grant Agreement or take other remedies legally available.

6. DEBARMENT, FRAUD, THEFT OR EMBEZZLEMENT
It is the policy of the BSCC to protect grant funds from unreasonable risks of fraudulent, criminal, or other improper use. As such, the Board will not enter into contracts or provide reimbursement to grantees that have been:

1. debarred by any federal, stat e, or local government entities during the period of debarment; or

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2. convicted of fraud, theft, or embezzlement of federal, state, or local government grant funds for a period of three years following conviction.

Furthermore, the BSCC requires grant recipients to provide an assurance that there has been no applicable debarment, disqualification, suspension, or removal from a federal, state or local grant program on the part of the grantee at the time of application and that the grantee will immediately notify the BSCC should such debarment or conviction occur during the term of the Grant contract.

BSCC also requires that all grant recipients include, as a condition of award to a subgrantee or subcontractor, a requirement that the subgrantee or subcontractor wi ll provide the same assurances to the grant recipient. If a grant recipient wishes to consider a subgrantee or subcontractor that has been debarred or convicted, the grant recipient must submit a written request for exception to the BSCC along with supporting documentation.

All Grantees must have on file with the BSCC a completed and signed Certification of Compliance with BSCC Policies on Debarment, Fraud, Theft and Embezzlement (Required as Attachment E of the original Proposal Package).

7. MODIFICATIONS
No change or modification in the project will be permitted without prior written approval from the BSCC. Changes may include modification to project scope, changes to performance measures, compliance with collection of data elements, and other significant ch anges in the budget or program components contained in Attachment 1: CalVIP Mental Health Services for Frontline Workers Grant Program Request for Applications and Attachment 2: CalVIP Mental Health Services for Frontline Workers Grant Program Application.

8. TERMINATION
A. This Grant Agreement may be terminated by the BSCC at any time after grant award and prior to completion of project upon action or inaction by the Grantee that constitutes a material and substantial breech of this Grant Agreement. Such action or inaction includes but is not limited to:
1) substantial alteration of the scope of the grant project without prior written approval of the BSCC;
2) refusal or inability to complete the grant project in a manner consistent with Attachment 1: CalVIP Program: Mental Health Services for Frontline Workers Grant Request for Applications and Attachment 2: CalVIP Program: Mental Health Services for Frontline Workers Grant Application or approved modifications; and 3) failure to meet prescribed assurances, commitments, recording, accounting, auditing, and reporting requirements of the Grant Agreement.

B. Prior to terminating the Grant Agreement under this provision, the BSCC shall provide the Grantee at least 30 calendar days written notice stating the reasons for termination and effective date thereof. The Grantee may appeal the termination decision in accordance with the instructions listed in Exhibit D: Special Terms and Conditions, Number 8.

Settlement of Disputes.

9. SETTLEMENT OF DISPUTES
A. The parties shall deal in good faith and attempt to resolve potential disputes informally. If the dispute persists, the Grantee shall submit to the BSCC Corrections Planning and Grant

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Programs Division Deputy Director a written demand for a final decision regarding the disposition of any dispute between the parties arising under, related to, or involving this Grant Agreement. Grantee’s written demand shall be fully suppo rted by factual information. The BSCC Corrections Planning and Grant Programs Division Deputy Director shall have 30 days after receipt of Grantee’s written demand invoking this Section “Disputes” to render a written decision. If a written decision is not rendered within 30 days after receipt of the Grantee’s demand, it shall be deemed a decision adverse to the Grantee’s contention. If the Grantee is not satisfied with the decision of the BSCC Corrections Planning and Grant Programs Division Deputy Director , the Grantee may appeal the decision, in writing, within 15 days of its issuance (or the expiration of the 30 - day period in the event no decision is rendered), to the BSCC Executive Director, who shall have 45 days to render a final decision. If the Grant ee does not appeal the decision of the BSCC Corrections Planning and Grant Programs Division Deputy Director, the decision shall be conclusive and binding regarding the dispute and the Contractor shall be barred from commencing an action in court, or with the Victims Compensation Government Claims Board, for failure to exhaust Grantee’s administrative remedies.

B. Pending the final resolution of any dispute arising under, related to or involving this Grant Agreement, Grantee agrees to diligently proceed with t he performance of this Grant Agreement, including the providing of services in accordance with the Grant Agreement.

Grantee’s failure to diligently proceed in accordance with the State’s instructions regarding this Grant Agreement shall be considered a material breach of this Grant Agreement.

C. Any final decision of the State shall be expressly identified as such, shall be in writing, and shall be signed by the Executive Director, if an appeal was made. If the Executive Director fails to render a final decisi on within 45 days after receipt of the Grantee’s appeal for a final decision, it shall be deemed a final decision adverse to the Grantee’s contentions.

The State’s final decision shall be conclusive and binding regarding the dispute unless the Grantee commences an action in a court of competent jurisdiction to contest such decision within 90 days following the date of the final decision or one (1) year following the accrual of the cause of action, whichever is later.

D. The dates of decision and appeal in thi s section may be modified by mutual consent, as applicable, excepting the time to commence an action in a court of competent jurisdiction.

9. UNION ACTIVITIES
For all agreements, except fixed price contracts of $50,000 or less, the Grantee acknowledges that applicability of Government Code §§16654 through 16649 to this Grant Agreement and agrees to the following:

A. No State funds received under the Grant Agreement will be used to assist, promote or deter union organizing.

B. Grantee will not, for any business cond ucted under the Grant Agreement, use any State property to hold meetings with employees or supervisors, if the purpose of such meetings is to assist, promote or deter union organizing, unless the State property is equally available to the general public for holding meetings.

C. If Grantee incurs costs or makes expenditures to assist, promote or deter union organizing, Grantee will maintain records sufficient to show that no reimbursement from State funds has been sought for these costs, and that Grantee shall provide those records to the Attorney General upon request.

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10. WAIVER
The parties hereto may waive any of their rights under this Grant Agreement unless such waiver is contrary to law, provided that any such waiver shall be in writing and signed by the party making such waiver.

ATTACHMENT A
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100

ATTACHMENT A
101
Note: The top table will auto-populate based on the information entered in the sections below.

Grant Funds Total
$9,174 $9,174
$9,174 $9,174
Description of Mental Health Service(s) Grant Funds Total $7,230 $7,230
$1,490 $1,490
$454 $454
$0 $0
$0 $0
$0 $0
$0 $0
$0 $0
$9,174 $9,174
1b. Mental Health Services for Frontline Workers
Lodi Lake rental=$190, twelve kayak rentals for one hour@ $22.00 an hour
Mindful-based Stress Reduction Coaching $149 x 10
Budget Line Item
TOTAL
OVP staff will participate in an 8-week mindful-based stress reduction(MBSR) training with Mindful Leader. The training is online and will cover the following topics: Week 1& 2 = Mindful Movement, Mindful Eating, Body Scan Meditation, Perception Didactic, Awareness of Breathing, Pleasant Events Calendar. Week 3 & 4 = Walking Meditation, Lying Down Mindful Movement, Unpleasant Events Calendar, The Stress Response, Standing Mindful Movement, Group Exploration of Stress. Week 5 & 6 = Sitting and Standing Meditations, Working with Difficulties, Responding Instead of Reacting, Choiceless Awareness Meditation, Mindful Communications Discussion of Full Day. Week 7 & 8 = Silent Meditations, Loving Kindness Meditation, Formal and Informal Practice, Sustaining Your Practice. MBSR 1 on 1 coaching will provide to staff at any time during the 8-week training session to enhance learning and foster growth.

MBSR coaching, staff will be provided 1 on 1 coaching throughout the 8-week training session.

Office of Violence Prevention will utilize the agency budget to cover the program overage of $1,290.

After the mindful-based training, OVP will host an offsite wellness retreat at a local lake where staff will spend the day kaykaking and relaxing with thier family. the cost for this event is is $454 dollars.

This project is aligned with the City of Stockotn's Ceasefire model, a proven public health approach to reducing gun violence. By providing advanced mindfulness training to Peacekeepers, we aim to enhance their effectiveness, promote wellness, and contribute to building a more peaceful and resilient Stockton.

1. Mental Health Services for Frontline Workers
1a. Mental Health Services for Frontline Workers
TOTAL
Calculation for Expenditure
Mindful-based Stress Reduction enrollment $723 x 10
Staff wellness retreat
The City of Stockton, Office of Violence PreventionName of Applicant:
2022 California Violence Intervention & Prevention Program:

Mental Health Services for Frontline Workers Grant - Project Budget and Budget Narrative Contract Term: July 1, 2023 - June 30, 2025

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ATTACHMENT A
102

Resolution No.

STOCKTON CITY COUNCIL

RESOLUTION AUTHORIZING ACCEPTANCE OF GRANT FUNDS FROM THE STATE

OF CALIFORNIA BOARD OF STATE COMMUNITY CORRECTIONS, IN THE AMOUNT OF $9,174 FOR THE CALIFORNIA VIOLENCE INTERVENTION AND PREVENTION (CALVIP) MENTAL HEALTH SERVICES FOR FRONT LINE WORKERS GRANT FOR THE PERIOD JULY 1, 2023, THROUGH JUNE 30, 2025, AND AUTHORIZING

EXECUTION OF GRANT AGREEMENT

In April 2023, the City of Stockton submitted an application to the State of California’s Board of State Community Corrections (BSCC) California Interventi on and Prevention (CalVIP) Grant; and

On October 9, 2023, the City of Stockton Office of Violence Prevention (OVP) was notified by the BSCC that the application was approved in the amount of $ 9,174 for two years; and

The Office of Violence Prevention pro poses to build on the success of the Ceasefire model by providing Mental Health Services to staff, which includes an 8 -week mindful-based stress reduction training with mindful leaders and one one -on-one coaching. This project is aligned with the City of S tockton's Ceasefire model, a proven public health approach to reducing gun violence. By providing advanced mindfulness training to Peacekeepers, we aim to enhance effectiveness, promote wellness, and contribute to building a more peaceful and resilient Stockton. The grant period runs from July 1, 2023, to June 30, 2025; now, therefore,

BE IT RESOLVED BY THE CITY COUNCIL OF THE CITY OF STOCKTON, AS FOLLOWS:

1. Authorize the acceptance of grant funding from the State of California Board of State Community Corrections California Violence Intervention and Prevention (CalVIP) Grant.

2. Authorize all required appropriations and expenditures in compliance with and for the purposes stated in the project agreement over two years.

3. The grant funds received hereunder shall not be used to supplant expenditures controlled by this body.

4. The City of Stockton agrees to abide by the terms and conditions of the grant Agreement as set forth by BSCC.

5. The City Manager , or designee, is authorized and directed to execute on behalf of the City of Stockton, all required contracts or agreements with the granting 103
agency, provide additional information and furnish such documents as may be required, execute all documents and amendments or extensions pertaining to the grant project.

6. The City Manager , or designee, is hereby authorized to take appropriate and necessary actions to carry out the purpose and intent of this Resolution.

PASSED, APPROVED, and ADOPTED December 5, 2023 .

KEVIN J. LINCOLN II
Mayor of the City of Stockton
ATTEST:

ELIZA R. GARZA, CMC
City Clerk of the City of Stockton

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City of Stockton
Legislation Text
File #: 23-0993, Version: 1
APPROVE A MOTION ACCEPTING THE 2023 ANNUAL PROGRESS REPORT TO CONFIRM 200- YEAR URBAN LEVEL OF FLOOD PROTECTION FINDING FOR RECLAMATION DISTRICT 2042 AREA

RECOMMENDATION
Staff recommends that City Council:

1. Approve a motion accepting the 2023 Annual Progress Report to confirm the 200-year urban level of flood protection adequate progress finding for the Reclamation District 2042 boundary area; and

2. Authorize the City Manager or designee to take necessary and appropriate actions to carry out the purpose and the intent of this motion.

Summary
Reclamation District 2042 is located on the north end of the City of Stockton just west of Interstate 5 and north and south of Eight Mile Road (Attachment A - RD 2042 Map). Reclamation District (RD) 2042 is a local flood management agency that operates and maintains the flood levee system that protects properties within Bishop Tract to the Flood Emergency Management Agency (FEMA) required 100-year level of protection requirements. The RD 2042 area includes approximately 800 acres of undeveloped land that is within the City limits and approved for residential development.

Residential development is presently underway in the Westlake Villages Master Development Plan area south of Eight Mile Road and west of Regatta Drive.

In accordance with State regulation commonly known as Senate Bill 5 (Central Valley Flood Protection Act of 2008, Chap. 364, Stats. 2007), Stockton Municipal Code (SMC) Section 16.90 requires that the City shall not approve new development unless findings can be made that the new development will be protected to the 200-year flood event level. On October 17, 2017, City Council approved a 200-year urban level of flood protection “adequate progress” finding for the RD 2042 boundary area. This finding was based on substantial evidence, including an engineer’s report, a scope of work, cost, and schedule, demonstrating that 200-year levee improvements would be completed by the year 2025. Council’s approval allowed for subsequent discretionary planning applications and building permits for the construction of residential units to continue to occur within the RD 2042 boundary.

To maintain an “adequate progress” status, a progress report on the efforts to complete the flood protection system improvements must be submitted to the Central Valley Flood Protection Board (CVFPB) annually. RD 2042 prepared a 2023 progress report that indicates levee improvements are progressing and on schedule for completion in 2024. Staff recommends that Council approve a City of Stockton Printed on 11/30/2023Page 1 of 3
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progressing and on schedule for completion in 2024. Staff recommends that Council approve a motion accepting the 2023 Annual Progress Report for the RD 2042 boundary area to allow for submitting a progress report to the CVFPB.

DISCUSSION
Background
RD 2042’s levees are currently accredited to 100-year Flood Emergency Management Agency (FEMA) standards, which correlates with the National Flood Insurance Program. Approximately one- third of the District area is currently within the Stockton City limits and consists of existing commercial and residential developed properties, along with undeveloped properties that are approved and entitled for planned development. Notable entitled developments include the Westlake Villages Master Development Plan, consisting of 2,630 single-family units on 680 acres (871 units have issued building permits), and Crystal Bay, consisting of 951 single-family units on 156 acres (0 units have issued building permits).

On May 24, 2016, the City Council approved an amendment to the Stockton Municipal Code to comply with a State mandate for new development to have 200-year flood protection (Central Valley Flood Protection Act of 2008, Chap. 364, Stats. 2007). This regulation is commonly referred to as Senate Bill (SB) 5 (see Attachment B for an overview of SB 5 and the City’s process for complying with the regulation).

Based on the 200-year floodplain map prepared by the State, RD 2042 is located within the deeper floodplain area, with portions exceeding 10 feet of flood depth (Attachment C - 200-Year Floodplain Map). RD 2042 requires a plan to complete flood protection system improvements consistent with SB

5. Absent adequate progress toward 200-year flood protection, discretionary planning applications and building permits for new residential units cannot be approved.

In 2017, RD 2042 assembled a qualified team of engineers and conducted an evaluation of levees to identify any deficiencies and countermeasures needed to achieve 200-year protection. The District funded an independent panel of experts (IPE), consisting of engineers from various firms with different expertise in hydrology, hydraulics, and levee facility design and construction, to conduct a review and provide comments on the RD’s engineering report in accordance with SB 5.

The final engineering report concluded the RD 2042 levee system requires improvements to address deteriorated pipe penetrations in the levees to meet the 200-year flood protection requirements. The improvements consist of removal and replacement of pipes and installation of gate valves. The total cost of the improvements is approximately $2.9 million (2017 dollars). The City’s IPE concurred with the final engineering report.

On October 17, 2017, City Council approved a 200-year urban level of flood protection adequate progress finding for the Reclamation District 2042 boundary area (Resolution 2017-10-17-1105). This finding was based on RD 2042’s Adequate Progress Engineer’s report. Council’s approval allowed for subsequent discretionary planning applications and building permits to be submitted for construction of residential units to occur within the RD 2042 boundary while progress is occurring on the levee protection improvements.

According to the State’s Urban Level of Flood Protection Criteria, a finding based on adequate City of Stockton Printed on 11/30/2023Page 2 of 3
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According to the State’s Urban Level of Flood Protection Criteria, a finding based on adequate progress has an effective period of 10 years from the date it was approved. To maintain adequate progress status, progress reports must be prepared annually to demonstrate progress on the construction of the flood improvements. Annual progress reports for the years 2018, 2019, 2020, 2021, and 2022 demonstrated adequate progress occurring on the improvements and were accepted by Council (Motions 2018-12-04-1103, 2019-12-17-1105, 2020-12-01-1101, 2021-12-07-1203 and 2022-12-06-1203).

Present Situation
RD 2042 prepared the 2023 Annual Progress Report for submission to the CVFPB (Attachment D - 2023 Annual Progress Report). The report identifies the District will expend approximately $200,300 for the year 2023 on the levee protection system at three locations identified as stations N15+50, N177+38, and N195+72 to address construction of the pipes. The overall levee improvement project remains on schedule, and the RD 2042 continues to budget for the remainder of the improvements to be completed in 2024.

This annual progress report provides an update on the 200-year flood protection improvements; Council action is required to validate the Adequate Progress Finding. Though the State’s criteria does not specify whether the original approving authority of the Adequate Progress Finding needs to accept the report, this has been an established practice by other local agencies maintaining Adequate Progress Findings to ensure compliance. Staff recommends that the Council approve a motion to accept the 2023 progress report, which confirms the Council’s Adequate Progress Finding determination that RD 2042 is making adequate progress on the construction of flood protection improvements that will result in flood protection equal or greater to the 200-year level of flood protection for the District area. This area-wide finding can be relied upon for any subsequent applications that are submitted requiring discretionary planning approvals or ministerial building permits for new construction of residential units within the RD 2042 boundary. This is most critical for the Westlake Villages Development, which is actively constructing single-family residential units.

FINANCIAL SUMMARY
There will be no financial impact to the City of Stockton as a result of the recommended action.

Attachment A - RD 2042 Map
Attachment B - SB 5 Overview
Attachment C - 200-Year Floodplain Map
Attachment D - 2023 Annual Progress Report
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City Limits
Crystal Bay Planned
Development
Westlake Villages Master
Development Plan

ATTACHMENT A
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ATTACHMENT B

BACKGROUND INFORMATION
SENATE BILL (SB) 5 (CENTRAL VALLEY FLOOD PROTECTION ACT OF 2008, CHAPTER 364, STATS. 2007)
In 2007, five interrelated pieces of legislation were enacted to address the problem of flood protection and liability. The legislative package also made $5 billion in State bonds available for flood protection improvements. The Central Valley Flood Protection Act of 2008 (Chapter 364, Stats. 2007), commonly referred to as SB 5, contained provisions for local agencies to incorporate flood risk considerations into land use planning. This legislation primarily focused on flood requirements for the Sacramento-San Joaquin Valley within an area defined as the Sacramento-San Joaquin Hydrologic Regions, which includes the City of Stockton (Exhibit 1 - Hydraulic Regions Map).

SB 5 identified the California Department of Water Resources (DWR) as the agency responsible for preparing a strategic Central Valley Flood Protection Plan by July 1, 2012.

The Flood Protection Plan was primarily intended to identify necessary improvements to state flood control facilities and establish flood protection building standards where flood levels are anticipated to exceed three feet for a 200-year flood event.

A 200-year flood event is generally considered a flood of a magnitude that statistically occurs once every 200 years, or has a 0.5% likelihood of occurring in any given year. SB 5 defines this as the "urban level of flood protection." The Central Valley Flood Protection Board adopted the Flood Protection Plan by the July 1, 2012 deadline. The Central Valley Flood Protection Board is a State regulatory agency charged with overseeing the flood management system in the California's Central Valley.

SB 5 required each city and county within the Sacramento-San Joaquin Valley, including charter cities like Stockton, to amend its general plan by July 2, 2015, to include data and analysis from the State’s Flood Protection Plan and goals and policies for the protection of lives and property that will reduce the risk of flood damage from a 200-year flood event (Government Code § 65302.9). Further, SB 5 required each city and county to amend its zoning ordinance by July 2, 2016, to incorporate new findings related to development in the 200-year floodplain and ensure the code is consistent with the general plan.

On June 23, 2015, the City Council approved a General Plan Amendment to comply with SB 5 (Resolution 2015-06-23-1601). The Amendment generally consisted of policy changes to provide for the City to regulate new and existing urban development within floodplains in accordance with the Federal (100-year) and State (200-year) requirements.

Policy changes included setback and easements requirements for new urban development and called for planning for 200-year flood protection and upgrading the protection system to the 200-year design standard, where feasible.

On May 24, 2016, the City Council approved an amendment to Stockton Municipal Code Titles 15 - Buildings and Construction and 16 - Development Code to comply with SB 5 (Resolution 2016-05-24-1605). Effective July 2, 2016, the City began implementation to 109

ATTACHMENT B
ensure that specific findings related to 200-year flood protection are made prior to approving certain projects located within a flood hazard zone.

SMC Section 16.90 Floodplain Management Findings, specifies that the City’s review authority for make a finding related to 200-year flood protection, for any of the following land-use decisions:
∑ Entering into a development agreement for all types of property development. ∑ Approving a discretionary permit or other discretionary entitlement that would result in the construction of a new building or construction that would result in an increase in allowed occupancy for an existing building. ∑ Approving a ministerial permit that would result in the construction of a new residence.
∑ Approving a tentative map consistent with the Subdivision Map Act for all subdivisions.
∑ Approving a tentative parcel map or a parcel map for which a tentative parcel map is not required, consistent with the Subdivision Map Act.

A “finding” is commonly required for land use decisions to provide evidence on the record to support the decision. The City’s Development Code contains certain findings within each of the specific land use application sections that shall be made by the review authority (City Council, Planning Commission, Community Development Director) prior to making a decision for approval.

SB 5 introduces new findings related to 200-year level of flood protection and one of these findings must be made prior to approving any of the above land use applications. SMC Section 16.90.020A provides for the following findings to be made, based on substantial evidence in the record:

1. The facilities of the State Plan of Flood Control or other flood management facilities protect the property to the urban level of flood protection in urban and urbanizing areas or the national Federal Emergency Management Agency standard of flood protection in non-urbanized areas;

2. The City has imposed conditions on a development agreement, map, permit, or entitlement that will protect the property to the urban level of flood protection in urban and urbanizing areas or the national Federal Emergency Management Agency standard of flood protection in non-urbanized areas;

3. The local flood management agency has made adequate progress (as defined in California Government Code § 65007) on the construction of a flood protection system that will result in flood protection equal to or greater than the urban level of flood protection in urban or urbanizing areas or the national Federal Emergency Management Agency standard of flood protection in non-urbanized areas for 110

ATTACHMENT B
property located within a flood hazard zone, intended to be protected by the system;

4. The property in an undetermined risk area has met the urban level of flood protection;

5. The property is located in an area of potential flooding of three (3) feet or less from a storm event that has a 1-in-200 chance of occurring in any given year, from sources other than local drainage, in urban and urbanizing areas; or

6. The property is located within a watershed with a contributing area of 10 or fewer square miles in urban and urbanizing areas.

Finding numbers 4 and 6 above do not pertain to Stockton; however, because these findings were included in the SB 5 regulations, the City incorporated them into its Code.

Thus, the city is reliant on making one of the four applicable City findings (numbers 1, 2, 3, or 5).

As indicated above, whichever finding is made shall be based on substantial evidence in the record. The State Department of Water Resources developed guidance (“Urban Level of Flood Protection Criteria”, dated November 2013), as required by SB 5 to help cities with determining the level and type of evidence required to support the findings. The State also assisted in developing a 200-year floodplain map which shows the anticipated depth of the flooding throughout the Stockton metropolitan area in the event of a 200-year flood (see Exhibit 2 – 200-Year Floodplain Map).

Shallow flooding areas (up to three feet or less of flooding) are not considered to be within the 200-year floodplain (shown in blue on the map). The map identifies a significant portion of the westerly side of the City near Interstate 5 and some isolated areas within the central and easterly side of the City as being inundated in excess of three feet during a 200-year event (shown in yellow, orange, and red on the map). It is important to understand that this map which was prepared to comply with the State law, is independent of the FEMA 100-year flood maps, which are associated with the National Flood Insurance Program.

Since the City began implementing the 200-year flood regulation, the 200-year map has served as the substantial evidence for making a finding (number 5 above) for approval of projects located in the “blue” shallow flooding areas. For projects located in the deeper floodplain areas (yellow, orange and red areas on the map), the city is relying on the State’s criteria for guidance on type and level of evidence to support its floodplain finding.

This entails the applicant hiring a qualified civil engineer to establish the 200-year flood depth for the project property and specifying the necessary improvements to protect the property to the 200-year level of protection. For projects in the yellow and orange areas (flood depths between 4 to 10 feet), engineering reports typically have been recommending the project’s finished floor be elevated (with fill or increased foundation) to the required floodplain height. The city can impose this improvement on the project and make a finding (#2 above) for approval based on the engineer’s report as evidence. 111

ATTACHMENT B
For projects located in the red areas on the map, which may be up to 20’ in flood depth, elevation of building structures may not be feasible. For these areas, more extensive physical flood protection improvements to the levee protection system become necessary. Substantial engineering analysis is required (prepared by a licensed civil engineer) to confirm if the existing levee system is sufficient or if specified improvements are necessary to achieve 200-year protection. The project proponent is responsible for funding the City's commissioning of an independent panel of experts to peer review the civil engineer's report in conformance with the SB 5 standards.

If it is determined that 200-year levee protection improvements are feasible, a developer can choose to obtain permits from the respective flood control agencies and incrementally construct the improvements over a specified number of years. An SB 5 Finding (#3) of adequate progress can be made if incremental progress occurs on the improvements over a predetermined number of years. In summary, “Adequate Progress” (as defined in California Government Code § 65007 (a)), generally means the 1) total project scope, schedule and cost of the flood protection system improvements have been developed, 2) sufficient revenues to fund each year of the project schedule have been identified, 3) critical features of the flood protection system are under construction, and 4) the local flood management agency has annually submitted progress reports to the State Department of Water Resources and Central Valley Flood Protection Board. SB 5 regulation allows adequate progress to be used until the year 2025. By 2025, flood protection improvements are to be completed.
112

ATTACHMENT B
EXHIBIT 1
113

ATTACHMENT B
EXHIBIT 2
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MAY 05, 2015

SAN JOAQUIN COUNTY AND CITY OF STOCKTON
REFINED CVFED 200-YEAR
FLOODPLAIN DEPTHS1180 Iron Point Rd., Suite 260
Folsom, CA 95630
Phone: (916) 608-2212
Fax: (916) 608-2232
012 0.5
Miles
N

ATTACHMENT
1 inch = 1.5 miles
&
Stockton 2035 General Plan Boundary
200-Year Floodplain Depth (ft)
0 - 1.00

1.01 - 2.00

2.01 - 3.00

3.01 - 5.00

5.01 - 10.00
> 10.01
$77$&+0(17&
Reclamation District 2042
- Bishop Tract
115

ATTACHMENT D
116
Reclamation District No. 2042
Bishop Tract
2023 Annual Progress Report
For Urban Level of Protection
August 2, 2023
Prepared for:

Reclamation District No.
2042 – Bishop Tract
and
City of Stockton
Prepared by:

Kjeldsen, Sinnock & Neudeck, Inc.

ATTACHMENT D
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Reclamation District No. 2042 i 2023 Annual Progress Report Contents
Overview ....................................................................................................................................... 1 Project Improvements ................................................................................................................... 3 Project Cost .................................................................................................................................. 4 Project Schedule ........................................................................................................................... 4 Project Funding ............................................................................................................................. 6 Appendices
Appendix 1 – Conceptual Improvement Plans
Appendix 2 – Detailed Cost Estimate
Appendix 3 – Statement of Net Position (as of June 30, 2023) Appendix 4 – Budget (2023/2024)

ATTACHMENT D
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Reclamation District No. 2042 1 2023 Annual Progress Report Overview
Reclamation District No. 2042 – Bishop Tract (RD 2042) has engaged Kjeldsen, Sinnock and Neudeck, Inc. (KSN) to prepare this document to support the demonstration of “adequate progress” toward the achievement of an Urban Level of Flood Protection (ULOP) within the RD 2042 basin. This document describes the steps that RD 2042 is taking to generate the local funding needed to advance and implement 200-Year levee improvements in accordance with the requirements of Senate Bill 5 (SB5).

RD 2042 is responsible for operating and maintaining the levee system and drainage facilities that provides flood protection for agricultural land, infrastructure, and urban development (comprised of residential and commercial). RD 2042 was formed in 1909, and currently encompasses an area of approximately 3,100 acres, surrounded by 8.0 miles of levee, all located within San Joaquin County. At the time of formation, RD 2042 originally consisted of nearly 2,200 acres. An annexation occurred in 1989 that extended the District’s eastern limits to Interstate 5 thereby adding just over 900 acres to RD 2042. Figure 1 shows the RD 2042 levees and boundary.

The levee system of RD 2042 currently provides a 100-year level of protection and is fully accredited by the U.S. Department of Homeland Security, Federal Emergency Management Agency (FEMA) as meeting the minimum certification criteria as outlined in Title 44, CFR, Section 65.10. FEMA maintains Flood Insurance Rate Maps (FIRMs) that delineate special flood hazard areas and assist lending institutions and federal agencies to determine whether flood insurance is required. RD 2042 is currently located on FIRM panel numbers 06077C0285F, 06077C0295F, 06077C0305F, and 06077C0315F.

With the passage of SB5, the State of California has established that a 200-year level of protection shall be the new standard for urban and urbanizing areas. The existing RD 2042 levees currently do not entirely meet the updated Urban Levee Design Criteria (ULDC) standards adopted by the Department of Water Resources. Accordingly, the City of Stockton as the local land use agency, in coordination with RD 2042, approved a 200-year ULOP adequate progress finding within the RD 2042 boundary in 2017. RD 2042 continues to provide annual progress reports to the City of Stockton, including this report.

On behalf of RD 2042, a team of Professional Engineers consisting of Peterson Brustad Inc. (PBI), KSN, and Kleinfelder has conducted an evaluation of the RD 2042 levee system in accordance with ULDC. The goal of the evaluation was to identify any deficiencies and countermeasures needed to comply with the State’s 200-year standards and to meet the requirements of making a ULOP finding for RD 2042’s levees for the City of Stockton. The purpose of this Annual Progress Report is to address the ULOP requirements for adequate progress:

1. Identify the geographic area which will have a ULOP once the improvements are completed.

2. Describe the scope, schedule, and cost of completing the flood protection improvements described in the Engineer’s Report.

3. Identify critical features of the system which are under construction.

4. Provide evidence that there are revenues sufficient to fund each year of the project improvements.

ATTACHMENT D
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Reclamation District No. 2042 2 2023 Annual Progress Report Figure 1 - RD 2042 Levee and Boundary

ATTACHMENT D
120

Reclamation District No. 2042 3 2023 Annual Progress Report Project Improvements
In order for the RD 2042 levee system to meet ULDC, improvements are needed to several existing pipe penetrations. Pipe penetration rehabilitation is necessary at various locations, primarily due to deteriorated conditions. The improvements consist of reconstructing pipe penetrations that cross the levee by removing and replacing the portion of pipe through the levee prism and installing a positive closure device (i.e., gate valve). The new pipes will be installed above the Design Water Surface Elevation (DWSE). Conceptual improvement plans are included in Appendix 1. Locations of the pipe penetrations to be rehabilitated are shown on Figure 2 and listed in Table 1.

Figure 2 - Pipe Penetration Rehabilitation Locations

ATTACHMENT D
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Reclamation District No. 2042 4 2023 Annual Progress Report Table 1 – Summary of Pipe Penetration Rehabilitations
Station
Pipe Diameter
(inches) Type Status
N 15+50 16 intake underway
N 29+02 24 discharge remaining
N 29+07 24 discharge remaining
N 117+57 12 intake completed
N 137+81 16 intake completed
N 160+73 16 intake completed
N 177+38 16 intake underway
N 179+51 24 intake no work needed1
N 181+58 16 discharge completed
N 191+34 16 intake completed
N 195+72 48 inlet / outlet underway
S 18+82 12 intake completed
S 43+01 16 intake completed
S 83+49 16 intake completed
Project Cost
The total estimated cost associated with the pipe penetration rehabilitations was originally budgeted at $2,907,000 in 2017 dollars. This cost represents the total cost to obtain full ULDC compliance for the RD 2042 levee system. A summary of this cost is shown below in Table 2.

A more detailed breakdown of the project costs is included in Appendix 2.

Table 2 - Original Overall Project Cost (2017$)
Description Total Cost (2017$)
Construction $1,730,000
Soft Costs $692,000
20% Contingency $484,400
Total: $2,907,000
A summary of estimated costs and actual expenditures to date per pipe penetration rehabilitation is shown below in Table 3. An annual inflation escalator of 3% was used to estimate the costs in any given year. As such, the sum of estimated costs as shown in Table 3 is greater than the total shown in Table 2 which is based on 2017 dollars.

1 Further investigation of the pipe penetration at Sta. N 179+51 has revealed that the pipe is newer and in much better condition that originally assessed. Therefore, no work is required for this pipe.

ATTACHMENT D
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Reclamation District No. 2042 5 2023 Annual Progress Report Table 3 – Summary of Estimated Costs and Actual Project Expenditures Station Estimated Year Estimated Cost Actual Cost
N 15+50 2023 $187,000
N 29+02 2024 $323,500
N 29+07 2024 $323,500
N 117+57 2017 $117,600 $6,846
N 137+81 2017 $161,300 $54,941
N 160+73 2017 $161,300 $33,655
N 177+38 2023 $187,000
N 179+51 n/a $279,100 $0
N 181+58 2018 $166,200 $46,732
N 191+34 2018 $166,200 $58,555
N 195+72 2024 $641,500
S 18+82 2021-2022 $132,400 $534,803
S 43+01 2021-2022 $181,600 $229,201
S 83+49 2019-2020 $176,300 $215,896
Project Schedule
It was anticipated that approximately two pipes would be rehabilitated each year over a seven- year time period. Construction of the pipes at Station S 18+82 and Station S 43+01 was completed in fall 2022. Planning and engineering for the pipes at Station N 15+50, Station N 177+38, and Station N 195+72 commenced in spring 2023. A project schedule is shown below in Table 4.

Table 4 - Project Schedule
Year
Station 2017 2018 2019 2020 2021 2022 2023 2024
N 15+50
N 2 9 + 0 2
N 2 9 + 0 7
N 117+57
N 137+81
N 160+73
N 177+38
N 179+51
N 181+58
N 191+34
N 195+72
S 18+82
S 43+01
S 83+49

Legend: Actual Progress to Date Estimated Remaining Progress

ATTACHMENT D
123

Reclamation District No. 2042 6 2023 Annual Progress Report Project Funding
RD 2042 is the sole funding entity for the ULDC improvements. A current draft statement of net position that indicates balances for all RD 2042 funds is included in Appendix 3. As of June 30, 2023, there is a balance of $95,241 in the contingency fund, $1,469,060 in the maintenance and operations fund, and $746,584 in the ULDC fund.

As the sole funding entity, RD 2042 is responsible for funding the improvements. The primary source of revenue for RD 2042 is from the existing assessment district which generates approximately $490,000 per year. Other sources of income generate approximately $200,000 per year. A copy of this year’s RD 2042 draft budget is included in Appendix 4. In order to fund the improvements, RD 2042 created a ULDC fund at the beginning of the project. RD 2042 will generally transfer funds from the contingency fund and the maintenance and operations fund as well as reallocate a portion of excess budget funds previously directed to the contingency fund.

For fiscal year 2023/2024, this translates to using approximately $109,625 in excess budget funds to fund the seventh year of ULDC improvements in addition to the available, existing ULDC funds.

A cash flow analysis that demonstrates a feasible solution for implementation of the needed 200-year ULDC improvements is shown below in Table 5. Table 5 conservatively assumes that the ULDC fund will be funded each year from excess budget funds with the balance coming from the maintenance and operations fund and emergency contingency fund. It is expected that this table will be refined over time as the planning and development of the project progress over time.

ATTACHMENT D
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Reclamation District No. 2042 7 2023 Annual Progress Report Table 5 - Cash Flow Analysis
Description 2017 2018 2019 2020 2021 2022 2023 2024
Beginning Balance $0 $404,548 $351,410 $386,621 $389,517 $279,767 $746,584 $655,909

Revenues:

Excess Budget Funds $0 $52,149 $52,148 $130,641 ($3,135) $241,296 $109,625 $200,000 Transfer from Contingency Fund $500,000 $0 $0 $0 $0 $742,000 $0 $0 Transfer from Maintenance & Operations Fund $0 $0 $0 $0 $0 $250,000 $0 $318,014 Total Revenues $500,000 $52,149 $52,148 $130,641 ($3,135) $1,233,296 $110,000 $518,014

Expenditures:

ULDC Improvements $95,452 $105,287 $16,937 $127,745 $106,615 $766,479 $200,300 $1,173,922 Total Expenditures $95,452 $105,287 $16,937 $127,745 $106,615 $766,479 $200,300 $1,173,922

Ending Balance $404,548 $351,410 $386,621 $389,517 $279,767 $746,584 $655,909 $0

ATTACHMENT D
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Reclamation District No. 2042
2023 Annual Progress Report

Appendix 1
Conceptual Improvement Plans

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127

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128

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129

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130

ATTACHMENT D
131

Reclamation District No. 2042
2023 Annual Progress Report

Appendix 2
Detailed Cost Estimate

ATTACHMENT D
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RECLAMATION DISTRICT NO. 2042 - BISHOP TRACT

ULDC EVALUATION

STOCKTON, CALIFORNIA

OPINION OF PROBABLE COSTS

DETAILS OF PROPOSED IMPROVEMENTS
Item Description Quantity Unit Unit Cost Total Cost
PROJECT NO. 13.1

PENETRATION REHABILITATION
Construction

1. Mobilization 3% $49,000

2. Erosion Control 3% $49,000

3. Reconstruct Existing 12" Pipe 2 EA $60,000 $120,000

4. Reconstruct Existing 16" Pipe 8 EA $80,000 $640,000

5. Reconstruct Existing 24" Pipe 3 EA $125,000 $375,000

6. Reconstruct Existing 48" Pipe 1 EA $200,000 $200,000

7. Air Release Valve 13 EA $2,000 $26,000

8. 12" Valve 2 EA $4,000 $8,000

9. 16" Valve 8 EA $8,500 $68,000

10. 24" Valve 3 EA $25,000 $75,000

11. 48" Valve 2 EA $60,000 $120,000
Subtotal: $1,730,000
Man
gement / Environmental / Engineering

1. Administration 5% $86,500

2. Planning 3% $51,900

3. Environmental and Permitting 5% $86,500

4. Geotechnical Engineering 2% $34,600

5. Surveying and Civil Engineering 10% $173,000

6. Construction Management and Inspection 12% $207,600

7. Mitigation 3% $51,900
Subtotal: $640,100
SUBTOTAL: $2,422,000
$484,400
PROJECT TOTAL: $2,907,000
CONTINGENCY (20%):

Detail-Construction Page 1 of 1 Print Date: 2/2/2017

ATTACHMENT D
133

Reclamation District No. 2042
2023 Annual Progress Report

Appendix 3
Draft Statement of Net Position
(as of June 30, 2023)

ATTACHMENT D
134

ATTACHMENT D
135

Reclamation District No. 2042
2023 Annual Progress Report

Appendix 4
Draft Budget (2023/2024)

ATTACHMENT D
136
Reclamation District No. 2042
Budget
July 2023 through June 2024
General Administrative Mello-Roos TOTAL
Jul '23 - Jun 24 Jul '23 - Jun 24 Jul '23 - Jun 24
Revenue
4000-00 ꞏ Property Assessments 490,000.00 0.00 490,000.00 4005-00 ꞏ Mello-Roos Assessments (County) 0.00 420,000.00 420,000.00 4025-00 ꞏ State Assistance - Subventions 175,000.00 0.00 175,000.00 4050-00 ꞏ Interest Income
4050-05 ꞏ Interest Income - Bank Accounts 25.00 0.00 25.00 4050-10 ꞏ Interest Income - SJC Funds 25,000.00 5,000.00 30,000.00 4050-15 ꞏ Interest Income - Bond Funds 0.00 25.00 25.00 Total 4050-00 ꞏ Interest Income 25,025.00 5,025.00 30,050.00 Total Revenue 690,025.00 425,025.00 1,115,050.00
Expense
6020-00 ꞏ Dues & Subscriptions 675.00 0.00 675.00
6025-00 ꞏ Engineering 100,000.00 0.00 100,000.00
6050-00 ꞏ Insurance
6050-05 ꞏ Insurance - General 45,000.00 0.00 45,000.00
6050-10 ꞏ Insurance - Workers Comp. 10,000.00 0.00 10,000.00 Total 6050-00 ꞏ Insurance 55,000.00 0.00 55,000.00
6055-00 ꞏ Interest Expense 0.00 110,000.00 110,000.00
6060-00 ꞏ Legal & Accounting
6060-05 ꞏ Legal 20,000.00 0.00 20,000.00
6060-10 ꞏ Accounting - General 20,000.00 0.00 20,000.00 6060-12 ꞏ Accounting - Mello-Roos 0.00 5,000.00 5,000.00 6060-20 ꞏ Audit Fees 9,000.00 0.00 9,000.00
6060-30 ꞏ SJ County Accounting Charges 5,500.00 5,000.00 10,500.00 Total 6060-00 ꞏ Legal & Accounting 54,500.00 10,000.00 64,500.00 6065-00 ꞏ Levee Maintenance
6065-01 ꞏ Rock Slope Protection 25,000.00 0.00 25,000.00 6065-02 ꞏ Vegetation Control 35,000.00 0.00 35,000.00
6065-03 ꞏ Herbicide Control 15,000.00 0.00 15,000.00
6065-04 ꞏ Storm Damage Rill Repair 50,000.00 0.00 50,000.00 6065-05 ꞏ All Weather Road 25,000.00 0.00 25,000.00
6065-06 ꞏ Rodent Control 25,000.00 0.00 25,000.00
6065-07 ꞏ Encroachment/Debris 25,000.00 0.00 25,000.00
6065-08 ꞏ Toe Ditch Cleaning 50,000.00 0.00 50,000.00
6065-09 ꞏ Gate Repairs 10,000.00 0.00 10,000.00
Total 6065-00 ꞏ Levee Maintenance 260,000.00 0.00 260,000.00 6075-00 ꞏ Mello-Roos Administration 0.00 12,000.00 12,000.00 6081-00 ꞏ ULDC Expenses 200,300.00 0.00 200,300.00
6085-00 ꞏ Office Expense 500.00 0.00 500.00
6090-00 ꞏ Oil & Gas 175.00 0.00 175.00
6095-00 ꞏ Payroll Expenses 40,000.00 0.00 40,000.00
6100-00 ꞏ Permits, License & Other Fees 2,000.00 0.00 2,000.00 6110-00 ꞏ Property Taxes 1,550.00 0.00 1,550.00
6115-00 ꞏ Repairs & Maintenance
6115-10 ꞏ Repairs & Maint - Pumps 25,000.00 0.00 25,000.00 Total 6115-00 ꞏ Repairs & Maintenance 25,000.00 0.00 25,000.00 6122-00 ꞏ Storage 500.00 0.00 500.00
6130-00 ꞏ Tools & Supplies 500.00 0.00 500.00
6135-00 ꞏ Utilities 40,000.00 0.00 40,000.00
6200-00 ꞏ Debt Service - Principal 0.00 291,823.00 291,823.00 Total Expense 780,700.00 423,823.00 1,204,523.00
Change in
Net Position -90,675.00 1,202.00 -89,473.00
Non-Cash Items:
6013-00 ꞏ Depreciation Expense 77,028.00 0.00 77,028.00

Page 1 of 1 ends

Working Draft

ATTACHMENT D
137
City of Stockton
Legislation Text
File #: 23-0012, Version: 1

ADOPT A RESOLUTION TO ACCEPT AND APPROPRIATE FUNDING FOR THE CALIFORNIA

DEPARTMENT OF TRANSPORTATION SUSTAINABLE TRANSPORTATION PLANNING GRANT

AWARDED TO SAN JOAQUIN COUNCIL OF GOVERNMENTS

RECOMMENDATION
It is recommended that the City Council approve a resolution to:

1. Authorize the City Manager, or designee, to accept the grant suballocation from SJCOG as a subrecipient, contribute the local match requirement, execute and submit all documents including agreements, amendments, and payment requests, and make all necessary appropriations in compliance with and for the purposes stated in the grant award and application; and

2. Authorize the City Manager, or designee, to take appropriate and necessary actions to carry out the purpose and intent of this resolution.

Summary
The Sustainable Transportation Planning Grant Program was created to support the California Department of Transportation’s (Caltrans) Mission: Provide a safe and reliable transportation network that serves all people and respects the environment. The San Joaquin Council of Governments, in collaboration with the San Joaquin Regional Rail Commission (SJRRC), San Joaquin Regional Transit District (SJRTD), and staff from the Economic Development Department (EDD), submitted an application under the Strategic Partnerships category for the Downtown Stockton Multimodal Transportation Network and Land Use Compatibility Action Plan (Action Plan). The City of Stockton was identified as a sub-applicant and SJCOG was listed as the primary applicant.

In August 2023, staff were notified of the successful award of $450,000 to conduct a robust and comprehensive multimodal transportation and land use study within the Downtown. The Action Plan will study multimodal connections between the existing Downtown Transit Center, Robert J. Cabral Train Station, and the San Joaquin Street Station. The Plan will analyze the Downtown Stockton existing mobility and land use conditions, identify constraints and areas of opportunity, and propose infrastructure and programmatic recommendations. Project implementation will involve an existing conditions analysis, stakeholder and public engagement, an equity and displacement analysis, an alternatives analysis of potential scenarios, a project strategy and action plan, and a summary report.

The alternative analysis will include a benefit cost analysis and economic impact study for all scenarios so that projects or initiatives can be ranked relative to their cost and benefit to the community.

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File #: 23-0012, Version: 1

DISCUSSION
Background
The City of Stockton has partnered with SJCOG, San Joaquin Regional Transit District (SJRTD), and San Joaquin Regional Rail Commission (SJRRC) on joint projects and funding opportunities in the past. Successful examples have included the Miner Avenue Complete Streets Project, the California Street Multimodal Corridor Project, Channel Street Improvements, and the Grand View Village housing development in Downtown Stockton. Funding from the Caltrans Sustainable Transportation Planning Grant Program will strengthen the partnership between the City, SJCOG, SJRRC, and SJRTD to enhance mobility and advance transit-oriented development within the Downtown.

The activities to be conducted as part of the Plan’s development include stakeholder outreach and public engagement, an equity and displacement analysis, and an alternatives analysis involving a series of benefit cost analyses and economic impact studies. The resulting Plan will propose infrastructure and programmatic recommendations for advancing joint-development at Cabral Station and transit-oriented development in the Downtown. The Plan will develop a vision for a safe and vibrant community that integrates the future multimodal transportation network with infill development opportunities.

The Plan would advance the goals and objectives of the City’s adopted Economic Development Strategic Action Plan (EDSAP). In particular, the EDSAP outlines a broad strategy for transforming Downtown into a thriving, connected City Center through infrastructure upgrades, multimodal corridor strategies, and full-spectrum housing development. The EDSAP also prioritizes state-facing activities to attract funding for the City of Stockton and supports opportunities for economic mobility for all residents.

Present Situation
SJCOG and City staff were notified of the $450,000 grant award in August 2023 and have coordinated with Caltrans staff to incorporate minor revisions to the scope for activities requested by Caltrans. The grant expiration date is June 30, 2026 and the activities are anticipated to start in early 2024. EDD staff would oversee the grant activities and deliverables and be responsible for procuring a contractor to complete the Action Plan.

Throughout the term of the grant, EDD staff will coordinate closely with other City Departments on the performance of activities, including the Community Development Department (CDD) and Public Works (PW) Department. For example, the existing conditions analysis will require input from PW on the state of the pedestrian, bicycle, transit, and vehicular networks, while CDD staff will help to inform the market conditions, land use, and housing needs assessment. As the alternatives analysis is developed, CDD and PW staff will have the opportunity to provide input on recommendations related to complete streets, joint development, transit-oriented development, and multimodal connectivity.

The final project strategy and Action Plan will integrate feedback from CDD and PW staff so that the preferred alternative is consistent with, and complementary to, the Capital Improvement Program, Envision Stockton 2040 General Plan, and EDSAP. During implementation of the Action Plan, City staff will coordinate to identify funding opportunities, pursue joint grant applications, and advance the recommended strategies over time.

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File #: 23-0012, Version: 1
Staff recommends City Council authorize participation as a sub-recipient under the grant and to authorize contribution of the required local match of $18,500. As the grant terms are over two years, the matching funds would be contributed as work progresses utilizing existing staffing resources to EDD.

Not participating as a sub-recipient would prevent the Action Plan from moving forward.

FINANCIAL SUMMARY
Grant Award Local Match (City
funded portion)
Local Match (in-kind
partners)
Total Project Cost
$450,000 $18,500 $40,000 $508,500
The total project cost is approximately $508,500. Grant funding in the amount of $450,000 will be received, through a reimbursement process, in the Special Grant Fund, Economic Development Division, EDD Administration Program. Corresponding expense will be appropriated in the same fund for the preparation of the plan, which is anticipated to be performed by a consultant, who will be selected subject to the City’s regular request for proposals (RFP) process.

The remainder of the 508,500 represents the local match requirement of $58,500. Of this amount, $40,000 will come from in-kind contributions from the partner transit agencies, and the City of Stockton would be responsible for contributing $18,500. The City’s portion of the local match will be met through an in-kind contribution of staff time and funded with budgeted salaries in EDD’s General Fund. The total amount funded by the City would be $468,500, of which, 450,000 would be reimbursed, and $18,500 would be made up of staff costs already appropriated in the General Fund.

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Resolution No.

STOCKTON CITY COUNCIL

RESOLUTION ACCEPTING AND APPROPRIATING FUNDING AS A SUB-RECIPIENT

FOR THE CALIFORNIA DEPARTMENT OF TRANSPORATION SUSTAINABLE

TRANSPORTATION PLANNING GRANT AWARDED TO SAN JOAQUIN COUNCIL OF

GOVERNMENTS

The City of Stockton is eligible to serve as a sub -recipient for funding under the California Department of Transportation (Caltrans) Sustainable Transportation Planning Grant Program (Program); and

The City of Stockton coordinat ed with the San Joaquin Council of Governments (SJCOG) on the submittal of a grant application to the Program for funding under the Strategic Partnerships category; and

SJCOG received a grant award of $450,000 for the Downtown Stockton Multimodal Transportation Network and Land Use Compatibility Action Plan; and

The award requires a Local Match of $18,500; and

The City of Stockton staff will conduct planning activities to enhance the Downtown multimodal network and propose infrastructure recommendations; now, therefore,

BE IT RESOLVED BY THE CITY COUNCIL OF THE CITY OF STOCKTON, AS FOLLOWS:

1. The City Manager, or designee, is authorized to accept the grant suballocation from SJCOG as a subrecipient , contribute the local match requirement , execute and submit all documents including agreements, amendments, and payment requests, and make all necessary appropriations in compliance with and for the purposes stated in the grant award and application.

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141

2. The City Manager, or designee, is authorized to take whatever actions are necessary and appropriate to carry out the purpose and intent of this Resolution.

PASSED, APPROVED, and ADOPTED: December 5, 2023 .

KEVIN J. LINCOLN II
Mayor of the City of Stockton

ATTEST:

ELIZA R. GARZA, CMC
City Clerk of the City of Stockton
142
City of Stockton
Legislation Text
File #: 23-1059, Version: 1
APPROVE A MOTION TO EXECUTE CONTRACT AMENDMENT NO. TWO WITH UKG KRONOS

SYSTEMS, LLC (FORMERLY KRONOS INCORPORATED) FOR THE TELESTAFF SCHEDULING

SOLUTION

RECOMMENDATION
It is recommended that the City Council approve a motion to:

1. Authorize the City Manager to execute Contract Amendment No. Two to the UKG Kronos Systems, LLC (formerly Kronos Incorporated) Agreement in an amount not to exceed $28,645.05.

2. Approve findings pursuant to Stockton Municipal Code section 3.68.070 in support of an exception to the competitive bidding process; and

3. Authorize the City Manager to take appropriate and necessary actions to carry out the purpose and intent of this motion.

Summary
Telestaff is a scheduling platform used by the Stockton Fire Department (SFD). TeleStaff is designed specifically for public safety entities and provides tools to efficiently manage daily scheduling for all personnel assigned to fire suppression duties. SFD seeks Council approval to execute Contract Amendment No. Two of the UKG Kronos Systems, LLC (formerly Kronos Incorporated) Agreement for the continued use of the Telestaff scheduling solution.

DISCUSSION
Background
TeleStaff is a workforce management solution designed for fire departments and emergency service organizations. Its primary function is to optimize scheduling processes, ensuring that staff assignments are efficient and compliant with departmental policies. TeleStaff streamlines scheduling by automating regular duty shift assignments, manages time-off requests, facilitates communication with staff, and offers reporting and analytics tools. TeleStaff is also integrated with Emergency Reporting (electronic patient care reports) and Tablet Command (emergency response management), which enables SFD to populate accurate personnel assignments for each integrated platform during an emergency response.

On December 28, 2020, SFD entered into a two-year cooperative agreement through Omnia Partners for the TeleStaff scheduling platform for an amount not to exceed $52,817.66. This City of Stockton Printed on 11/30/2023Page 1 of 2
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File #: 23-1059, Version: 1
agreement included three (3) one-year renewal options. On January 26, 2023, Contract Amendment No. one (1) was executed, extending the City’s agreement through December 27, 2023, increasing the not to exceed by an additional $27,465.18 for a total not to exceed of $80,282.84.

Present Situation
Specialized scheduling software is crucial for managing SFD’s complex scheduling needs, maintaining compliance, managing resource allocation, and ensuring equitable and transparent scheduling for a fair and balanced distribution of work hours. On October 20, 2023, SFD received a quote for $28,645.05 from UKG Kronos Systems, LLC for continued use of Telestaff through December 27, 2024. This quote represents a 4.3% increase from the previous year. Once approved, there will be one (1) remaining option to renew.

Findings
Pursuant to SMC section 3.68.070, Council may approve findings that support an exception to the competitive bidding process. These findings include:

1. The Stockton Fire Department currently requires specialized scheduling software to manage suppression staff’s complex scheduling needs.

2. UKG Kronos Systems, LLC provides a well-developed scheduling solution that meets the needs of the Stockton Fire Department.

3. Omnia Partners established a Cooperative Purchasing Agreement for Workforce Management Systems and Related Products, Services, and Solutions with UKG Kronos Systems, LLC (formerly Kronos Incorporated).

4. The Cooperative Purchasing Agreement was established pursuant to competitive public solicitation processes.

FINANCIAL SUMMARY
Amendment No. two to this Agreement will not exceed $28,645.05, increasing the total not to exceed to $108,927.89. The Fire Department’s FY2023-24 annual budget includes an allocation for $30,000 for this scheduling software under Fire Administration Computer/Programming Services Account 4010-000-630002-100-000-20-40-000-000-.

Attachment A - Original Agreement
Attachment B - Amendment 1
Attachment C - Amendment 2
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,;sClTYOF

STOCKTON COOPERATIVE/PIGGYBACK PURCHASE AGREEMENT
AGREEMENT SUMMARY:

1. Cooperative/Piggyback OMNIA Partners
Name:

2. Contractor: Kronos Incorporated

3. Cooperative Agency Workforce Management Systems and Related Agreement Name and Products, Services and Solutions: Contract# 18220 Agreement Number:

4. Cooperative Agency Initial Start Date: March 18, 2019 Agreement Term: End Date: March 17, 2022

5. Cooperative Agency's Three (3) one-year extensions, however the Agreement-Options to Agreement including any extensions shall not go extend: beyond 6 years as a total term

6. Cooperative Agency NIA
Amended Term:

7. Cooperative Agency Three (3) one-year renewal options remaining Remaining Options to
Renew:

8. City of Stockton Start Date: December 28, 2020
Cooperative Purchase End Date: December 27, 2022
Agreement Term:

9. City of Stockton Not to Exceed $52,817.66 for the term of the Cooperative/ Piggyback Agreement.

Purchase Agreement
Amount:

AGREEMENT
The City of Stockton, a California municipal corporation on behalf of itself and its associated entities ("City"), and the above-named Contractor ("Contractor''), do hereby agree that City shall be granted the pricing, terms, and conditions under the above referenced Workforce Management Systems and Related Products, Services and Solutions: Contract# 18220 ("COOP") as such may be amended from time to time. The COOP and associated documents referenced in the agreement are incorporated herein as Exhibit A to this City Cooperative/Piggyback Purchase Agreement (''Agreement"). 1 (Rev. 2.11.20)

ATTACHMENT A
145
Contractor shall grant such pricing, terms, and conditions to City for all procurements of goods and services, taking place on a City purchase order.

1. Agreement Term: The Term of this Agreement shall remain in effect from December 28, 2020 through December 27, 2022 unless terminated earlier in accordance with this Agreement by the parties. If the Cooperative/Piggyback Agency extends the COOP with Contractor by a written amendment, the City has the option to extend the term of this Agreement by written amendment not go beyond the term stated in the COOP fully executed amendment.

2. Insurance: In addition to the pricing, terms and conditions stated in the COOP and the associated documents incorporated herein as Exhibit A, Contractor shall, at Contractor's sole cost and expense and for the full term of the Agreement or any extension thereof, obtain and maintain at least all the insurance requirements listed in attached Exhibit B.

3. Compensation: City and Contractor do hereby enter into this Agreement for Workforce Management Systems available in the above-named COOP and associated documents incorporated herein as Exhibit A and referenced in the attached quote Exhibit C. In no way, shall payment to the Contractor during the term of this Agreement exceed $52,817.66 for the purchase of Cloud Workforce TeleStaff (WFTS). Any person signing this Agreement on behalf of City or Contractor does warrants that he or she has full authority to do so.

4. Governing Law. California law shall govern any legal action pursuant to this Agreement with venue for all claims in the Superior Court of the County of San Joaquin, Stockton Branch or, where applicable, in the Federal District Court of California, Eastern District, Sacramento Division.
2 (Rev. 2.11.20)

ATTACHMENT A
146
This Agreement may be amended only by a written amendment, consistent with the COOP, signed by Contractor and City.

F STOCKTON
ity Manager
ATTEST:

APPROVED AS TO FORM:

City Attorney,
L.e1tsf?,t_,,..- Zo r'1S,�
(Rev. 2.11.20)
CONTRACTOR NAME.

By: -----------
Signature
Print name
Title:
[If Contractor is a corporation, signatures must
comply with Corporations Code §313)
By
��
John O'Brien
Print name
Title: Chief Revenue Officer

ATTACHMENT A
147
{A co
mplete copy of the original Agreement is available upon request at [email protected]}

ATTACHMENT A
148
DocuSign Envelope ID: 9992AB81-1A3E-43F0-829D-141 D3D58D8F1 Agreement Number: Amendment
CITY OF STOCKTON Number:

COOPERATIVE AGREEMENT AMENDMENT
This Amendment Number 1 to the above referenced Agreement is entered the City of Stockton ("City") and Kronos Incorporated ("Contractor").

RECITALS
2021-01-04-S003 NP 1
419000324
into on l /i�Ji3 _-between
I
Section 1, Agreement Term, states the City has the option to extend the term of this Agreement by written amendment if the Cooperative/Piggyback Agency extends the COOP with Contractor by a written amendment; and Effective March 18, 2022, Cooperative Agency and Contractor executed Amendment #3, Exhibit A attached hereto and incorporated herein by reference, to exercise the option to extend the COOP for an additional one-year period; and
The City needs to renew the term specified in Agreement Summary, Section 8 and Section 1, Agreement Term to continue services; and
The term of the Commercial service or maintenance terms and conditions shall be governed by that applicable order and may extend beyond the expiration date of the Master Agreement per page 1 Terms of Master Agreement No. 18220;and
The City needs to add Prohibited Transactions to Agreement; and The City needs to increase the City of Stockton Cooperative/Piggyback Purchase Agreement Amount in Section 9 of the Agreement Summary and Section 3, Compensation, by $27,465.18 to pay the Contractor for one (1) additional year of services.

Now therefore, the City and the Contractor mutually agree as follows:

1. The termination date in Agreement Summary, Section 8 and Section 1, Agreement Term is amended to:
"December 27, 2023"

2. The Agreement Summary will now read as follows:

1. Cooperative/Piggyback Name: OMNIA Partners

2. Contractor Kronos Incorporated

3. Cooperative Agency Agreement Name Workforce Management Systems and Related and Agreement Number Products, Services, and Solutions: Contract# 18220

4. Cooperative Agency Initial Agreement Start Date: March 18, 2019 Term End Date: March 17, 2022

5. Cooperative Agency's Agreement-Options Three (3) one-year extensions, however the to extend Agreement including any extensions shall not go beyond 5 years as a total term

6. Cooperative Agency Amended Term Start Date: March 18, 2022 End Date: March17, 2023

7. Cooperative Agency Remaining Options Two (2) one-year options remaining to Renew

8. City of Stockton Cooperative Purchase Start Date: December 28, 2020 Agreement Term End Date: December 27, 2023

9. City of Stockton Cooperative/Piggyback Not to Exceed $80,282.84 for the term of the Purchase Agreement Amount Agreement
(Rev. 4.15.22)
l

ATTACHMENT B
149
DocuSign Envelope ID: 9992AB81-1 A3E-43F0-829D-141D3D58D8F 1

3. The maximum not to exceed amount to be paid to the Contractor in Section 3, Compensation will now read as follows:
"City and Contractor do hereby enter into this Agreement for Workforce Management Systems available in the above-named COOP and associated documents incorporated herein as Exhibit A and referenced in the attached quote Exhibit C. In no way shall payment to the Contractor during the term of this Agreement exceed $80,282. 84for the purchase of Cloud Workforce TeleStaff (WFTS) software. Any person signing this Agreement on behalf of City or Contractor does warrant that they have full authority to do so." Initial Term the maximum not to exceed amount is $52,817.66 Extended Term the maximum not to exceed amount is $27,465.18 Total maximum compensation to be paid to the Contractor under this Agreement for the initial term and the extended term shall not exceed $80,282.84

4.Added to Agreement as Section 6 Prohibited Transactions:
"Contractor certifies to the best of its kno w I edge th a ti t has not and will not engage in prohibited transactions with sanctioned persons or entities. "
All other terms and conditions of the Agreement shall remain unchanged and remain in full force and effect unless modified by a written amendment signed by both parties.

IN WITNESS WHEREOF, the authorized parties have executed this Agreement.

CONTRACTOR
UKG
'"'--DocuSlgn'ed bt-- - '" _.,_ -·· than an individual, state whether a �.�.,t:t'""J,,
corporation, partnership, etc.):
1/12/2023 I 9:09 AM EST
Date
Scott Giangrande Sr. Order Processing Analyst
Printed Name and Title of Person Signing
900 Chelmsford Street, Lowell, MA 01851
Address

CITY OF STOCKTON
ATTEST:

APPROVED AS TO FORM:

Lori M. Asuncion, City Attorney
BY:
2 (Rev. 4.15.22)

ATTACHMENT B
150
DocuSign Envelope ID: 9992AB81-1A3E-43F0-829D-141D3D58D8F1 CONTRACT AMENDMENT #3
Sealed Bid It 18-6390
Contract # l 8220

EXHIBIT A
Date of Amendment: December 10, 2021
Owner:

Contractor:

Cobb County Board of Commissioners Cobb County, Georgia Kronos Incorporated
Project: Bid 11 18-6390, Workforce Ma nagement Systems and Relat ed Products, Services and Solutions
Current Contract Term: March 18, 2019 to March 17, 2022 This action amends the current contract dated March 18, 2019, for Sealed Bid tt 18-6390. It is valid when signed by both the Owner and Contractor. The signature of the Contractor indicates his/her agreement herewit h, including any adjustments in the contract pricing, contract term, or contract scope.

Contract Extension
The County will exercise its option to extend the current contract for an additional one-year period. The effective date of the contract ex tension will comm ence on March 18, 2022 and end on March 17, 2023.

ACCEPTED - The above listed te rms and conditions of this Amendment are satisfactory and are hereby accepted.

OWNER
Cobb County Board of Commissioners
100 Che
Mariett
Signed
Title: _________ _
(Rev. 4.15.22)
3 CONTRACTOR
Kronos Incorpo rated
900 Chelmsford Street
Lowell, l,1:t\ 01851
l Docus,gned bf!
Signed:C le& v�
•·••• IJ.8{.143!1��17Ht;:l
Title: _o_r_de_r_P_r_oc_e_s_s_i_ng_A_n_a_l y_s
Date: 12/14/2021 l 11: 37 AJvl EST

ATTACHMENT B
151
Agreement Number: Amendment
CITY OF STOCKTON Number:

COOPERATIVE AGREEMENT AMENDMENT 2021-01-04-S003 NP
419000324
2 This Amendment Number Two (2) to the above referenced Agreement is entered into on __________ _ between the City of Stockton ("City") and UKG Kronos Systems, LLC (formerly known as Kronos Incorporated) ("Contractor").

RECITALS
Section 1, Agreement Term, states the City has the option to extend the term of this Agreement by written amendment if the Cooperative/Piggyback Agency extends the COOP with Contractor by a written amendment; and Effective March 18, 2023, Cooperative Agency and Contractor executed Amendment #4, Exhibit A attached hereto and incorporated herein by reference, to exercise the option to extend the COOP for an additional one-year period; and
The City needs to renew the term specified in Agreement Summary, Section 8 and Section 1, Agreement Term to continue services; and
The term of the Commercial service or maintenance terms and conditions shall be governed by that applicable order and may extend beyond the expiration date of the Master Agreement per page 1 Terms of Master Agreement No. 18220;and
The City needs to increase the City of Stockton Cooperative/Piggyback Purchase Agreement Amount in Section 9 of the Agreement Summary and Section 3, Compensation, by $28,645.05 to pay the Contractor for one (1) additional year of services.

Now therefore, the City and the Contractor mutually agree as follows:

1. The termination date in Agreement Summary, Section 8 and Section 1, Agreement Term is amended to:
"December 27, 2024"

2. The Agreement Summary shall now read as follows:

1. Cooperative/Piggyback Name:

2. Contractor

3. Cooperative Agency Agreement Name
and Agreement Number

4. Cooperative Agency Initial Agreement
Term

5. Cooperative Agency's Agreement-Options
to extend

6. Cooperative Agency Amended Term

7. Cooperative Agency Remaining Options
to Renew

8. City of Stockton Cooperative Purchase
Agreement Term

9. City of Stockton Cooperative/Pig gyback
Purchase Agreement Amount
(Rev. 4.15.22)
OMNIA Partners
UKG Kronos Systems, LLC
Workforce Management Systems and Related
Products, Services, and Solutions: Contract#
18220
Start Date: March 18, 2019
End Date: March 17, 2022
Three (3) one-year extensions, however the
Agreement including any extensions shall not go
beyond 5 years as a total term
Start Date: March 18, 2023
End Date: March 17, 2024
One ( 1) one-year renewal option remaining
Start Date: December 28, 2020
End Date: December 27, 2024
Not to Exceed $108,927.89 for the term of the
Agreement

ATTACHMENT C
152

3. The maximum not to exceed amount to be paid to the Contractor in Section 3, Compensation will now read as follows:
"City and Contractor do hereby enter into this Agreement for Workforce Management Systems available in the above-named COOP and associated documents incorporated herein as Exhibit A and referenced in the attached quote Exhibit C. In no way shall payment to the Contractor during the term of this Agreement exceed $108,987.89 for the purchase of Cloud Workforce TeleStaff (WFTS) software. Any person signing this Agreement on behalf of City or Contractor does warrant that they have full authority to do so." Initial Term the maximum not to exceed amount is $52,817.66 First Extended Term the maximum not to exceed amount is $27,465.18 Second Extended Term the maximum not to exceed amount is $28,645.05 Total maximum compensation to be paid to the Contractor under this Agreement for the initial term and the two (2) extended terms shall not exceed $108,927.89 All other terms and conditions of the Agreement shall remain unchanged and remain in full force and effect unless modified by a written amendment signed by both parties.

IN WITNESS WHEREOF, the authorized parties have executed this Agreement.

CONTRACTOR
UKG Kronos systems, LLC
&rc'si�ame (if other than an individual, state whether a corporation, partnership, etc.):
1/;�wdld 10/26/2023 I 4:19 PM EDT
'13�t'lature Date
Erica Bukowski Business Operations Analyst
Printed Name and Title of Person Signing
900 Chelmsford Street, Lowell, MA 01851
Address
Harry Black, City Manager
ATTEST:

Eliza R. Garza CMC, City Clerk
APPROVED AS TO FORM:

Lori M. Asuncion, City Attorney
BY:
(Rev. 4.15.22)

CITY OF STOCKTON
2 Date

ATTACHMENT C
153
CONTRACT AMENDMENT #4
Sealed Bid # 18-6390
Contract #18220

EXHIBIT A
Date of Amendment: February 6, 2023
Owner:

Contractor:

Cobb County Board of Commissioners. Cobb County, Georgia Kronos Incorporated
Project: Bid# 18-6390, Workforce Management Systems and Related Products, Services and Solutions
Current Contract Term: March 18, 2022 to March 17, 2023 This action provides written notice to renew the current contract dated March 18, 2019, for Sealed Bid #18-6390, in accordance with the terms contained therein. It is valid when signed by both the Owner and Contractor. The signature of the Contractor indicates his/her agreement herewith, including any adjustments in the contract pricing, contract term, or contract scope.

Contract Extension
The County exercises its option to extend the current contract for an additional one-year period. The effective date of the contract extension will commence on March 18, 2023 and end on March 17, 2024.

ACCEPTED - The above listed terms and conditions of this Amendment are satisfactory and are hereby accepted.

OWNER
Cobb County Board of Commission
100 Cherokee Street
90 UuN.Cup
Title: __ c_o_un_ty_ao_a ______ _
Date: ____ ; .. ff....,:_>· ...... f ; __ i .. _-3 _____ _ Approved As To Form:

APPROVED
Pl::R :\IIMITES OFCOBB COUNTY
�, .... �•�--=-

BOARD OF COMMISSIONERS
__ y_!t2:hg

CONT RACTOR
Kronos Incorporated
900 Chelmsford Street
Lowell, MA.Qm!
Directcr r:J Cm1racts & PrOQ.Jrement - p u b I i C Sector Title: ________ __
Date: 02/06/2023 -----

ATTACHMENT C
154
City of Stockton
Legislation Text
File #: 23-1088, Version: 1

APPROVE MOTION TO EXECUTE A FIVE-YEAR MASTER SERVICE AGREEMENT WITH

LEXIPOL, LLC FOR POLICY MANAGEMENT SERVICES IN AN AMOUNT NOT TO EXCEED $179,700

RECOMMENDATION
It is recommended that the City Council approve a motion to:

1. Authorize the City Manager to execute a five-year Master Service Agreement with Lexipol, LLC (Lexipol), in an amount not to exceed $179,688.70.

2. Approve findings pursuant to Stockton Municipal Code section 3.68.070 in support of an exception to the competitive bidding process; and

3. It is further recommended that the City Manager be authorized and directed to make any and all expenditures and appropriations on behalf of the City as appropriate and necessary to carry out the purpose and intent of this motion.

Summary
The Stockton Fire Department (SFD) seeks Council approval for a five-year Master Service Agreement with Lexipol. The proposed agreement provides SFD with a digitalized policy management solution compliant with applicable laws, regulations, and industry standards. The intent is to provide SFD with a platform that will improve policy relevance and compliance and personnel management in order to better serve the community. Lexipol supports SFD’s Strategic Goal of improving internal communications and efficiencies through the use of technology and digital platforms.

DISCUSSION
Background
SFD’s Policies and Procedures are a collection of roughly 307 PDF files totaling nearly 1,350 pages stored in an online Microsoft Sharepoint portal, accessible to Fire Department personnel. As new policies are created and old ones are revised, the newly created content inevitably impacts other existing policy.

SFD’s policies and procedures are maintained internally by one (1) Administrative Chief who is also responsible for maintaining daily operations, staffing, and logistical support functions. Policy maintenance requires the Administrative Chief to maintain constant vigilance to legislative changes at the Federal, State, and local levels as well as professional standards identified by the National Fire City of Stockton Printed on 11/30/2023Page 1 of 3
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Protection Association. As laws, regulations, and best practices change, the Administrative Chief must ensure that SFD’s policies and procedures are updated. SFD’s current process of maintaining department policy is time-consuming, inefficient, and often fails to recognize time-sensitive legal updates or implications.

SFD employees are notified of policy updates via department wide email. Fire administration can validate that each employee has viewed their email but cannot measure the level of comprehension or if a revised policy was read by each employee. Additionally, the current collection of PDF policies is fragmented, cumbersome to navigate through, and commonly found to be outdated or have contradictory directives.

On November 18, 2021, Sourcewell, a State of Minnesota local government unit and service cooperative that offers cooperative procurement solutions to government entities, requested proposals for Public Safety Training and Simulation Equipment and Technology. On March 28, 2022, Sourcewell entered into an agreement with Lexipol, LLC for Public Safety Training and Simulation Equipment and Technology, including policy management solutions.

Present Situation
Lexipol will provide a policy management solution with 200 fire department policies and procedures that are specific to the California Fire Service. All provided policies have been researched and vetted by subject matter experts and attorneys. Lexipol will provide a support team to provide the necessary assistance to SFD staff as they integrate current policy onto the Lexipol platform. It’s estimated that full implementation will take 12 months and will occur over 5 phases. Phase 1 will address those areas that present the greatest risk to the organization, with the 5th phase posing the least amount of risk.

Lexipol will provide continuous update recommendations to various policies as the regulatory environment changes. Policy updates will be electronically delivered to all SFD employees followed by training lessons that will validate employee comprehension of the various updates. All policies will be housed in one electronic document stored and accessible 24/7 through an online and mobile platform.

Lexipol offers a subscription-based policy management and training services for public safety that is defendable in court. Lexipol’s cost-effective solution for SFD policy management allows staff to focus time and energy on daily operations and logistical support. Lexipol is the only vendor SFD has identified that specializes in California Fire Service policy revision. Lexipol provides a comprehensive, multi-faceted approach to policy management, training, and compliance, a solution for the SFD that no other firms can provide.

Findings
Pursuant to SMC section 3.68.070, Council may approve findings that support an exception to the competitive bidding process. These findings include:

1. The Sole Source is appropriate for the comprehensive review, training, and revision of current and future policies and procedures.

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2. Lexipol is the only vendor SFD has identified that focuses solely on fire department policies and provides a comprehensive, multi-faceted approach to procedural training, policy updates, and review.

3. Lexipol provides strategies and a well-developed policy management solution that will reduce SFD’s exposure to liability as it pertains to operational and personnel management.

FINANCIAL SUMMARY
The agreement term is five years at a total cost of $179,688.70. Annual costs are as follows:

Year 1 Full implementation + annual learning management subscription $107,074.50 Year 2 Annual learning management subscription $18,153.55 Year 3 Annual learning management subscription $18,153.55 Year 4 Annual learning management subscription $18,153.55 Year 5 Annual learning management subscription $18,153.55 TOTAL $179,688.70
The FY 2023-24 Annual Budget includes sufficient funds for the initial purchase and subscription of this policy management solution with Lexipol in Fire Department’s General Fund Administration Account No. 4010-000-630006-100-000-20-40-000-000-. Costs for the subsequent years will be budgeted in the same account and subject to council approval during the annual budget development process.

Attachment A - Master Service Agreement
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llllrLEXIPOL
Agency's Name:

Agency's Address:

Agency's Sourcewell Member ID:

Attention:

Sales Rep:

Lexipol's Address:

Effective Date:

MASTER SERVICE AGREEMENT
Stockton Fire Department
425 N El Dorado St
Stockton, California 95202
194910
Ray Shanahan
2611 Internet Boulevard, Suite 100
Frisco, Texas 75034
(to be completed by Lexipol upon receipt of signed Agreement) This Master Service Agreement (the "Agreement") is entered into by and between Lexipol, LLC, a Delaware limited liability company ("Lexipol"), and the department, entity, or organization referenced above ("Agency").

This Agreement consists of:
(a) this Cover Sheet
(b) Exhibit A- Selected Services and Associated Fees
(c) Exhibit B-Terms and Conditions of Service
This Agreement is entered into subject to the terms and conditions contained in Sourcewell Contract Number 011822-LXP (the Sourcewell Contract). In the event of any conflict between the terms and conditions of this Agreement and the terms and conditions set forth in the Sourcewell Contract, the terms and conditions of the Sourcewell Contract shall control.

Each individual signing below represents and warrants that they have full and complete authority to bind the party on whose behalf they are signing to all terms and conditions contained in this Agreement.

Stockton Fire Department Lexipol, LLC
Signature: Signature:

Print Name: Print Name:

Title: Title:

Date Signed: Date Signed:
-,......_, ____ .. _ Ray Shanah �..::.
'R.c::i:,,l'l'!.Of\.dt s�
Ray Shanahan
Senior Account Executive
11-8-2023

ATTACHMENT A
158
Exhibit A

SELECTED SERVICES AND ASSOCIATED FEES
Agency is purchasing the following:

Year1
- ------- -------- - - - --

QTY DESCRIPTION UNIT PRICE SOURCEWELL DISC AMT EXTENDED I
DISC
1 Annual Fire Policy Manual & Daily Training
Bulletins w/Supplemental Publication
Service w/Fire Operations Procedures (12
Months)
Subscription Line Items Total
1 Fire Standard Policy Cross-Reference
1 Fire Agency-Specific Content Extraction
1 Fire Tier I Implementation
1 Fire Tier II Implementation
1 Fire Tier Ill Implementation
1 Fire Tier IV Implementation
1 Fire Tier V Implementation
Year2
USD 19,109.00
USD 10,855.00
USD 2,195.00
USD 18,189.00
USD 16,111.00
USD 18,120.00
USD 10,383.00
USD 17,748.00
5% USD 955.45 USD 18,153.55
USD955.45 USO 18,153.55
5% USO 542.75 USD 10,312.25
5% USO 109.75 USO 2,085.25
5% USO 909.45 USD 17,279.55
5% USO 805.55 USD 15,305.45
5% USO 906.00 USD 17,214.00
5% USO 519.15 USO 9,863.85
5% USD 887.40 USD 16,860.60
Year 1 Sourcewell Discount: USD 5,635.50
Year 1 TOTAL: USD 107,074.50

QTY DESCRIPTION UNIT PRICE SOURCEWELL DISC AMT EXTENDED Annual Fire Policy Manual & Daily Training
Bulletins w/Supplemental Publication
Service w/Fire Operations Procedures (12
Months)
USD 19,109.00
DISC
5% USD 955.45 USD 18,153.55
Year 2 Sourcewell Discount: USD 955.45
Year 2 TOTAL: USD 18,153.55

ATTACHMENT A
159
Year3

QTY DESCRIPTION UNIT PRICE SOURCEWELL DISC AMT EXTENDED Year4
Annual Fire Policy Manual & Daily Training
Bulletins w/Supplemental Publication
Service w/Fire Operations Procedures (12
Months)
Subscription Line Items Total
USD 19,109.00
DISC
5% USD 955.45 USD 18,153.55
Year 3 Sourcewell Discount: USD 955.45
Year 3 TOTAL: USD 18,153.55

QTY DESCRIPTION UNIT PRICE SOURCEWELL DISC AMT EXTENDED Year 5
Annual Fire Policy Manual & Daily Training
Bulletins w/Supplemental Publication
Service w/Fire Operations Procedures (12
Months)
USD 19,109.00
DISC
5% USD 955.45 USD 18,153.55
Year 4 Sourcewell Discount: USD 955.45
Year 4 TOTAL: USD 18,153.55

QTY DESCRIPTION UNIT PRICE SOURCEWELL DISC AMT EXTENDED Annual Fire Policy Manual & Daily Training
Bulletins w/Supplemental Publication
Service w/Fire Operations Procedures (12
Months)
USD 19,109.00
DISC
5% USD 955.45 USD 18,153.55
Year 5 Sourcewell Discount: USD 955.45
*Fire pricing is based on 199 Fire Authorized Staff.

Discount Notes
5% Sourcewell
Notes
Custom split invoicing terms for Year 1
Lexi pol will invoice Stockton FD for the following upon execution of this agreement:

Lines 1-5 in Green for total of $63,136.05
Lexi pol will invoice Stockton FD on July 1, 2024 for the remaining lines 6-8.

Lines 6-8 in Blue for a total of $43,938.45
Year 5 TOTAL: USD 18,153.55

ATTACHMENT A
160
Both invoices have NET 30 day terms

ATTACHMENT A
161
Exhibit B
Terms and Conditions of Service
These Terms and Conditions of Service (the ''Terms") govern the rights and obligations of Lexi pol and Agency under this Agreement.

Lexipol and Agency may each be referred to herein as a "party" and collectively as the "parties."

1. Definitions. Each of the following capitalized terms will have the meaning included in this Section 1. Other capitalized terms are defined within their respective sections, below.

1.1 "Agency'' means the department, agency, office, organization, company, or other entity purchasing and/or otherwise subscribing to the Lexi pol Services set forth in Exhibit A.

1.2 "Agency Data" means data, information, and content owned by Agency prior to the Effective Date, or which Agency provides during the Term of this Agreement for purposes of identifying authorized users, confirming agency or department information, or other purposes that are ancillary to receipt of the Service.

1.3 "Agreement'' means the combination of the cover sheet (signature page); Exhibit A ("Selected Services and Associated Fees"); this Exhibit B; and any other documents attached hereto and expressly incorporated herein by reference.

1.4 "Effective Date" means the date specified on the cover sheet (signature page), or as otherwise expressly set forth and agreed upon by Lexipol and Agency in a writing and defined as the "Effective Date."

1.5 "Initial Term" means the period commencing on the Effective Date and continuing for the length of time indicated on Exhibit A. If not so indicated, the default Initial Term is one (1) year from the Effective Date.

1.6 "Lexipol Content" means all content in any format including but not limited to: written content, images, videos, data, information, and software multimedia provided by Lexipol and/or its licensors via the Services.

1.7 "Services" means all products and services, including but not limited to all software subscriptions, professional services, and ancillary support services, as may be offered by Lexi pol and/or its affiliates from time to time.

2. Terrri; Renewal. This Agreement becomes enforceable upon signature by Agencys authorized representative, with an Effective Date as indicated on the cover page. Unless expressly stated in the "Custom Agreement Terms" section of Exhibit A, this Agreement shall automatically renew in successive one-year periods (each, a "Renewal Term") on the anniversary of the Effective Date unless a party provides written notice of non-renewal to the other party at least sixty (60) days prior to such renewal. The Initial Term and all Renewal Terms collectively comprise the ''Term" of this Agreement.

3. Termination.

3.1 For Convenience; Non-Appropriation. This Agreement may be terminated at any time for convenience (including due to lack of appropriation of funds) upon sixty {60) days written notice.1

3.2 For Cause. This Agreement may be terminated by either party, effective immediately, (a) in the event the other party fails to discharge any obligation, including payment obligations, or remedy any default hereunder for a period of more than thirty (30) calendar days after it has been provided written notice of such failure or default; or (b) in the event that the other party makes an assignment for the benefit of creditors or commences or has commenced against it any proceeding in bankruptcy, insolvency or reorganization pursuant to the bankruptcy laws of any applicable jurisdiction.

3.3 Effect of Expiration or Termination. Upon the expiration or termination of this Agreement for any reason, Agencys access to Lexipol's Services shall immediately cease unless Lexipol has, in its sole discretion, provided for their limited continuation.

Termination or expiration of this Agreement shall not, however, relieve either party from any obligation or liability that has accrued under this Agreement prior to the date of such termination or expiration, including payment obligations. 1 Note: fees paid for Online Services are not eligible for refund, proration, or offset in the event of Agency's termination for convenience as Online Services are delivered in full as of the Effective Date. Fees pre-paid for Professional Services are eligible for refund, proration, or offset to the extent such Services have not been delivered or utilized by Agency.

Copyright© Lexipol, LLC 1995-2023
Rev. 1.1.2023
1 ATTACHMENT A
162

4. Fees; Invoicing. Lexipol will invoice Agency at the commencement of the Initial Term and at the commencement of each Renewal Term. Agency agrees to remit payment within thirty (30) calendar days following receipt of Lexipol's invoice. Payments may be made electronically or by mailing a check to Lexipol at 2611 Internet Blvd, Ste. 100, Frisco, TX 7S034 (Attn: Accounts Receivable).

Lexipol reserves the right to increase fees for Renewal Terms. All fee amounts stated in Exhibit A are exclusive of taxes and similar fees now in force or enacted in the future. Agency is responsible for all third-party fees (e.g., wire fees, bank fees, credit card processing fees). Unless otherwise exempt, Agency is responsible for and will pay in full all taxes related to its receipt of Lexipol's Services, except for taxes based on Lexi pol's net income.

5. Terms of Service. The following terms and conditions govern access to and use of Lexipol's Services:

5.1 Online Services. Lexipol's Online Services include all cloud-based services offered by Lexipol and its partners, affiliates, and licensors. Online Services include, without limitation, Lexipol's Knowledge Management System ("KMS") for policy, Learning Management System ("LMS")2, GrantFinder, and Cordico wellness applications (collectively, the "Online Services"). Lexipol's Online Services are proprietary and, where applicable, protected under U.S. copyright, trademark, patent, and/or other applicable laws. By subscribing to Lexipol's Online Services, Agency receives a personal, limited, non-sublicensable and non-assignable license to access and use such Services in conformity with these Terms.

5.2 Professional Services. Lexipol's Professional Services include all Services that are not part of Lexipol's Online Services, and which require the professional expertise of Lexi pol personnel and/or contractors, including implementation support for policy manuals, technical support for online learning, accreditation consulting, grant writing and consulting3, and projects requiring regular input from Lexi pol's subject matter experts (collectively, "Professional Services"). Lexi pol shall provide all Professional Services in accordance with industry best practices.

5.3 Intellectual Property; License. Lexipol's Services and all Lexipol Content are the proprietary intellectual property of Lexipol and/or its licensors, and are protected where applicable by copyright, trademark, and patent laws. Nothing contained in this Agreement or these Terms shall be construed as conferring any right of ownership or use to Lexipol's Services or Lexipol Content.

Notwithstanding the foregoing, Agency may, in limited circumstances (e.g. creation, modification, and updating of Agency's policy manuals) create Derivative Works based on Lexipol's Content and shall retain a personal, non-commercial, non-sublicensable and non-assignable license to use such Derivative Works, including beyond the expiration or termination of this Agreement. "Derivative Works" include all work product based on or which incorporates any Lexipol Content, including any revision, modification, abridgement, condensation, expansion, compilation, or any other form in which Lexipol Content, or any portion thereof, is recast, transformed, or adapted. Agency acknowledges and agrees that Lexipol shall have no responsibility to update Lexipol Content used by Agency beyond the Term of this Agreement and shall have no liability whatsoever for Agency's creation or use of Derivative Works.

5.4 Account Security. Access to Lexipol's Services is personal and unique to Agency. Agency shall not assign or otherwise transfer any such rights to any other person or entity. Except as set forth herein, Agency remains responsible for maintaining the security and confidentiality of Agency's usernames and passwords and the security of Agency's accounts. Agency will immediately notify Lexipol if Agency becomes aware that any person or entity other than authorized Agency personnel has used Agency's account or Agency's usernames and/or passwords.

5.5 Agency Data. Lexipol will use commercially reasonable efforts to ensure the security of all Agency Data. Lexipol's Services use the Secure Socket Layer (SSL) protocol, which encrypts information as it travels between Lexipol and Agency. However, data transmission on the internet is not always 100% secure and Lexipol cannot and does not warrant that information Agency transmits to or through Lexipol or the Services is 100% secure. Lexipol's use of Agency Data is limited to providing the Services, retaining records in the regular course of business, and complying with valid legal obligations.

6. Confidentiality. During the Term of this Agreement, each party may disclose information to the other party that would be reasonably considered confidential, including Agency Data (collectively, "Confidential Information"). The receiving party will: (a) limit disclosure of any such Confidential Information to the receiving party's authorized representatives; {b) advise its personnel and agents of the confidential nature of the Confidential Information and of the obligations set forth in this Agreement; and (c) not disclose any Confidential Information to any third party unless expressly authorized by the disclosing party. A party may disclose Confidential Information pursuant to a valid governmental, judicial, or administrative order, subpoena, regulatory request, Freedom of 2 LMS Services include, but are not limited to: PoliceOne Academy, FireRescuel Academy, EMSl Academy, Correctionsl Academy, and LocalGovU. 3 Agency is responsible for submitting all information reasonably required by Lexipol's grant writing team in a timely manner and always at least five (5) days prior to each grant application submission date. Agency is responsible submissions of final grant applications by grant deadlines. Failure to timely submit required materials to Lexipol's grant writing team will result in rollover of project fees to next grant application cycle, not a refund of fees. Requests for cancellation of grant writing services which have already begun will result in a 50% fee of the total value of the service.

Copyright© Lexipol, LLC 1995-2023
Rev. 1.1.2023
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163
Information Act (FOIA) request, Public Records Act (PRA) request, or equivalent, provided that the disclosing party promptly notifies, to the extent practicable, the other party in writing prior to such disclosure so that the other party may seek to make such disclosure subject to a protective order or other appropriate remedy to preserve the confidentiality of the Confidential Information. Each party shall be responsible for any breach of this section by any of such party's personnel or agents. The parties may also disclose the fact that they are working together, including for promotional purposes, and include each other's name and logo(s) for such purposes.

7. Warranty. LEXI POL WARRANTS THAT ITS SERVICES ARE PROVIDED IN A PROFESSIONAL AND WORKMANLIKE MANNER IN

ACCORDANCE WITH PREVAILING INDUSTRY STANDARDS, THAT THEY SHALL BE FIT FOR THE PURPOSES SET FORTH HEREIN, AND THAT SUCH SERVICES SHALL NOT INFRINGE THE RIGHTS OR INTELLECTUAL PROPERTY OF THIRD PARTIES. NOTWITHSTANDING THE FOREGOING, LEXIPOL'S SERVICES ARE PROVIDED "AS-IS" AND LEXIPOL DISCLAIMS ALL OTHER WARRANTIES, WHETHER EXPRESS,

IMPLIED, STATUTORY, OR OTHERWISE, INCLUDING ALL IMPLIED WARRANTIES OF MERCHANTABILITY, AS WELL AS ALL WARRANTIES ARISING FROM COURSE OF DEALING, USAGE, OR TRADE PRACTICE.

8. Indemnification. Lexipol will indemnify, defend, and hold harmless Agency from and against any and all loss, liability, damage, claim, cost, charge, demand, fine, penalty, or expense arising directly and solely out of Lexipol's gross negligence or willful misconduct in providing Services pursuant to this Agreement. Agency shall likewise indemnify, defend, and hold Lexipol harmless from and against any and all loss, liability, damage, claim, cost, charge, demand, fine, penalty, or expense arising out of acts or omissions by Agency, Agency's personnel, or any party acting on Agency's behalf.

9. Limitation of Liability. Each party's cumulative liability resulting from any claims, demands, or actions arising out of or relating to this Agreement, the Services, or the use of any Lexipol Content shall not exceed the larger of: the aggregate amount of fees paid to Lexi pol by Agency during the twelve-month period immediately prior to the assertion of such claim, demand, or action; or $10,000.00. In no event shall either party be liable for any indirect, incidental, consequential, special, exemplary damages, or lost profits, even if such party has been advised of the possibility of such damages.

10. General Terms.

10.1 Entire Agreement. This Agreement embodies the entire agreement between the parties and supersedes all prior agreements with respect to the subject matter hereof. No representation, promise, or statement of intention has been made by either party that is not embodied herein. Terms and conditions set forth in any purchase order or other document that are inconsistent with or in addition to the terms and conditions set forth in this Agreement are rejected in their entirety and void, regardless of when received, without further action. No amendment, modification, or supplement to this Agreement shall be binding unless it is made in writing and signed by both parties.

10.2 General Interpretation. The terms of this Agreement have been chosen by the parties hereto to express their mutual intent. This Agreement shall be construed equally against each party without regard to any presumption or rule requlring construction against the party who drafted this Agreement or any portion thereof.

10.3 Invalidity of Provisions. Each provision contained in this Agreement is distinct and severable. A declaration of invalidity or unenforceability of any provision or portion thereof shall not affect the validity or enforceability of any other provision.

Should any provision or portion thereof be held to be invalid or unenforceable, the parties agree that the reviewing authority should endeavor to give effect to the parties' intention as reflected in such provision to the maximum extent possible.

10.4 Compliance; Governing Law. Each party shall maintain compliance with all applicable laws, rules, regulations, and orders relating to its obligations pursuant to this Agreement. This Agreement shall be construed in accordance with, and governed by, the laws of the state in which Agency is located, without giving effect to any choice of law doctrine that would cause the law of any other jurisdiction to apply.

10.5 Assignment. This Agreement may not be assigned by either party without the prior written consent of the other.

Notwithstanding the foregoing, this Agreement may be assumed by a party's successor in interest through merger, acquisition, or consolidation without additional notice or consent.

10.6 Waiver. Either party's failure to exercise, or delay in exercising, any right or remedy under any provision of this Agreement shall not constitute a waiver of such right or remedy.

10.7 Notices. Any notice required hereunder shall be in writing and shall be made by certified mail (postage prepaid) to known, authorized recipients at such address as each party may indicate from time to time. In addition, electronic mail (email) to established and authorized recipients is acceptable when acknowledged by the receiving party.

Copyright© Lexipol, LLC 1995-2023
Rev. 1.1.2023
3 ,-

ATTACHMENT A
164
City of Stockton
Legislation Text
File #: 23-0891, Version: 1

AUTHORIZE THE CITY MANAGER TO EXECUTE A CONTRACT WITH LAW ENFORCEMENT PSYCHOLOGICAL SERVICES, INC. TO PROVIDE PRE-EMPLOYMENT PSYCHOLOGICAL

EVALUATION SERVICES

RECOMMENDATION
It is recommended that the City Council approve a motion authorizing the City Manager to:

1. Execute a five (5) year contract with Law Enforcement Psychological Services, Inc. to provide pre-employment psychological testing for police and fire department candidates.

2. Approve exception to the competitive bidding process pursuant to Stockton Municipal Code section 3.68.070.

3. Authorize the City Manager to take appropriate and necessary actions to carry out the purpose and intent of this motion.

Summary
The City’s existing contract for pre-employment psychological evaluation services expires on January 23, 2024. The City issued an RFP on May 24, 2023, and the City received three proposals. An RFP Selection Committee comprised of management representatives from Police and Fire ranked proposals based on each organization’s response to the scope of work, experience providing psychological services, qualifications of staff, and cost. Based on that evaluation, Law Enforcement Psychological Services, Inc. (LEPS) was identified as the best available vendor to provide these necessary services.

DISCUSSION
Background
The Civil Service Rules and Regulations for Police and Fire employees provide for completion of background investigations, which shall include a psychological evaluation. In addition, POST mandates psychological evaluations as part of their minimum selection standards for California peace officers.

Present Situation
LEPS was selected by the RFP Selection Committee because they are able to meet the increased workload due to COVID-inspired changes by providing remote testing and assigning additional psychologists to interview applicants, which will result in timely and adequate responsiveness to Departments.

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LEPS’ Psychologists are regularly trained on the latest psychological assessment techniques and tools. They have a minimum of five years postgraduate experience with psychological testing and evaluation of applicants for public safety positions, including police officer, firefighter, public safety dispatcher, and civilian public safety classifications. In addition, each psychologist has extensive practical experience conducting psychological screenings for local and national safety departments.

LEPS services provide administration and evaluation of written and personal history psychological test instruments; conducting in-person interviews with candidates; formulating and making timely recommendations of candidate psychological fitness; and the confidential, secure maintenance of related data and files.

Findings
Stockton Municipal Code, section 3.68.070, provides an exception to the competitive bidding process in cases where the City Council has approved findings which support and justify this action.

Findings to justify an exception to the competitive bidding process are as follows:

1. On May 24, 2023, the City advertised a Request for Proposal (RFP) seeking a vendor to provide psychological evaluation services, which includes conducting psychological screening for pre-employment assessment for Police and Fire applications.

2. LEPS received the highest ranking based on the proposal criteria and was determined to be the most qualified agency.

3. This is a negotiated contract following solicitation of a competitive proposal in accordance with SMC section 3.68.070.A.3.

Based on these findings, an exception to the competitive bidding process is justified for an award of contract for these services.

FINANCIAL SUMMARY
The total cost of the contract will not exceed $427,000. · $205,000 for January 24, 2024 to June 30, 2026 - $475 per individual evaluation · $86,000 for July 1, 2026 to June 30, 2027 - $500 per individual evaluation · $136,000 for July 1, 2027, to January 23, 2029 - $525 per individual evaluation There are sufficient funds available in General Fund (account number 2540-000-630005-100-000-10- 25-000-000-) to continue providing psychological evaluation services during the remainder of Fiscal Year 2023-24. Costs for the subsequent years will be budgeted in the same account and subject to Council approval during the annual budget development budget process.

Attachment A - Proposed Contract with LEPS
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City of Stockton
Legislation Text
File #: 23-1075, Version: 1
ACCEPT THE FINAL 2022-23 SAN JOAQUIN COUNTY CIVIL GRAND JURY REPORT AND APPROVE THE CITY OF STOCKTON RESPONSE CASE NO. 0322 SCHOOL SAFETY IN SAN JOAQUIN COUNTY: DEVELOPING A CULTURE OF SAFETY

RECOMMENDATION
It is recommended that the City Council accept the final 2022-23 San Joaquin County Civil Grand Jury Report and approve by motion the City’s response to theSchool Safety in San Joaquin County:

Developing a Culture of Safety investigation (Case No. 0322).

Summary
Each year it is the duty of the San Joaquin Civil Grand Jury to examine and investigate the activities of local government and agencies within San Joaquin County. The 2022-2023 Civil Grand Jury conducted four new investigations, one being on school safety in San Joaquin County. The Grand Jury also conducted follow-up work on six previous investigations performed in prior years. The final consolidated report has been provided as Attachment A.

As it relates to the investigation titled School Safety in San Joaquin County: Developing a Culture of Safety, the Grand Jury issued findings and provided a recommendation that requires response from the City of Stockton.

DISCUSSION
Background
California Penal Code 933 requires that “a grand jury shall provide to the affected agency a copy of the portion of the grand jury report relating to that person or entity […]” and “no later than 90 days after the grand jury submits a final report on the operations of any public agency subject to its reviewing authority, the governing body of the public agency shall comment to the presiding judge of the superior court on the findings and recommendations pertaining to matters under control of the governing body […].”
The four new investigations conducted by the 2022-23 Grand Jury are:
· San Joaquin County Custodial Facilities: Failing to Comply with the Prison Rape Elimination Act of 2003 - Case No. 0222
· School Safety in San Joaquin County: Developing a Culture of Safety - Case No. 0322 · Good Intentions Are Failing San Joaquin County’s At-Risk Children - Case No. 0422 · The Eastern San Joaquin Groundwater Authority: A Rubrik’s Cube of Water Management - Case No. 0622
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File #: 23-1075, Version: 1
The 2022-23 Grand Jury also conducted follow-up work on six previous investigations:
· Illegal Dumping: Talking Trash - Case No. 0519
· San Joaquin County: A Fragmented COVID-19 Response - Case No. 0120 · Independent Special Districts:” Transparency “Not Found” - Case No. 0220 · Stockton Unified School District: A Failing Grade in Public Trust - Case No. 0121 · San Joaquin County and Its Seven Cities: Cybersecurity: Local Defense Against a Global Threat - Case No. 0321
· Lathrop-Manteca Fire District: A Work in Progress: From Turmoil to Healing - Case No. 0721 Of the work completed by the 2022-23 Grand Jury, the City of Stockton was only required to respond to one investigation, the new item on School Safety in San Joaquin County.

Present Situation
City staff received the 2022-23 San Joaquin County Grand Jury Investigation Case No. 0322, School Safety in San Joaquin County: Developing A Culture Of Safety report in June 2023. The Grand Jury, through its issued recommendations, requested that by December 15, 2023, each law enforcement agency in San Joaquin County meaningfully collaborate and approve updated Comprehensive School Safety Plans (CSSP) for school sites within its jurisdiction.

The Stockton Police Department has communicated and collaborated with school districts within the City of Stockton under the purview of the Stockton Police Department, and not under the jurisdiction of the Stockton Unified School District’s Police Department. This communication identified and confirmed the Stockton Police Department contact for CSSP review and emergency preparedness training the department offers. It is the duty of the school districts and school sites to contact local law enforcement agencies to request a review of their respective CSSP and required training.

A copy of the Stockton Police Department’s response to the 2022-23 Grand Jury InvestigationSchool Safety in San Joaquin County: Developing a Culture of Safety has been included as Attachment B.

FINANCIAL SUMMARY
Accepting the 2022-23 Grand Jury Final Report and approving the SPD’s response to Case No. 0322 will not impact the City’s General or Special Funds in any way.

Attachment A - 2022-23 San Joaquin County Grand Jury Final Report Attachment B - Stockton Police Department Response Letter, Case No. 0322 City of Stockton Printed on 11/30/2023Page 2 of 2
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1 TABLE OF CONTENTS
Sec�on 1: Introduc�on ...................................... Page 3 Sec�on 2: Inves�ga�ons .................................. Page 11 Sec�on 3: Law and Jus�ce ............................. Page 113 Sec�on 4: Follow-up ...................................... Page 153 Sec�on 5: Presenta�ons and Tours ............... Page 227 Sec�on 6: Grand Jury Process........................ Page 233

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2 ATTACHMENT A
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3 SECTION 1:

INTRODUCTION
Leter from Hon. George J. Abdallah, Jr. ............ Page 5

Leter from Grand Jury Foreperson ................... Page 7

2022–2023 Grand Jurors ................................... Page 9

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4 ATTACHMENT A
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June 9, 2023
Superior Court of California, County of San Joaquin
180 E. Weber Avenue, Ste 13061
Stockton, CA 95202
Telephone: (209) 992-5695
The Superior Court of California, County of San Joaquin thanks and commends the 2022-2023 Grand Jurors for their conscientious efforts on behalf of all San Joaquin County citizens. The Grand Jurors undertook and completed their duties with great industry, intelligence and care.

The Grand Jury is composed of qualified individuals who applied for membership, those drawn from the community and individuals nominated by community leaders. The chosen citizens serve as an independent body under the court's authority. The 2022-2023 San Joaquin County Grand Jury now takes its place in a long history of citizen involvement in civic life which was born in the English Common Law of 1166, adopted during the American Colonial period and codified in California in the 1880s. The 2022-2023 Grand Jurors' thoughtful and constructive recommendations will help ensure the highest quality civic life to which all citizens are entitled.

As the Grand Jury Advisor and Supervisor, it has been my privilege to review the work of the 2022-2023 Grand Jury. The Grand Jurors also received well considered advice from their highly experienced Advisors, County Counsel Ms. Kimberly Johnson, the Assistant District Attorney Mr. Richard Price and the invaluable assistance of the Superior Court administrators, Ms. Ruby Atwal, Ms. Krystal Gonzalez, Mr. Irving Jimenez, and Ms. Trisa Martinez. Among their accomplishments, the Grand Jurors undertook consideration of the work of governmental institutions responsible for the daily life of municipalities and their citizens. The Grand Jurors also made careful efforts to follow through on the work of their predecessors thereby assuring the community that the San Joaquin County Grand Jury as an institution sustains its role in the County's civic life. The Grand Jury Final Report educates the public through well written accounts of the work, findings and recommendations of these devoted citizens. The Grand Jurors' recommendations are deserving of careful consideration by government officials and the citizenry.

The efforts, commitment, collective wisdom and experience of these dedicated individuals will continue to better the civic life of all San Joaquin County residents. To each member of the 2022-2023 San Joaquin County Grand Jury, for your many accomplishments, the Superior Court extends its congratulations and gratitude.
/�a�
I
·Hon.George J. Abdallah, Jr.

Supervising Judge of the San Joaquin County Grand Juries 5 ATTACHMENT A
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6 ATTACHMENT A
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Grand Jury
County of San Joaquin
180 E. Weber Avenue, Suite 1114
Stockton, CA 95202
Telephone: 209-468-3855
Jun
e 28, 2023
Honor
able Michael D. Coughlan Honorable George J. Abdallah, Jr.

Presiding Judge Judge of the Superior Court and
Superior Court of California Judge Advisor to the Grand Juries County of San Joaquin County of San Joaquin
180 E. Weber Avenue, Suite 1306J 180 E. Weber Avenue, Suite 1306J Stockton, CA 95202 Stockton, CA 95202
Dear J
udge Coughlan and Judge Abdallah,
On b
ehalf of the San Joaquin County Civil Grand Jury, I am honored to present to you and the ci�zens of San Joaquin County the Final Report for 2022-2023.

This report presents the results of the work of the Grand Jury over the last twelve months. The Jury was able to consider 39 complaints, conduct over 100 interviews, examine many documents, atend public mee�ngs, and spend untold hours mee�ng, wri�ng, and edi�ng.

To appraise local government's efficiency, honesty, and transparency, it was necessary for the body to perform consistently and conscien�ously. The Grand Jury opened 6 cases, four of which resulted in completed inves�ga�ons focusing on important topics, i.e., School Safety, At Risk Youth, Prison Rape Elimina�on compliance and the Eastern San Joaquin Ground Water Authority. Taken together, they contain 72 findings leading to 69 recommenda�ons. 7 ATTACHMENT A
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In addi�on to the completed inves�ga�ons, the Grand Jury Con�nuity Commitee issued 6 follow-up reports a�er interviewing many individuals and examining hundreds of documents.

The result of this commitee's work ensures that th e residents of San Joaquin County will know whether those government agencies did what they said they would do. Many agencies agreed with the Grand Jury Findings and Recommenda�ons and moved forward to implement those recommenda�ons. Unfortunately, one agency that has been the focus of previous Grand Jury inves�ga�ons was reluctant to embrace many of the findings and recommenda�ons.

The Grand Jury fulfilled its mandate to inspect all prisons, jails, and juvenile deten�on facili�es.

This year, a focus on whether these facili�es complied with the Prison Rape Elimina�o n Act (PREA) resulted in several findings and recommenda�ons to assist the deten�on facili�es in c
omplying with the Federal Mandate. Grand Jur ors also observed the work of public servants throughout the county by riding along with law enforcement personnel and issued a comprehensive Law and Jus�ce Report.

While comple�ng its du�es, the Grand Jury interacted with many people throughout the county.

All were coopera�ve, and the Jury wishes to thank them. As always, the advisors were indispensable to this year's efforts. Judge George Abdallah, Assistant District Atorney's Scot Fichtner, Rick Price, County Counsel's Mark Myles, and Kimberly Johnson were always available to provide sound advice. For the first six months of our term Trisa Mar�nez, Judicial Secretary supp
orted the Jury with hard work and shared her vast knowledge of G rand Jury proceedings.

We acknowledge this work and wish her the bes t in her well-earned re�rement. With Ms.

Mar�nez's
re�rement, we enjoyed working with new Judicial Secretaries Ruby Atwal, Krystal Gonzales, and Irving Jimenez.

Richly deserving in saluta�ons are the jurors, who I had the pleasure of spending many days per week on the 11th floor of the courthouse. I wish to thank each of them for bringing their individuality, collegiality , and passion that has culminated in the publishing of this report.

Lastly, thank yo u f or the opportunity to lead this year's Grand Jury. It was a memorable experience.

Sincerely,
Louis K. Meyer
Louis K. Meyer, Foreperson
2022-2023 San Joaquin County Grand Ju ry
8 ATTACHMENT A
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9 Back row from le� to right: John Kimbrough, Tama Brisbane, Lou Meyer, Spence Barker, Darrin Haggard, Katherine Ball, Jody Graham.

Front row from le� to right: Bill Jeffery, Angelo Sebazco, Patrick Piggot, Katherine Johnson, Don McNichols, Daryl Morrison, Janine Nelson, Bruce Frank.

Not pictured: Reed Niemi, Richard Rodriguez.

The 2022–2023 Grand Jury is representa�ve of all five San Joaquin County Supervisorial Districts. The jurors brought to the jury a wide range of exper�se from both private sector enterprises and governmental service. Areas of exper�se include but are not limited to:

Business owner Medical care
Educa�on Military service
Financial accoun�ng, analysis, audi�ng,
budge�ng, and management
Non-profit sector
Graphic arts Sales and marke�ng
Human resources State government law enforcement
Leadership training and consul�ng for local
governments
Strategic planning
Legal profession Technical publica�ons

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11 SECTION 2:

INVESTIGATIONS
San Joaquin County Custodial Facili�es:

Failing to Comply with the Prison Rape
Elimina�on Act of 2003
Case #0222 ...................................................... Page 13 School Safety in San Joaquin County:

Developing a Culture of Safety
Case #0322 ...................................................... Page 27 Good Inten�ons Are Failing San Joaquin
County's At-Risk Children
Case #0422 ...................................................... Page 53 The Eastern San Joaquin Groundwater Authority:

A Rubik’s Cube of Water Management
Case #0622 ...................................................... Page 75

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13 2022–2023 San Joaquin County Grand Jury

San Joaquin County Custodial Facilities:

Failing to Comply with the Prison Rape Elimination Act of 2003 Case #0222
Summary
The 2022-2023 Grand Jury investigated the policies, procedures, and standards established and applicable to San Joaquin County custodial facilities to combat sexual harassment, sexual abuse, and physical abuse against and by those in custody. The Grand Jury toured the San Joaquin County Sheriff’s Detention Facility, the Juvenile Detention Facility, and the Lodi Police Department Jail to determine if federally mandated standards are being met. They reviewed numerous documents, video files, and regulations. They also conducted five separate interviews.

The focus of the investigation was to assess the County custodial facilities’ compliance with the Code of Federal Regulations (28 CFR Part 115) under the Prison Rape Elimination Act of 2003 (PREA). Failure to meet these standards can result in serious consequences for detainees, inmates, and residents, and an inability to protect vulnerable individuals housed at the County custodial facilities. This obligation to protect is ethically correct and required by law. Additionally, failure to prepare required audits for the Department of Justice can result in loss of federal grant funds.

The County paid out more than $240,000.00 over the past five years to settle sexual and physical abuse claims. That sum does not include the many work hours paid out for government employee time while either investigating, prosecuting, or defending these instances. San Joaquin County custodial facilities may also face indirect costs, such as increased insurance premiums, outside legal fees, and the cost of retraining and educating facility staff.

The Grand Jury found that the custodial facilities in the County did not have comprehensive knowledge of all PREA provisions
and were not in compliance. The findings from the investigation

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14 and recommendations for corrective actions are provided in this report. The 2022-2023 Grand Jury recommends:
• audit reports for the County Jail and Juvenile Detention Facility be completed by a Certified PREA Auditor and submitted to the Department of Justice every three years as required by PREA Standards;
• all County custodial facilities provide detainees, inmates, and juvenile residents with access to better written and comprehensive PREA materials; • detainees, inmates, and juvenile residents at County custodial facilities be provided with all of the required PREA information during the screening and intake process and then again during subsequent PREA training;
• detainees, inmates, and juvenile residents be given information on how to file a confidential report in private with an outside agency or entity; • complete the installation of video monitoring equipment to enable video coverage for all interactions between staff and inmates, eliminate blind spots, and add video capabilities in interrogation rooms at the County Jail; and • provide a written policy and procedure describing how juvenile residents (under the age of 18) and older residents (who are 18-25 years of age) housed at the County Juvenile Detention Facility maintain separation when required.

Glossary
• Booking: is the process in which a detainee is brought into a prison or jail facility including the screening of that individual.
• CDCR: The California Department of Corrections and Rehabilitation is a state agency of California responsible for overseeing the state's prison and parole systems. • Certified PREA Auditor: is certified by United States Department of Justice to conduct mandated PREA audits at detention facilities.
• CFR: Code of Federal Regulations is the codification of the general and permanent rules published in the Federal Register by the executive departments and agencies of the Federal Government.
• 28 CFR 115.13(a) and 28 CFR 115.313(a) for Juveniles: states the agency shall, where applicable, provide video monitoring to protect inmates, detainees, and residents against sexual abuse. In deciding the need for video monitoring, facilities must take into account “blind spots’’ or areas where staff or inmates may be isolated. • 28 CFR 115.31(a) and 28 CFR 115.331(a) for Juveniles: PREA training is mandatory for all employees of detention facilities and organizations that are subject to the Prison Rape Elimination Act (PREA). This training is intended to educate staff on their responsibilities under PREA, as well as best practices for preventing, detecting, and responding to incidents of sexual abuse and harassment.
• 28 CFR 115.33(b) and 28 CFR 115.333(a) for Juveniles: requires comprehensive education to inmates, detainees, and residents in person or via video regarding their rights to report sexual abuse and harassment and to be free from retaliation.

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15 • 28 CFR 115.33(e) and 28 CFR 115.333(e) for Juveniles: requires documentation of inmate, detainee, and resident participation in these education sessions. • 28 CFR 115.33(f) and 28 CFR 115.333(f) for Juveniles: requires key information regarding filing claims and the process is continuously and readily available or visible to inmates, detainees, and residents.
• 28 CFR 115.401: requires a comprehensive agency audit at least every three years and said audit to be conducted by a Department of Justice approved outside auditor, covering every aspect of PREA.
• 28 CFR 115.41(a) and 28 CFR 115.341(a) for Juveniles: requires that all inmates shall be assessed during an intake screening and upon transfer to another facility for their risk of being sexually abused by other inmates or sexually abusive toward other inmates, detainees, and residents.
• 28 CFR 115.41(b) and 28 CFR 115.341(b) for Juveniles: requires that intake screening shall ordinarily take place within 72 hours of arrival at the facility. • 28 CFR 115.41(e) and 28 CFR 115.341(e) for Juveniles: states that the initial screening shall consider prior acts of sexual abuse, prior convictions for violent offenses, and history of prior institutional violence or sexual abuse, as known to the agency, in assessing inmates, detainees and residents for risk of being sexually abusive.
• 28 CFR 115.51(a) and 28 CFR 115.351(a) for Juveniles: requires agencies to provide multiple internal ways to privately report sexual abuse and sexual harassment. • 28 CFR 115.51(b) and 28 CFR 115.351(b) for Juveniles: requires agencies to provide at least one way to report abuse or harassment to a private entity that is not part of the agency. • 28 CFR 115.54 and 28 CFR 115.354 for Juveniles: requires that the agency shall establish a method to receive third-party reports of sexual abuse and sexual harassment and shall distribute publicly information on how to report sexual abuse and sexual harassment on behalf of an inmate.
• Detainee: a person who is detained in a lockup, regardless of adjudication status.

DOJ: The United States Department of Justice is an executive Judicial Department branch of the United States Government.
• Incarcerated: refers to an individual who is currently being confined or imprisoned in a facility or location as a result of criminal charges or convictions and is synonymous with inmate. • Inmate: is a person who is incarcerated and housed in a prison or jail. • Intake: the area in the jail or prison where a detainee is processed into the custodial facility through the booking process.
• Juvenile Justice Realignment (SB823): refers to the California Senate Bill that was introduced in 2021. The bill aims to reform the state's juvenile justice system by realigning responsibility for the supervision and treatment of youth offenders from the state level to the county level. • Lockup: is a temporary detention facility.
• PREA Coordinator: is a person responsible for overseeing the implementation and compliance of the Prison Rape Elimination Act (PREA) in a detention facility or a third party organization.

The PREA coordinator is responsible for ensuring that the facility has policies and procedures in place to prevent, detect, and respond to incidents of sexual abuse and harassment, and for ensuring that staff receive training on PREA and related topics.

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16 • Prison Rape Elimination Act of 2003 (Public Law 108-79): is the first United States federal law intended to deter the sexual assault of prisoners. The bill was signed into law on September 4, 2003, enacted by the 108th United States Congress.
• Resident: any person confined or detained in a juvenile facility or in a community confinement facility.
• TTY: a teletypewriter is an input device that allows alphanumeric character to be typed in and sent, usually one at a time, as they are typed to a computer or a printer.

Background
In 2003, the Congress and President Bush recognized a serious issue involving sexual abuse and harassment of incarcerated individuals and passed the Prison Rape Elimination Act (PREA) to establish standards for policies and procedures of every government entity, Federal, State, and local, housing incarcerated individuals. The standards established by the U.S. Department of Justice were first published in the Code of Federal Regulations, 28 CFR part 115, in 2012. There are two sets of Standards that the Grand Jury reviewed, one for adult detention facilities and one for juvenile detention facilities.

Misuse of police authority during an arrest or in a custodial facility has been prominent in the news.

In 2019, a San Joaquin County Sheriff’s Deputy Correctional Officer pleaded guilty to sexual assault of a female inmate. One case involved a juvenile victim of repeated sexual assault in a juvenile detention facility over a six-month period. In September 2021, a San Joaquin County Correctional Officer was found guilty of sexually assaulting multiple victims. In December 2021, a criminal grand jury indicted a San Joaquin County Correctional Officer for sexual assault crimes and false imprisonment. In October 2022, a Stockton Police Officer was suspended, case pending, after three accusations of sexual harassment and abuse while on duty.

PREA is an important part of the detention system for several reasons:
• It seeks to protect the rights and safety of individuals in detention, particularly those who may be at a higher risk of sexual abuse.
• It seeks to improve the quality of life for individuals in detention and to promote the rehabilitation and reintegration of individuals back into their communities. • It seeks to ensure that detention facilities meet national standards and provide a safe environment for staff and inmates.
• It seeks to provide resources and support for victims of sexual abuse while in detention. • It promotes a culture of zero tolerance for sexual abuse in detention facilities and holds facilities accountable for preventing, detecting, and responding to abuse.

When PREA is implemented properly it helps to create a safe and secure detention system by addressing the issue of sexual abuse in detention facilities and protecting the rights and safety of individuals.

At the time of booking, all inmates, detainees, and residents must receive information explaining the facility’s zero-tolerance policy and instructions on how to report sexual assault and misconduct.

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17 Information and avenues for reporting must be readily available and visible to inmates, detainees and residents through posters, inmate handbooks, or other written formats [28 CFR 115.33(a)(f) and 28 CFR 115.333(a)(f) for juveniles]. The facility shall provide multiple internal ways for inmates, detainees, and juvenile residents to privately report sexual abuse and sexual harassment.

Additionally, the facility shall provide at least one avenue to report to an outside agency, to protect anonymity and confidentiality [28 CFR 115.51(a)/28 CFR 115.51(b) and 28 CFR 115.351(a) /28 CFR 115.351(b) for juveniles]. Incidents reported to an external agency must be transferred to the facility where the incident occurred no later than 72 hours after the outside agent receives the allegation. Upon receipt of an allegation from an external reporting agent, the custodial facility staff must document the incident, investigate, and notify the facility (28 CFR 115.63 and 28 CFR115.363 for juveniles).

All inmates and juvenile residents must receive comprehensive education within 30 days of booking, either in person or by video, explaining their rights to report sexual abuse and harassment without fear of retaliation. [28 CFR 115.33(e) and 28 CFR 115.333(e) for juveniles]. Each inmate’s participation must be documented.

Another key element performed at booking is the screening process that identifies those inmates, detainees, and juvenile residents at risk of being sexually victimized and those who may be sexually abusive. This screening process should occur within 72 hours of booking and in a setting that ensures confidentiality. Items covered in screening should include prior acts of violence and sexual abuse [28 CFR 115.41(a)(b)(e) and 28 CFR 115.341(a)(b)(e) for juveniles].

Custodial facilities that house inmates, detainees, or juvenile residents should have video monitoring, where applicable, of communal areas to protect inmates against sexual abuse. It must cover areas in which staff and inmates or juvenile residents at the Juvenile Detention Facility are isolated. [28 CFR 115.13(a) and 28 CFR 115.313(a) for juveniles].

A Department of Justice (DOJ) certified auditor is required to perform a comprehensive audit covering every aspect of PREA every three years with the audit reports posted on each department’s website (28 CFR 115.401).

There are considerable consequences for the failure to comply with PREA regulations, including the potential loss of DOJ grant funding otherwise available for correctional and custodial facilities.

Reason for Investigation
The 2022-2023 Grand Jury reviewed multiple media reports of sexual abuse that occurred in San Joaquin County custodial facilities over the past three years. They also reviewed complaints stemming from allegations of sexual and physical abuse occurring within those County detention facilities.

Method of Investigation
The Grand Jury reviewed Federal documentation for PREA, media reports, San Joaquin County custodial facility websites, and detainee/resident complaints. The Grand Jury toured the County

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18 Jail and Juvenile Detention Facility with corrections officers and juvenile detention facility officers.

The Grand Jury also attended and received presentations from the County Sheriff’s Office and the County Probation Office. Subsequently, five interviews were conducted.

Materials Reviewed
• ABC10 News, May 12, 2022, “San Joaquin County Sheriff Office Installing More Cameras in Jail in 2022.”
• Title 15 California Code of Regulations, Minimum Standards for Detention Facilities. • Annual PREA Audit reports of surrounding counties.
• Booking Medical Screen Questionnaires for Juvenile Detention and for the San Joaquin County Jail.
• Docket No. OAG-131: PREA Standards: Comments from Youth Advocates on Minimum Staffing Ratios at Juvenile Detention Facilities.
• Five-year history of inmate claims at the San Joaquin County Jail. • Incident reports San Joaquin County Jail and Probation Department for Juvenile Detention. • Inmate Grievances-SJC Jail and SJC Juvenile Detention Facility. • Inmate Orientation and Rule Books.
• KCRA3 News, September 30, 2021, “Former San Joaquin County Correction Officer Found Guilty of Raping Inmates.”
• 28 Code of Federal Regulations 115, Docket No. OAG-131, Rin 1105-AB34. • Policies and Procedures Manual for the San Joaquin County Sheriff’s Office Custody Division including section 3.1.16. Sexual Misconduct (PREA).
• Prison Rape Elimination Act-Juvenile Facility Standards (DOJ) 28 CFR Parts 115 (28 CFR115.311 through 28 CFR 115.393 pertain to juvenile standards).
• Prison Rape Elimination Act-Prisons and Jail Standards (DOJ) 28 CFR Parts 115 (28 CFR 115.11 through 28 CFR 115.501).
• San Joaquin County Probation Department: Juvenile Detention Policy and Procedure Manual. • Video surveillance recordings of the booking process. • Youth Handbook for Juvenile Detention.

Websites Visited
• Alameda County Sheriff’s Office. Accessed January 22, 2023, https://www.alamedacountysheriff.org
• Bureau of Justice Statistics. Accessed January 27, 2023, https://bjs.ojp.gov/programs/national- prisoner-statistics#:~:text=National%20Prisoner%20Statistics%20Program%20Produces%20 annual%20national-
• California Department of Corrections and Rehabilitation. Prison Rape Elimination Act. Accessed December 21, 2022, http://www.cdcr.ca.gov/prea
• California Division of Juvenile Justice - (DJJ). Accessed February 2, 2023, https://www.cdcr.ca.gov/juvenile-justice
• Contra Costa County Office of the Sheriff. Accessed October 6, 2022, https://www.cocosheriff.org
• Fresno County Sheriff’s Office. Accessed November 9, 2022, https://www.fresnosheriff.org.

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19 • Kern County Sheriff’s Office. Accessed November 9, 2022, https://www.kernsheriff.org • PREA Audit Process and Appeals. PREA Auditors of America. Accessed February 8, 2023, from https://preaauditing.com/prea-audit-process-and-appeals/ • PREA Resources. Accessed February 8, 2023, https://www.prearesourcecenter.org/ • Sacramento County Sheriff’s Office. Accessed September 18, 2022, https://www.sacsheriff.com • San Joaquin County Jail Officer indicted by grand jury for sexual assault crimes. The Stockton Record. Accessed Feb. 8, 2023, https://www.recordnet.com/story/news/local/2021/12/04/sj- county-jail-officer-indicted-grand-jury-sexual-assault-crimes/8859662002 • San Joaquin County Sheriff’s Office. Accessed January 24, 2022, https://www.sjsheriff.org/prea • SJ jail Officer arrested, 3 Sheriff’s Office staffers on leave after drug, weapons probe. Accessed February 8, 2023. https://stocktonia.org/2023/02/06/sj-jail-officer-arrested-3-sheriffs-office- staffers-on-leave-after-drug-weapons-probe/r-drug-weapons-probe/ • Sonoma County Sheriff’s Office. Accessed September 6, 2022, https://www.sonomasheriff.org • Stanislaus County Sheriff’s Department. Accessed September 6,2022, https://www.scsdonline.com
• The Marshall Project. Accessed February 8, 2023, https://www.themarshallproject.org/ • Third sexual misconduct complaint filed against Stockton police officer. The Stockton Record.

Accessed February 8, 2023, https://www.recordnet.com/story/news/2022/06/29/third-accuses- stockton-pd-officer-nicholas-bloed-sexual-misconduct/7774014001/ Facilities Visited
• San Joaquin County Jail
• San Joaquin County Juvenile Detention Facility
• City of Lodi Jail
Discussions, Findings, and Recommendations

1.0 San Joaquin County Jail: PREA Compliance Deficiencies PREA standards mandate that an audit conducted by a certified Department of Justice auditor is performed every three years. The San Joaquin County Sheriff’s Office has never had an audit completed since PREA standards were published and adopted in 2012 (28 CFR 115.401). An audit would establish whether agency-wide policies and procedures comply with relevant PREA standards. The audits are required to be public and available on the Sheriff’s website, to ensure transparency and inform the public (28 CFR 115.403F).

The San Joaquin County Sheriff’s Office is required by PREA to provide written materials and ensure that posters are visible that explain inmate rights and the zero-tolerance policy regarding sexual abuse or sexual harassment and how to report it. After touring the San Joaquin County Jail, the Grand Jury examined printed materials and the jail facility fails to provide adequate notices to inmates as required by PREA. There are only a few printed Inmate Orientation and Rule Books available to inmates, and the current handbook is vague. It offers a simple statement that if abused to report it to staff. There is no guidance on how to avoid or be protected from retaliation or how to make a confidential report.

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20 PREA requires multiple internal means for inmates to privately report sex abuse and harassment.

One of these reporting options must be to a public entity or private office that is not part of the agency and enables the inmate’s report to remain confidential. The jail handbook only provides the phone number to a designated Sheriff’s phone and explains that the reporting to that phone number and extension is confidential. However, this method for reporting may not ensure privacy or confidentiality. An agency must have a method to receive third party reports of sexual abuse and sexual harassment and is required to publish and distribute information on how to report such a claim on behalf of an inmate. The San Joaquin County Sheriff’s Office does not publish or distribute such information.

PREA requires education materials be understandable to all inmates, including those with limited English or reading skills, as well as those who are deaf or visually impaired. The Grand Jury saw no materials in languages other than English. Written material should be available in large font and basic language, and in languages common to the general population. National language lines, TTY (text telephones), video phones, Braille transcription, and American Sign Language interpreters are additional resources. Posting information on small kiosk screens in the housing units is problematic because they are not always available and language issues remain. The problem of reading and language skills has not been adequately addressed. Medical and Mental Health staff are another resource to work with developmentally delayed inmates.

PREA requires a medical screening tool be used during booking to uncover key information that will help determine appropriate housing units. The tool should be designed to keep inmates at risk of victimization away from potential abusers. The Grand Jury requested the medical screening questionnaire to confirm PREA compliance but did not receive it.

PREA states that all agencies shall provide, where applicable, video surveillance to protect inmates against sexual abuse. The surveillance video recording is a deterrent and can be used as evidentiary documents. The jail booking and other areas are equipped with surveillance cameras, but the coverage area has blind spots. The San Joaquin County Sheriff’s Office is installing more than 100 additional cameras throughout the jail to increase coverage within the facility in case there is conflict between staff and inmates. The Sheriff’s Office stated that camera installation has been delayed until July of 2023 due to supply chain issues. The Sheriff’s Office purchased 350 body cameras in 2022 that are now in use by the Department and at the jail.

Findings
F1.1 The San Joaquin County Sheriff’s Office has failed to ensure that a mandated PREA audit (28 CFR 115.401) by a Department of Justice certified auditor has ever been done where one is required to be completed every three years. Failure to complete audits by a Department of Justice certified auditor diminishes transparency, could put inmates and detainees at risk, and could erode public trust.

F1.2 The San Joaquin County Sheriff’s Office is not in compliance with 28 CFR 115.33(f), which requires them to provide adequate written materials and visible posters that explain inmate rights and the Sheriff’s zero-tolerance policy regarding sexual abuse or sexual harassment. This could

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21 result in delays in reporting and investigating, thereby exposing the Office to potential lawsuits, financial liability, and reduction in Federal grant funding.

F1.3 The San Joaquin County Sheriff’s Office does not provide adequate means to report sexual abuse or harassment confidentially and privately to an independent public or private entity as required under 28 CFR 115.51 which is a violation of PREA standards and could result in a reduction of Federal grant funding.

F1.4 There is no video or audio recording equipment in interrogation rooms. There should be no area in the jail, absent issues of mandated privacy, where an inmate could be with officers in secluded settings. A potential claim of sexual or physical abuse without providing visual evidence also means the Sheriff’s department would be unable to effectively defend such a claim.

Recommendations
R1.1 By July 1, 2023, The San Joaquin County Sheriff schedule an independent audit by a Department of Justice certified Auditor in accordance with 28 CFR 115.401(a) and post the audit report on the agency’s website within 30 days of completion.

R1.2 By October 1, 2023, the San Joaquin County Sheriff develop and provide adequate written materials and visible posters that explain inmates’ rights and the Sheriff’s zero-tolerance policy meeting the requirements of PREA.

R1.3 By October 1, 2023, the San Joaquin County Sheriff develop and implement a process for inmates to confidentially report allegations of abuse or harassment to an independent public or private entity as required under 28 CFR 115.54.

R1.4 By October 1, 2023, San Joaquin County Sheriff in conjunction with the County Information Systems Department install video surveillance equipment in the interrogation rooms to ensure the capability of providing visual evidence in the event of a complaint filed by a detainee or inmate.

2.0 San Joaquin County Juvenile Detention Facility: Lacking Full PREA Compliance The Juvenile Detention Facility, also known as Juvenile Hall, is under the jurisdiction of the San Joaquin County Probation department. It houses juvenile residents under the juvenile classification of those under the age of 18. With the implementation of the Department of Juvenile Justice Realignment under California SB823, there are now older residents ages 18-25 housed in the same facility.

PREA standards are applicable to both juvenile and adult facilities pursuant to 28 CFR 115.401(b).

Procedures to comply with PREA standards at juvenile facilities must be reviewed and updated annually. The last update for the San Joaquin County Probation Department Juvenile Detention Policy and Procedure Manual occurred in 2019. That update failed to capture the extensive changes in PREA rules that have occurred since then because they were prior to SB823 under Juvenile Justice Realignment. The PREA standards require that direct employees and contracted

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22 third party employees are trained when hired and then complete training every two years thereafter.

PREA originally was clear that older residents could not be housed with juvenile residents. With the new procedures under the Department of Juvenile Justice realignment in California, adults between the ages of 18 and 25 are now considered older residents and may be housed with juvenile residents at the SJC Juvenile Detention Facility. PREA prohibits older residents and juvenile residents from sharing overnight housing but can be together and intermingle for classes and other joint events. PREA standards including staffing ratios for juvenile facilities where adult and juvenile residents are housed in the same juvenile facility are 1:8 during waking hours and 1:16 during sleeping hours under 28 CFR 115.14(c). Procedures must explain how that separation is to be maintained and that all steps are taken to assure juvenile resident protection from unsupervised adults and older residents.

One purpose of PREA is to assure easy reporting, how to do it, how to protect from retaliation, while providing easy access to a completely confidential reporting office outside the Probation Department. Juvenile Probation offers all juvenile residents a call to the Women’s Center Sexual Assault Crisis Line to make a claim but there is no procedure or protocol how that confidential message will reach an individual with the authority to investigate and maintain confidentiality.

There should be written policies and procedures between the Probation Department and the call receiver. The agency’s website and other public media do not explain how an individual can report sexual abuse or harassment on behalf of a juvenile resident.

PREA Standards for Juvenile Detention Facilities, 28 CFR 115.331 and 28 CFR 115.332, require that all staff, third party contractors, and volunteers working at a juvenile detention facility that have contact with juvenile residents receive comprehensive PREA training and receive refresher training every two years.

Findings
F2.1 Every three years PREA Audits by a Department of Justice certified auditor must be completed.

The Probation Department for Juvenile Detention has never scheduled nor completed this mandated audit. This failure diminishes transparency, could put juvenile residents at risk, and could erode public trust, exposing the Probation Department and the Juvenile Detention Facility to potential lawsuits and financial liability.

F2.2 The Probation Department for Juvenile Detention has failed to conduct an annual review, mandated by 28 CFR 115.401(b), or updates for required procedures since 2019, which is a violation of PREA standards and could result in reduction of funding or other financial liability.

F2.3 The Probation Department for Juvenile Detention lacks published material explaining how separation between juveniles and older residents is to be maintained. Failure to maintain separation and ensure steps are taken to protect juvenile residents from unsupervised older residents could result in undesirable interactions leading to potential lawsuits and financial liability.

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23 F2.4 The Probation Department for Juvenile Detention has failed to provide a written policy or procedure to ensure a sexual assault or harassment victim’s report to the Women’s Center Sexual Assault Crisis Line will remain confidential.

F2.5 The Probation Department for Juvenile Detention’s website and other public media fail to explain or reference how a third party can make a confidential report on behalf of a juvenile resident, which creates a lack of transparency and fails to provide required confidential accessibility options to file a report.

F2.6 The Probation Department for Juvenile Detention staff members demonstrated a lack of understanding that all federally mandated PREA standards apply to San Joaquin County’s Juvenile Detention Facility. A lack of comprehensive understanding of all PREA standards that apply could result in a failure to adequately protect juvenile residents, contractors, and employees.

F2.7 The Probation Department for Juvenile Detention does not consistently provide training for educators, third party contractors, and volunteers with refresher training every two years, which is a violation of PREA Standards 28 CFR 115.331 and 28 CFR 115.332 and could compromise the safety of staff, volunteers, and juvenile residents.

Recommendations
R2.1 By July 1, 2023, The Probation Department for Juvenile Detention schedule an independent audit by a Department of Justice certified auditor in accordance with 28 CFR 115.401(a) and post the audit report on the agency’s website within 30 days of completion.

R2.2 By October 1, 2023, The Probation Department for Juvenile Detention conduct an internal review for PREA compliance and update the Juvenile Detention Procedure Manual within 90 days following the PREA audit mandated by 28 CFR 115.401(b).

R2.3 By October 1, 2023, The Probation Department for Juvenile Detention develop, implement, and publish a written explanation and process describing how juvenile residents and older residents housed at Juvenile Detention Facility will maintain resident separation when required.

R2.4 By October 1, 2023, the Probation Department for Juvenile Detention develop and publish written policies and procedures for maintaining resident confidentiality and privacy between the Juvenile Detention Facility and the Women’s Center Sexual Assault Crisis Line.

R2.5 By October 1, 2023, the Probation Department for Juvenile Detention develop and publish on their website and other public media a clear explanation and process for how a third party can make a confidential report on behalf of a juvenile resident.

R2.6 By October 1, 2023, the Probation Department for Juvenile Detention develop and publish a policy to provide PREA training for all staff members, third party contractors, and volunteers and receive refresher training every two years.

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24 3.0 City of Lodi Police Department Jail: PREA Materials and Posters not Visible The City of Lodi jail is a lockup facility under the jurisdiction of the Lodi Police Department. It is used to detain individuals who have been arrested within the city limits and are waiting for a court appearance or transfer to another facility. The jail provides for the safety, security, and welfare of both the inmates and the staff. During a Grand Jury tour of Lodi jail and Lodi Police Department ride-alongs by Grand Jury members, it was noted that the jail does not have any posted PREA required materials in a visible location.

Findings
F3.1 The Lodi Police Department is not in full compliance with 28 CFR 115.33(f), which requires them to provide written materials and visible posters explaining inmate rights and the Department’s zero-tolerance policy regarding sexual abuse or sexual harassment at the jail. This could result in delays in reporting and investigating, exposing the Office to potential lawsuits, financial liability, and reduction in grant funding.

Recommendations
R3.1 By October 1, 2023, the City of Lodi Jail and Police Department provide visible posters and written materials explaining inmate rights and the Department’s zero-tolerance policy regarding sexual abuse in the booking, processing, and holding areas within the jail.

Conclusion
The San Joaquin County Sheriff’s Office and the Probation Department for Juvenile Detention need to bring their departments into full compliance with PREA requirements. Priority should be given to those requirements related to disseminating information and education to inmates, preparing and maintaining reports, and conducting timely internal and DOJ PREA audits.

The Sheriff’s Office is moving in the right direction by installing more than 100 additional cameras throughout the San Joaquin County jail, but the project is not expected to be completed until July of 2023. The Sheriff’s Office acquired 350 body cameras in 2022 that are now in use at the jail. This additional surveillance equipment will provide transparency and improve determination of fault in the cases of conflict between staff and inmates.

Full compliance with PREA rules can benefit the San Joaquin County Sheriff’s Department and Probation Department in regard to the custodial facilities under their jurisdiction by maintaining their eligibility to receive additional federal funds and grants and reducing the risk of legal action filed against their departments.

Disclaimers
Grand Jury reports are based on documentary evidence and the testimony of sworn or admonished witnesses, not on conjecture or opinion. However, the Grand Jury is precluded by law from

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25 disclosing such evidence except upon the specific approval of the Presiding Judge of the Superior Court, or another judge appointed by the Presiding Judge (Penal Code Section 911, 924.1(a), and 929). Similarly, the Grand Jury is precluded by law from disclosing the identity of witnesses except upon an order of the court for narrowly defined purposes (Penal Code Sections 924.2 and 929).

Response Requirements
California Penal Code Sections 933 and 933.05 require that specific responses to all findings and recommendations contained in this report be submitted to the Presiding Judge of the San Joaquin County Superior Court within 60 days of receipt of the report. • The Sheriff shall respond to Findings F1.1, F1.2, F1.3 and F1.4 and Recommendations R1.1, R1.2, R1.3 and R1.4.
• The Probation Department shall respond to Findings F2.1, F2.2, F2.3, F2.4, F2.5, F2.6, and F2.7 and Recommendations R2.1, R2.2, R2.3, R2.4, R2.5 and R2.6. • The Lodi Police Department shall respond to Finding F3.1 and Recommendation R3.1.

Mail or hand deliver a hard copy of the response to:

Honorable Michael D. Coughlan, Presiding Judge
San Joaquin County Superior Court
180 E Weber Ave, Suite 1306J
Stockton, California 95202
Also, please email a copy of the response to Ms. Krystal Gonzalez, Staff Secretary to the Grand Jury, at [email protected].

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26 ATTACHMENT A
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27 2022–2023 San Joaquin County Grand Jury

School Safety in San Joaquin County:

Developing a Culture of Safety
Case #0322

Summary
The 2022-2023 San Joaquin County Civil Grand Jury examined, through the lens of a layperson, the safety measures in place at the 14 public school districts and the San Joaquin County Office of Education (SJCOE). These safety measures are mandated by California Education Code 32280- 322895.5. Through multiple interviews, site visits, and expert witness testimony, the Grand Jury found while many protocols have been established in the County, there is no unified approach to school safety. Rather, safety planning often consists of a patchwork of policies and procedures and

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28 many of the Comprehensive School Safety Plans (CSSPs) required by law are boilerplate documents that are rarely specific to school sites.

Schools in San Joaquin County are safer because of recent efforts by school districts, but more can be done. Districts can create more opportunities for meaningful involvement by parents, students, and staff in safety planning efforts. Parents/guardians can ask school officials about safety at their child’s school site.

Law enforcement must be more involved in the process of development, implementation, and annual updates of the CSSP, including participation in safety training/drills, building relationships with students and staff, and helping to create a culture of safety.

While the issue of school safety is vast, the 2022-2023 San Joaquin County Civil Grand Jury review focused on the following areas:
• Comprehensive School Safety Plans.
• Observations during school site visits.
• Safety training.

The 2022-2023 Civil Grand Jury found CSSPs were not school site-specific and displayed a lack of parental and law enforcement agency involvement, safety training was intermittent, and drills were predictable. The Grand Jury also found a lack of meaningful staff and student discussion regarding school safety, school sites that were inconsistent in visitor check-in procedures, and evacuation maps missing or lacking clarity.

Glossary
• AED: Automated External Defibrillator.
• Average Daily Attendance: The total days of student attendance divided by the total days of instruction.
• CDE: California Department of Education.
• Certificated Employee: Certificated school employees are employees of a school, district, or county office of education who are in a position that requires the employee to have a credential from the California Commission on Teacher Credentialing (CCTC). • Charter School: A charter school is a public school that may provide instruction in any combination of grades (kindergarten through grade 12). Parents/guardians, teachers, or community members may initiate a charter petition, which is typically presented to and approved by a local school district governing board.
• Classified Employee: Classified employees are employees of a school, district, or county office of education who are in a position not requiring certification. • COE: County Office of Education.
• Common Areas: Common areas are defined as auditoriums, multipurpose rooms, gymnasiums, cafeterias, wellness centers, and any other area that may be used by both the public as well as students and staff. Pursuant to Education Code Sections 38130-38139, public schools are required to offer the use of school facilities by non-district public groups.

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29 • CSSP: Comprehensive School Safety Plan. Safety plan required by California law for each school site operating kindergarten or any of grades 1 to 12, inclusive. • Dependent Charter School: A dependent charter school is a charter school that has been authorized and is governed by the district’s school board and is an integral part of the district’s portfolio of schools.
• First Responder: The term includes a firefighter, law enforcement officer, paramedic, emergency medical technician, or other individual who, in the course of his or her professional duties, responds to fire, medical, hazardous material, or other emergencies. • Flip chart: Emergency response flip charts are an effective way of referencing important contacts and actions to be taken in an emergency. Having clearly defined procedures to deal with emergencies that may occur in your workplace and making sure your workers are familiar with these procedures may save lives.
• Independent Charter School: A school that, although authorized by a school district board, is governed by a separate governing board, and is operated independently from the other schools administered by the district.
• Lock Block System: A simple device that prevents locked doors from completely closing, allowing the handle to stay locked and students or adults to quickly lock doors without the need for keys in the case of danger on campus.
• Raptor: Raptor Technologies is a company that has developed integrated school safety software that allows schools to screen and track school visitors. • School Safety Culture: Campus climate and culture are foundational in the creation and maintenance of a safer and more secure school for both students and staff. Keeping students safe both physically and emotionally requires an atmosphere in which parents/guardians, students, and staff are all working together to protect the learning environment. • SJCOE: San Joaquin County Office of Education.
• SRO: School Resource Officer.
• Tabletop Exercise: Small group discussions about an emergency and the courses of action a school will need to take before, during, and after an emergency to lessen the impact on the school community. Participants analyze the problem together and discuss detailed roles, responsibilities, and anticipated courses of action.

Background
Recent media reports of tragic and all too frequent shootings on school campuses across the country have heightened community concerns about school safety and security, but school violence is not a new or recent concern. In fact, school shootings have been part of our nation’s history since Colonial days. During the 19th century, multiple shootings occurred on school campuses involving intentional and accidental gunshots and other forms of violence by students and outside intruders.

Early in the 20th century the frequency of school violence diminished, but one of the earliest examples of mass school fatalities occurred in 1927 in Bath, Michigan, where 44 people, including 38 students, died when a former school board member dynamited the district school. In the middle

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30 of the 20th century school attacks, bombings, and riots by individuals and mobs were often fueled by racial and religious animosity.

The modern school violence trend toward mass casualty shootings began in San Joaquin County in 1989. The Cleveland School shooting occurred ten years before the more frequently referenced Columbine High School shooting in Colorado. Although the 1990s and early 2000s saw an overall trend toward fewer deaths from school shootings in the United States, the public’s perception of unsafe schools was shaped by numerous high-visibility shooting incidents that led to the belief that our schools have become increasingly dangerous places.

School shootings are the focus of discussions in the media, however, school safety concerns range across a continuum, from routine discipline to bullying and fighting, weather and natural disasters, nearby transportation and industrial accidents, and shootings, as illustrated below.

©2016, National School Safety and Security Services
School safety planning requires careful thought, preparation, and training to avoid or mitigate the consequences of all threats across this continuum. These include not only high-consequence threats that have a low probability of occurrence (school shootings) but also lower-consequence threats that have a much higher probability of occurrence (bullying).

Reason for Investigation
Creating a safe and healthy learning environment is a top priority shared by parents/guardians, educators, policymakers, and the community. The importance of safe schools is reflected in Article I, Section 28(f) of the California Constitution, which states: “All students and staff of public primary, elementary, junior high, and senior high schools, and community colleges, colleges, and universities have the inalienable right to attend campuses which are safe, secure and peaceful.” Furthermore,

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31 California Education Code Sections 32280-32289.5 mandate an annual update of each school site’s Comprehensive School Safety Plan (CSSP) by March 1 of each year.

The Grand Jury concluded that recent events in San Joaquin County and elsewhere raised the question of whether the schools in our County were taking appropriate steps to protect students and staff.

The Federal government does not maintain a database of school shootings, but several other entities do attempt to compile that data. For example, Education Week reports 2022 had the most school shootings in the nation (51) and the highest number of casualties (40 killed and 100 injured) in the past five years; 21 of those deaths occurred in the Uvalde school shooting in May 2022. San Joaquin County did not experience any school shootings in 2022, although one Stockton high school student was fatally stabbed when a man entered the campus through an unattended security checkpoint. Local media reported several instances of students being arrested for alleged threats of violence at schools in the County. Tragically, during the Grand Jury investigation, two students were attacked at Unity Park near Chavez High School; one student was shot and killed and the other student was pistol-whipped.

Rather than focusing the Grand Jury’s investigation on one type of school safety threat, such as school shootings, or on school safety planning at one school or district in the County, the Grand Jury concluded it would best serve San Joaquin County citizens to review emergency preparedness planning for threats across the school safety continuum. The Grand Jury evaluated school safety planning from a layperson’s perspective by measuring each district’s preparedness against best practices as identified through research and expert testimony. This report shares with the public the results of that evaluation. Due to the complexity of governance and the large number of independent charter schools (32), the Grand Jury focused its investigation on traditional and dependent charter schools.

Method of Investigation
The Grand Jury conducted an extensive literature review and interviewed several school safety experts to identify consensus among experts on best school safety practices and where there were differences of opinion. The Grand Jury also surveyed each district about school safety preparation and planning. The Grand Jury compared the responses received from each school district against the best practices recommended by school safety experts. Follow-up interviews were conducted with representatives from each district. Grand Jury members visited one school from each district to confirm the information received and to observe safety preparation at the individual school level.

Materials Reviewed
• California Department of Education, “Comprehensive School Safety Plans – Violence Prevention (CA Dept of Education).” www.cde.ca.gov, www.cde.ca.gov/ls/ss/vp/cssp.asp.

Accessed May 2, 2023.
• California Education Code Sections 32280-32289.5.
• California Education Code Sections 38130-38139.

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32 • California State Auditor, “Report 2016-136.” www. Auditor.ca.gov/reports/2016- 136/introduction.html. Accessed May 2, 2023.
• Comprehensive School Safety Plans and related safety information provided to the Grand Jury by the San Joaquin County Office of Education and each of the 14 school districts in San Joaquin County.
• Trump, Kenneth S., Proactive School Security and Emergency Preparedness Planning.

Thousand Oaks, Calif., Corwin, 2011.

Websites Searched
• “Banta Unified School District Home Page.” Bantasd.org, www.bantasd.org. Accessed March 4, 2023.
• Blad, Evie, et al., “School Shootings in 2022: 4 Key Takeaways.” Education Week, January 27, 2023, www.edweek.org/leadership/school-shootings-in-2022-4-key-takeaways/2022/12.

Accessed April 3, 2023.
• Dorn, Sherman. “Perspective | Violence over Schools Is Nothing New in America.” Washington Post, September 29, 2021,
www.washingtonpost.com/outlook/2021/09/29/violence-over-schools-is-nothing-new- america/. Accessed October 6, 2022.
• “Escalon Unified School District.” www.escalonusd.org, www.escalonusd.org. Accessed March 3, 2023.
• Fuentes, Annette. “A Brief History of School Violence in the United States (2011).” Versobooks.com, March 23, 2018, www.versobooks.com/blogs/3705-a-brief-history-of- school-violence-in-the-united-states-2011. Accessed June 22, 2022. • Glavin, Chris. “History of School Shootings in the United States | K12 Academics.” K12academics.com, 26 July 2018, www.k12academics.com/school-shootings/history- school-shootings-united-states. Accessed October 6, 2022. • Green, Emilee. “ICJIA Research Hub.” Icjia.illinois.gov, November 23, 2020, icjia.illinois.gov/researchhub/articles/exploring-school-violence-and-safety-concerns.

Accessed October 6, 2022.
• “Jefferson School District Home Page.” www.jeffersonschooldistrict.com, www.jeffersonschooldistrict.com. Accessed March 3, 2023. • “Lammersville Unified School District Home Page.” www.lammersvilleschooldistrict.net, www.lammersvilleschooldistrict.net. Accessed March 4, 2023. • “Lincoln Unified School District Home Page.” www.lusd.net, www.lusd.net/Domain/4.

Accessed March 3, 2023.
• “Linden Unified School District Home Page.” www.lindenusd.com, www.lindenusd.com.

Accessed March 3, 2023.
• “Lodi Unified School District Home Page.” www.lodiusd.net, www.lodiusd.net. Accessed March 4, 2023.
• “Manteca Unified School District Home Page.” www.mantecausd.net, www.mantecausd.net. Accessed March 3, 2023.
• “New Hope Home Page.” www.nhesd.net, www.nhesd.net. Accessed March 4, 2023.

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33 • “New Jerusalem Elementary School District Home Page.” Home - New Jerusalem Elementary School District, www.njesd.net/en-US. Accessed March 4, 2023. • “Oak View Elementary School District Home Page.” www.myoakview.com, www.myoakview.com/oakview.aspx. Accessed March 4, 2023. • “Ripon Unified School District Home Page.” www.riponusd.net, www.riponusd.net.

Accessed March 3, 2023.
• “School Shootings This Year: How Many and Where.” Education Week, January 27, 2023, www.edweek.org/leadership/school-shootings-this-year-how-many-and-where/2022/01.

Accessed April 3, 2023.
• “Stockton Unified School District / Home Page.” www.stocktonusd.net, www.stocktonusd.net. Accessed March 4, 2023.
• “The San Joaquin County Office of Education Home Page.” www.sjcoe.org, www.sjcoe.org.

Accessed March 3, 2023.
• “Tracy Unified School District Home Page.” www.tracy.k12.Ca.us, www.tracy.k12.ca.us.

Accessed March 3, 2023.

Interviews Conducted
• District Administrators.
• Representatives from all County and Local Law Enforcement Agencies. • San Joaquin County Office of Education Administrators. • School Safety Consultants.
• School Safety Experts.
• School Site Administrators.
• School Site Certificated Personnel.
• School Site Classified Personnel.

Sites Visited
• Banta Elementary School (Banta Unified School District). • Hazelton Elementary School (Stockton Unified School District). • Lodi High School (Lodi Unified School District).
• Mountain House High School (Lammersville Unified School District). • New Hope Elementary School (New Hope Elementary School District). • New Jerusalem Elementary School (New Jerusalem School District). • Oak View Elementary School (Oak View Elementary School District). • one.Charter Academy of Visual and Performing Arts (San Joaquin County Office of Education).
• Ripon High School (Ripon Unified School District).
• Tom Hawkins Elementary School (Jefferson School District). • Tully C. Knoles School (Lincoln Unified School District). • Veritas Elementary School (Manteca Unified School District). • Vista High School (Escalon Unified School District).
• Waterloo Middle School (Linden Unified School District). • Williams Middle School (Tracy Unified School District).

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34 Discussions, Findings, and Recommendations

1.0 School Safety Fundamentals
When asked, school officials, families, policymakers, and the community agree school safety is a top priority, but often there is a disconnect between safety practices and that priority. There is disagreement about what steps should be taken to make our schools safer or how much time, energy, or money should be devoted to school safety efforts. The recent uptick in gun-related incidents at schools across the country has created what some school safety experts believe is a skewed focus on target hardening. Physical security measures, security hardware equipment, cameras, access control, and other forms of safety technology can be useful in the school safety tool bag but are only as valuable as the weakest human link supporting them. As one school safety expert advised the Grand Jury, “Beware of school safety consultants with something to sell.” The emphasis on physical security measures has created a failure to focus on human factors and the fundamentals of school security and culture.

From interviews with school safety experts and a review of publicly available literature, the Grand Jury learned that the best safety plans focus on fundamentals such as:
• Site-specific emergency plans.
• Creating a culture of safety.
• Lockdown drills and sheltering in place.
• Evacuation and reunification.
• Identifying and assigning incident command roles.
• Recognizing abnormalities.
• Having situational awareness at all times.
• Empowering staff to make decisions during emergencies.

The focus of any school safety program should be on training to prepare people with the skills necessary to take proper action when confronted by an emergency. An emergency by its very nature is a time of extreme stress that often short-circuits rational thought and action. Available data indicate lockdown drills (close and lock the door, turn off the lights, close blinds and curtains, move into a hardened corner that is out of sight of an intruder, and keep quiet) work best to prepare staff and students to respond effectively to emergencies. Options-based training (run, hide, and fight) is recommended by some safety experts, but such training is controversial and is discouraged by other experts. Basic, age-appropriate drills should be the focus of any safety training involving students. Overly dramatic drills that create student anxiety should be avoided.

Safety training for school employees must be more than a once-a-year event; it must be integrated into staff meetings throughout the school year and must include not only teachers and administrators but also support staff. Safety drills for staff and students must be diversified in the type and timing of the drills.

In addition to safety training, school climate and relationships are keys to school safety.

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35 “Schools should address climate along with security and emergency preparedness, not one or the other. Too often climate is pitted against security, instead of focusing on both.

Schools can be warm, welcoming, and trusting environments and still have balanced security measures and comprehensive emergency preparedness guidelines.” 1 A positive school culture is one in which students and staff feel respected, supported, and connected to each other and to the school community. In such a culture, there is a greater sense of shared responsibility for the well-being and safety of everyone in the school, and students are more likely to report concerns or potential safety issues.

In contrast, a negative school culture, characterized by bullying, harassment, discrimination, or general facility disrepair, can contribute to a lack of trust and support among students and staff.

This makes it more difficult for students to feel comfortable reporting safety concerns and contributes to a sense of isolation and disengagement that increases the risk of violence or other safety issues.

Creating a positive school culture that promotes respect, inclusivity, and collaboration helps to foster a sense of community and shared responsibility leading to a safer school environment. This includes initiatives such as anti-bullying and anti-harassment programs, positive behavior interventions and supports (PBIS), and efforts to promote diversity and cultural sensitivity.

Safety culture is a topic to be revisited throughout the school year to build upon overall school safety. As an expert witness noted:
“…the key thing is really creating a culture of safety and a culture for reporting. Where safety is everyone's job from the custodian, your school secretary, [your] food service worker, your bus drivers, the first and last people to see kids during the day, to encourage not only see something and say something, that catchphrase that has been used since 9/11, but training people on how to do something. [If] someone sees something, they say something, then what are you trained to do. Because if someone reports it and you don't act and it's not acted in a timely appropriate manner, it's not going to really carry this all the way through.”
A school safety culture is encouraged by involving parents/guardians, students, teachers, administrators, and other school personnel in a school’s safety planning process. It also is encouraged by creating an overall positive climate at the school. Is there school engagement, school ownership, school pride, and student artwork present and visible in the school? Is the school clean and well-maintained? Do students and school employees have an open and trusting relationship?

2.0 Comprehensive School Safety Plan
“The California Constitution guarantees California children the right to attend public schools that are safe, secure, and peaceful. The CDE, public school districts, county offices of education (COEs), and schools and their personnel are responsible for creating learning

1 Trump, Kenneth S., Proactive School Security and Emergency Preparedness Planning. Thousand Oaks, Calif., Corwin, 2011, page 182.

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36 environments that are safe and secure. First responders, community partners, and families play an essential role, as well. Schools must be prepared to respond to emergencies including natural and man-made hazards and strive to prevent violence and behavior issues that undermine safety and security. CSSPs include strategies aimed at the prevention of, and education about, potential incidents involving crime and violence on the school campus and aspects of social, emotional, and physical safety for both youth and adults.” 2 According to California Education Code Section 32281(a), every school district and County Office of Education (COE) in the State is responsible for developing a Comprehensive School Safety Plan (CSSP). For each of its school sites and the site council or safety planning committee for each site is required to write and develop a CSSP that is relevant to the specific needs and resources of that site. In school districts with fewer than “2,501 units of average daily attendance,” there may be one CSSP for all schools within the district.

Every year, each school is required to adopt an updated CSSP by March 1. Before adopting its CSSP, the school site council or safety planning committee must hold a public meeting at the school site to allow members of the public the opportunity to express an opinion about the school safety plan.

State law includes a list of individuals and entities that must be notified in writing of these public meetings. These opportunities for meaningful public input on safety plans and goals help build a strong school safety culture.

Each school’s CSSP must be designed to address campus risks, prepare for emergencies, and create a safe, secure learning environment for students and school personnel. The CSSP must include adaptations necessary for the safety of students with disabilities. The school site council is required to consult with representatives from the law enforcement agency, the fire department, and other first responder entities in the writing and development of the CSSP and to share any updates to the CSSP with those entities. An updated file of all safety-related plans and materials also must be readily available for inspection by the public.

Administrators of a school district or COE may elect to develop those portions of a CSSP that include tactical responses to criminal incidents and to develop those portions of the CSSP themselves, in consultation with law enforcement and a representative of an exclusive bargaining unit of employees. The governing board of a school district or COE also can confer in closed session with law enforcement officials prior to the approval of a tactical response plan. Any vote to approve the tactical response plan would be announced following the closed session.

The CSSP must include provisions for:
(1) assessing the status of crime on school campuses and at school functions and

2 California Department of Education, “Comprehensive School Safety Plans – Violence Prevention (CA Dept of Education).” www.cde.ca.gov, www.cde.ca.gov/ls/ss/vp/cssp.asp. Accessed May 2, 2023.

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37 (2) identifying appropriate strategies that will provide or maintain a high level of school safety and address the school’s procedures for complying with existing laws related to school safety.

The SJCOE and all districts in the County have approved CSSPs for their schools. The State CSSP requirements are lengthy and plans that attempt to discuss in detail all required elements can become unwieldy. Some of the CSSPs reviewed by the Grand Jury were several hundred pages long and generally included the major elements required by State law, but only a few appeared to have been drafted to address issues unique to an individual school site. Only a few indicated there had been any significant opportunity for public input during the drafting or approval stages of the annual CSSP updates. Even fewer included an assessment of the status of crime at the school and school-related functions. The Grand Jury also found plans contained only limited mention of the unique needs during emergencies of students with disabilities. Interviews and conversations with district administrators and school personnel often indicated limited knowledge of the safety information within these lengthy plans or even where the plan was physically located.

Most districts asserted that local law enforcement had been involved in the preparation or update of district CSSPs, but the nature of that involvement varied widely and seldom was documented in a manner that would allow the public to conclude that the involvement was meaningful. Some school officials commented that law enforcement agencies seemed reluctant to collaborate. Fewer districts asserted the local fire district had been involved in the preparation or update of district CSSPs, although some schools reported during site visits that the fire marshal had assisted in the preparation of current evacuation maps. The Grand Jury could not conclude from available information whether law enforcement and first responders had been given the information about the specific circumstances at individual school sites necessary for an appropriate response to a school safety emergency.

Several districts and schools made lengthy CSSPs more useful by creating concise flip charts identifying key steps to be taken during a range of anticipated emergencies. Most schools using these flip charts posted them in classrooms, but only a few schools posted them in other rooms frequented by students, such as libraries, cafeterias, multipurpose rooms, and other school resource rooms. Many of these rooms are used by the general public during non-school hours, in accordance with the California Education Code.

Some districts keep the entire CSSP confidential. Others make public most of the CSSP but keep some portions of the plan confidential to avoid providing useful information to potential criminal perpetrators. A few districts make the entire CSSP public. As noted above, the California Education Code requires an updated file of all safety-related plans and materials to be readily available for inspection by the public, but school administrators are authorized to keep confidential the portions of safety plans that include tactical responses to criminal incidents. The Grand Jury considers the better practice is to keep these sensitive provisions confidential but to make the rest of the CSSP and other safety-related information readily available to the public and school employees.

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38 The CSSP must include a clear description of incident command and communication roles, together with associated duties. It also must identify the individuals responsible to perform those roles as well as alternate individuals if the primary individual is not available to perform the role. Some of the CSSPs reviewed by the Grand Jury identified the incident command roles, but only a few of these identified the individuals responsible for those roles and the alternates who would assume those roles if the primary individual was not available. None of the CSSPs reviewed by the Grand Jury provided evidence that the individuals responsible for incident command roles had received appropriate training to properly perform those important roles.

Some districts include meaningful information about safety measures taken by the district and its schools through the district website and other communications with parents/guardians. Other districts have little or no information about safety measures on their websites and appear to have only limited communication with parents/guardians about safety measures.

The CSSP should describe the system to reunite parents/guardians with their children in the event of a campus-wide evacuation or emergency and parents/guardians must be made aware of how they can reunite with their children. Only some of the CSSPs reviewed by the Grand Jury contained a detailed description of the reunification system and how parents/guardians will be advised of the relevant details of that system.

Findings
F2.1 A review of CSSPs demonstrated many districts have failed to create a CSSP that addresses safety issues unique to the individual school sites, and rather use a template and/or boilerplate language, leaving the school site unprepared in an emergency.

F2.2 Many districts have not involved teachers, support staff, students, and parents/guardians when updating each school site’s CSSP, missing an opportunity to create a culture of school safety.

F2.3 Many districts have not collaborated with local law enforcement and other first responders during the annual process to update the CSSP, which could result in a prolonged and inefficient emergency response.

F2.4 Many district CSSPs show a lack of meaningful collaboration between districts and local law enforcement agencies, causing confusion and chaos during an emergency.

F2.5 Many districts do not offer an opportunity for public input during the drafting or approval stages of the annual CSSP, which renders the districts out of compliance with State law.

F2.6 Most districts do not include an assessment of the status of crime at the school and school- related functions in their CSSPs, which renders the districts out of compliance with State law and causes potential harm and liability.

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39 F2.7 Many districts do not adequately address the unique needs of students with disabilities during emergencies. The lack of planning for the most vulnerable students can cause harm during a time of confusion and crisis.

F2.8 A few districts do not make any part of the CSSPs available to the public, withholding important information about steps taken by the district to reduce the probability and impact of safety risks. Other districts post the CSSPs in their entirety, failing to keep confidential information about tactical responses, potentially revealing sensitive information to the public.

F2.9 Many districts have CSSPs that fail to identify incident command roles and the individuals who are to perform those roles in case of an emergency, exposing students and staff to the potential for confusion and increased risks during an emergency.

F2.10 Many districts have CSSPs that fail to describe the system to reunite parents/guardians with their children in the event of a campus-wide evacuation, creating confusion and additional anxiety in the event of a safety emergency.

F2.11 Many school site CSSPs do not account for specific dangers unique to the school site (e.g., train tracks, flooding, freeways).

Recommendations
The 2022-2023 San Joaquin County Civil Grand Jury recommends that the County Office of Education, the 14 school districts, and law enforcement agencies in the County implement school safety programs that require the following actions:

R2.1 By March 1, 2024, the annual updates for each school site’s CSSP address safety issues unique to the site.

R2.2 By December 15, 2023, while updating the school’s CSSP, each school site collaborate and receive input from representatives of teachers, support staff, students, and parents/guardians.

R2.3 By December 15, 2023, while updating the school’s CSSP, each school site collaborate and receive input from the appropriate emergency response agencies.

R2.4 By December 15, 2023, each law enforcement agency in San Joaquin County meaningfully collaborate and approve the updated CSSP for school sites within that agency’s jurisdiction.

R2.5 By February 1, 2024, each school site council or safety planning committee hold an advertised public meeting at the school site to allow members of the community an opportunity to express an opinion about the school’s proposed CSSP as required by California Education Code Sections 32288(b)(1) and (2).

R2.6 By March 1, 2024, each school site’s CSSP include the State mandated assessment of the status of crime at the school and school-related functions.

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40 R2.7 By March 1, 2024, each school site consult with the appropriate professionals to address the unique needs of students with disabilities when updating the CSSP.

R2.8 By March 1, 2024, each school site’s CSSP be available to the public with the exception of confidential information about tactical responses.

R2.9 By March 1, 2024, each school site’s CSSP identify the incident command roles and the individuals who are to perform those roles and their alternate in cases of an emergency.

R2.10 By March 1, 2024, each school site’s CSSP describe the system to reunify parents/guardians with their student in the event of a campus-wide evacuation, including how parents/guardians are informed of reunification details.

R2.11 By March 1, 2024, each school site’s CSSPs account for dangers unique to the specific school site (e.g., train tracks, flooding, freeways).

3.0 Training
On November 11, 2022, the San Joaquin County Office of Education offered a free half-day School Safety Summit for the first time. The purpose of the summit was to bring stakeholders together in a forum that could address school safety Countywide. All but three of the 14 districts in San Joaquin County attended the event with one or more representatives. As one attendee noted on a feedback form, “Thank you for starting this conversation. Safety should be something we talk about more often. Consider making this a topic that gets revisited multiple times a year.” Another attendee noted, “Thank you for taking the lead on this important topic.” The Grand Jury agrees.

The purpose of the summit was to try to bridge the service gap by bringing to light the differences and the similarities of need while at the same time illustrating the importance of school culture insofar as school safety is concerned. As noted by a witness interviewed by the Grand Jury, San Joaquin County is unique in the districts that service the County students. Some districts have school resource officers (SROs) or their own sworn law enforcement department, while more rural and smaller districts may have to wait an extended period of time for law enforcement response.

One of the experts interviewed by the Grand Jury observed, “The first and best line of defense is a well-trained, highly alert staff and student body in a school.” Recent school tragedies in the news have received attention in the media that sometimes focuses on technology to make school sites more difficult to access rather than the failure to focus on the human factors and fundamentals of school safety. The same expert also noted a common thread across many, if not most of these tragedies, is “they involve allegations of failures of human factors, not allegations that some type of security hardware equipment failed. So we are moving and seeing this effort to have a skewed focus on target hardening. Physical security can play a tool, any type of technology is only as good as the weakest human link behind it.”

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41 Repeated training for school staff and students is the best way to reduce the likelihood that people will “freeze” during an emergency. Not only is training required by State law, but it is also an important way to help make safety part of a school’s culture.

To be most effective, training of teachers, administrators, and support staff should include training at the beginning of each school year but also throughout the year during regular teacher and staff meetings. Tabletop exercises provide a cost-effective way to train in a variety of emergency scenarios. Appropriate training for substitute teachers is an important element of school safety, but few districts have taken steps to assure they have received emergency information in a timely, effective, and usable manner.

Training is best reinforced by drills. Drills are most effective if the types and timing of the drills are varied throughout the school year including drills at times such as lunch, recess, or passing periods when students are not in a classroom. Students' involvement in drills, however, must be limited to age-appropriate activities and be designed to avoid the creation of potentially harmful anxiety.

Special consideration should be given to drills that reinforce training related to the needs of students with disabilities. Tabletop exercises are an effective way for staff to drill and prepare for a variety of emergency scenarios.

Safety emergencies can be confusing and traumatic, making effective communication and incident command vitally important. Breakdowns in communications or response coordination can have catastrophic consequences. Schools and school districts will be responsible for notifying first responders and commanding the early stages of response to the emergency. They will be communicating with employees, students, and parents/guardians during and after the emergency while also being confronted with demands for information from the media and concerned community members. When first responders arrive on the scene of the emergency, they typically will take over command of the incident response, but at many schools, especially in rural areas, there may be an extended delay before appropriate professional responders can arrive at the scene. The school and the district must be prepared to command the response to the incident during this delay. The yearly schedule of drills should include drills that reinforce communication and incident command readiness.

The Incident Command System 100 (ICS-100) training is a course provided by the Federal Emergency Management Agency (FEMA) that covers the basics of the Incident Command System (ICS), which is a standardized system used by emergency response organizations to manage incidents and emergencies. The ICS-100 course is designed to provide an introduction to the principles and structure of ICS, including key roles and responsibilities, and the process of establishing a unified command during an emergency. The focus of ICS-100 training is fourfold:

1. Improving communication: ICS-100 training teaches responders how to use a common language and communication system to ensure that everyone is on the same page during an emergency.

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42 2. Enhancing coordination: ICS-100 training clarifies how responders work together and coordinate their efforts to respond effectively to an emergency.

3. Promoting safety: ICS-100 training emphasizes the importance of safety during an emergency and informs responders how to prioritize safety when responding to incidents.

4. Reducing confusion: ICS-100 training provides a clear structure and framework for responding to emergencies, reducing confusion and ensuring that everyone knows their role in an emergency.

The Grand Jury discovered that within the County, while some school districts utilize ICS-100 training, many do not, causing a security gap. When the Grand Jury inquired about ICS training with expert witnesses, the answer was universally in support of such training, tailored to the specifics of school sites. “I think it's useful. I think it's useful to understand how it all works in the big picture,” said an expert.

While the Grand Jury recognizes that annual training can be overwhelming to school staff, not all school site personnel require ICS-100 training as much as those personnel identified in the CSSP incident command roles on school campuses (including classified employees).

While ICS-100 training is focused on a school site, ICS-402 training is directed towards executive- level leadership (district cabinet-level employees). ICS-402 training is designed to provide education and training for those who may be responsible for managing large-scale incidents or emergencies.

ICS-402 training for senior-level district staff members is important for several reasons:

1. Preparedness: School districts are responsible for the safety and well-being of students and staff members. In the event of an emergency, having trained staff members who understand ICS and implement it effectively is crucial in minimizing damage, preventing injuries, and saving lives.

2. Coordination: Large-scale emergencies involve multiple agencies and organizations, making coordination and communication critical. ICS-402 training helps school district staff members understand how to work with other agencies and organizations during an emergency, ensuring that everyone has the same understanding and that efforts are coordinated effectively.

3. Legal compliance: In some states or jurisdictions, ICS training is required for emergency responders and other people who may be involved in emergency management. Providing ICS-402 training to school district executive staff members will ensure that the district is compliant with these regulations.

4. Flexibility: The ICS system is flexible and scalable, which means that it can be used to manage emergencies of various sizes and types. By providing ICS-402 training to district executive staff members, districts ensure that they have a framework in place that can be adapted to different scenarios, from minor incidents to major disasters.

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43 Overall, ICS-402 training assists school district leadership to prepare for emergencies, coordinate response efforts effectively, comply with regulations, and be flexible in their response to emergencies.

Interviews with district administrators and discussions with school staff during site visits indicated a limited understanding of the material in a school’s CSSP. Many districts discuss safety at the beginning of the year during in-service training and rarely return to the topic.

All districts presented evidence of monthly drills involving teachers and students throughout the year. Few districts, however, included utilization of communication and incident command structure (ICS) identified in their CSSPs during drills. Many districts informed the Grand Jury that they varied the day and time for scheduled safety drills, but only a few districts indicated they had intentionally scheduled drills during times such as lunch, recess, or passing periods when students were not in their classrooms. This is when incident command structures are most critical. Drills are made more effective by presenting unexpected complications during the drill. One cost-effective variation recommended by experts is for an administrator to stand in a doorway typically used during a fire evacuation and inform students that the exit is blocked, forcing them to find another exit.

Many districts time evacuation drills, but the Grand Jury found limited evidence that drills typically are followed by an analysis of what went well, what went wrong, and what needs to be changed in the future to improve plans and drills.

Findings
F3.1 Feedback forms completed by attendees of the San Joaquin County Office of Education School Safety Summit and reviewed by the Grand Jury demonstrate the value and necessity of a Countywide School Safety Summit.

F3.2 Some of the districts failed to send representatives to the 2022 School Safety Summit, thereby missing an opportunity to work together to make schools safer.

F3.3 The Grand Jury learned through interviews, surveys, and site tours that many districts fail to include safety topics during regular meetings with teachers and support staff throughout the school year, minimizing the importance of safety.

F3.4 The Grand Jury learned through interviews, surveys, and site tours that many school sites fail to assure substitute staff receive the information they will need in the case of a school safety emergency, leaving the substitute staff ill-prepared for an emergency.

F3.5 Many districts fail to include the utilization of communication and incident command protocols (ICS-100) during safety drills throughout the school year, causing miscommunication in an emergency.

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44 F3.6 Many district cabinet-level positions (e.g., Superintendent, Chief Business Officer) are not trained in ICS protocols (ICS-402), causing a lack of unified response to districtwide emergencies.

F3.7 Many school sites do not vary the time of day when routine safety drills are conducted or when students are not in classrooms, making drills predictable and leaving students unprepared for emergencies that may occur at any time.

F3.8 Many school sites fail to include support staff (classified personnel) in probable real-life roles during safety drills, leaving them unprepared to assist students in emergencies.

F3.9 Most school sites fail to conduct a post-incident report after drills analyzing what went well, what went wrong, and what needs to be changed in the future to improve plans and drills, undermining the effectiveness of drills.

Recommendations
The 2022-2023 San Joaquin County Civil Grand Jury recommends that the County Office of Education and the 14 school districts in the County implement school safety programs that require the following actions:

R3.1 By December 1, 2023, the San Joaquin County Office of Education and the San Joaquin County Office of Education Board of Trustees develop, adopt, and host an annual School Safety Summit.

R3.2 By December 1, 2023, each school district send one or more representatives to the annual School Safety Summit hosted by the San Joaquin County Office of Education.

R3.3 By September 1, 2023, safety topics be an agenda item at all school site staff meetings with teachers and support staff throughout the school year.

R3.4 By September 1, 2023, districts develop, adopt, and implement written procedures for school sites to provide substitute staff with the information they will need in case of a school emergency.

R3.5 By October 1, 2023, personnel identified in the school CSSP for incident command roles be trained and certified in ICS-100 protocols.

R3.6 By October 1, 2023, ICS-402 training be completed for all district-level executive leadership.

R3.7 By October 1, 2023, scheduled safety drills be conducted on different days throughout the school year and at various times throughout the school day, including when students are not normally in their classrooms.

R3.8 By October 1, 2023, scheduled safety drills include support staff (classified) in probable emergency roles during the year and document their participation.

R3.9 By October 1, 2023, administrators create a post-incident report after all safety drills.

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45 4.0 School Site Visits
The Grand Jury visited 15 school sites and observed and reviewed safety protocols. One school was chosen from each of the 14 districts and one dependent charter school from the San Joaquin County Office of Education. At each site, the following safety components were evaluated and observed:
• Access Control - including entry procedures and perimeter fencing or barricades. • Classrooms - including door locks, window coverings, emergency procedures and evacuation route postings, and any emergency supplies.
• Common Areas - evacuation routes posted at all entry/exit doors. • Overall condition of the campus.
• Special Considerations - including transportation corridors, train tracks, or topography. • Relationships between students, staff, and parents.

Access Control
Three schools utilized the Raptor system, which takes a picture of the visitor’s identification and prints the ID picture onto a customized name badge. The system also screens and tracks all visitors. Only one of the three schools utilizing this system had the Grand Jury visitors return their badge at the end of the tour, which would prevent re-entry. Six schools performed some form of identification check, either with a driver’s license or the Grand Jury Identification, and/or required a sign-in. Six schools did not ask for any identification and no sign-in was required.

Perimeter fencing at a school is a complicated issue. It is costly to install perimeter fencing around a school and it can make the campus seem and look like a prison. However, fencing can be an effective means of controlling who comes onto campus. It can also give a false sense of security and unless all gates are monitored and remain locked, the end result can be the same as if there were no fencing. Of the 15 sites visited, three did not have any or had very little perimeter fencing.

One of those sites had conducted a parent survey regarding the issue and the results were closely divided between those who wanted the fencing and those who did not.

Commendations
Lincoln Unified utilized the Raptor system at the site visit and took our badges at the end of the tour, utilizing best practices in visitor sign-in procedures.

Banta Unified employed the best physical barrier system. Their check-in procedure involved being buzzed in through a half-door to a small waiting area where identification was checked and the sign-in form was completed with both time and date before being buzzed into the office.

Classrooms
At least one classroom was toured at each school. Evacuation routes were posted in all classrooms visited. Some maps were better than others. Some maps were too small, and one school posted a

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46 campus map in every classroom but didn’t mark the classroom’s location or what route to follow for evacuation.

There were inconsistencies across the school sites visited regarding door-locking procedures. The schools visited by the Grand Jury usually kept doors locked at all times. While one school said that it kept doors locked and closed, the Grand Jury observed a classroom door propped wide open.

Many schools utilized a lock block system, which allowed the door to be opened while quickly returning to a locked position with a slide or flip of the switch. Some schools utilized a standard key system for locking doors.

Some schools used flip charts with summaries of what to do in different types of emergencies. The schools that do utilize this form of emergency procedures communication did not always post them in the same area of each classroom or notify all staff that they had them. One school’s Assistant Principal conducting the Grand Jury’s tour was unaware of the flip charts, what they were, or where they were located.

About one-half of the classrooms visited had some form of an emergency information packet (folder/binder) and a few classrooms had emergency backpacks or tubs with paperwork and supplies to be taken in the event of an emergency.

A majority of the schools visited had window coverings, consisting of vertical or horizontal blinds, but some were old and in disrepair. If the classroom had uncovered door windows, they would need to be shielded in the event of a lockdown. Two of the schools utilized a magnetized shield that was the same size as the window to slide over to cover.

Commendations
New Hope Elementary School District covered its windows with magnets that had emergency procedures printed on them, serving two purposes.

Jefferson Unified utilized very creative ways to obscure windows with the use of long roller shades installed above the double glass doors to the library. They also used emergency kits in the classrooms and found an inexpensive and effective way to use a magnet to allow the door to be open while still locked.

Common Areas
The Grand Jury considered the common areas (cafeterias, gymnasiums, libraries, and multipurpose rooms) to be the most dangerous place to be during an emergency. The majority of the common areas lacked adequate evacuation route signs. Some schools had no evacuation route signs, some had one or two posted near a door, but not consistently at every door. Most had other safety equipment available, such as fire extinguishers and Automated External Defibrillators (AEDs). One school’s AED box was open and empty. These observed deficiencies are particularly significant when the public is using the space during non-school hours.

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47 Campuses Overall
One expert emphasized the importance of campus culture, “[a]nd just looking at the overall climate of the school…school engagement, school ownership, school pride, school artwork and items that children make and contribute that are part and present in the overall school.” Most schools visited were well-maintained and tidy. Whether they were built recently or decades ago, the majority of campuses toured showed the care and pride of the staff that worked there and the students who attended. Some were freshly painted, had newly planted landscaping, new bark spread out, new picnic tables, and new shade structures, or were very neatly maintained. One older campus desperately needed attention. The ramps to the portable classrooms were in disrepair, and the playground was in poor condition, with uneven surfaces creating puddles and tripping hazards. However, the campus that was in this state of disrepair had the best and brightest bulletin boards scattered throughout campus, each with a different theme, showing pride in their campus.

Special Considerations
Of the school campuses toured, there were several special considerations that should be addressed in the individual site’s CSSP. Several school sites were rurally located, resulting in emergency responders having a much longer response time. One campus was located in an area prone to flooding. Another campus was located much lower than the adjacent interstate, and a vehicle accident on the interstate could become airborne, potentially landing on the field of the school.

One campus was located directly next to a major train track, and while the tour was being conducted, two trains went by. The Grand Jury asked the tour leader about planned emergency responses to train derailments and was informed that none existed.

Relationships
The campuses visited represented a spectrum of relationship-based leadership and school culture.

A majority of the campuses visited appeared to have a positive school culture. Many administrators knew one or more children’s names and conversed with them, sincerely engaging with students. At one campus of 700 students, the Principal knew the staff, students, and parents/guardians. At the other end of the relationship spectrum, an Assistant Principal leading the Grand Jury tour seemed disinterested and disengaged with both the tour and student interactions, only stopping to ask a student why she was out of class.

Findings
F4.1 Not all school sites have check-in procedures in place that were followed consistently, posing serious security threats.

F4.2 Perimeter fencing or an “open” campus each pose security challenges and require careful consideration to mitigate security shortcomings.

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48 F4.3 Evacuation maps that are posted inconsistently or do not adequately illustrate evacuation routes cause confusion and prolonged evacuation times, making staff and students vulnerable to harm in both classrooms and common areas.

F4.4 Inconsistent door-locking policies and failure to follow policies create opportunities for perpetrators to enter classrooms and common areas.

F4.5 Most school sites utilized flip charts that identify steps to be taken in case of emergencies, however, none of the sites posted them in all rooms used by students, staff, parents/guardians, and the general public.

F4.6 Insufficient window coverings give perpetrators a clear line of sight, creating risk for students and staff.

F4.7 Most school sites, regardless of age, were well maintained and showed school pride. One school site demonstrated multiple maintenance shortcomings, which can negatively impact safety.

F4.8 Good relationships among administrators, certificated and classified staff, parents, and students are vital to promptly identify and address areas of concern, particularly regarding student behavior. Relationships varied greatly from campus to campus.

F4.9 The culture of safety is best developed by public transparency and involvement by all parties. Few of the school sites visited by the Grand Jury demonstrated meaningful public engagement in safety planning.

Recommendations
The 2022-2023 San Joaquin County Grand Jury recommends that the County Office of Education and the 14 school districts in the County implement school safety programs that require the following actions:

R4.1 By October 1, 2023, each school site implement an access control program that consistently includes verifying visitors' identity and collection of any issued badge before the visitor leaves the school site.

R4.2 By March 1, 2024, districts develop, adopt, and implement a plan for effective perimeter control of access at all school sites.

R4.3 By September 1, 2023, all school sites post evacuation maps clearly showing routes from the “You Are Here” perspective be prominently posted at each entry or exit door location in both classrooms and common areas.

R4.4 By March 1, 2024, districts develop, adopt, and implement a plan for door-locking policies to secure classroom and common area doors.

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49 R4.5 By March 1, 2024, all school sites post flip charts or similar summaries of emergency procedures be posted in all classrooms and common areas.

R4.6 By March 1, 2024, all school sites ensure window coverings are provided for all windows, thereby not allowing a perpetrator a clear line of sight into a classroom or common area.

R4.7 By October 1, 2023, the Board of Trustees, during a public meeting, review and discuss the findings and recommendations of the 2022-2023 San Joaquin County Civil Grand Jury report, Case #0322 – School Safety in San Joaquin County: Developing a Culture of Safety.

Conclusion
The Grand Jury appreciates the cooperation of all public school districts in San Joaquin County, along with the San Joaquin County Office of Education.

School districts in San Joaquin County have taken important steps to make schools safer, but more can and should be done to reduce safety threats. While no one can predict an emergency, proper training, drills, plans, and creating a positive school culture, including a strong safety culture, can best mitigate tragic outcomes from those emergencies.

Parents/guardians can help make schools safer by:
• Asking if school emergency guidelines are tested and exercised. • Determining whether your school has policies and procedures on security and emergency preparedness.
• Examining access to school campuses.
• Making sure accurate and timely safety information is shared.

Disclaimers
Grand Jury reports are based on documentary evidence and the testimony of sworn or admonished witnesses, not on conjecture or opinion. However, the Grand Jury is precluded by law from disclosing such evidence except upon the specific approval of the Presiding Judge of the Superior Court, or another judge appointed by the Presiding Judge (Penal Code Section 911, 924.1(a) and 929). Similarly, the Grand Jury is precluded by law from disclosing the identity of witnesses except upon an order of the court for narrowly defined purposes (Penal Code Sections 924.2 and 929).

Response Requirements
California Penal Code Sections 933 and 933.05 require that specific responses to all findings and recommendations contained in this report be submitted to the Presiding Judge of the San Joaquin County Superior Court within 90 days of receipt of the report.

Note: If the responder is an elected official, the response must be sent within 60 days of receipt.

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50 Public School Boards and Law Enforcement

RESPONDING AGENCY RECOMMENDATIONS
Superintendent, San Joaquin
County Office of Education
F2.1-2.11, 3.1-3.9, & 4.1-4.9
R2.1-2.3, 2.5-2.11, 3.1-3.9, & 4.1-4.7
Banta Unified School District F2.1-2.11, 3.2-3.9, & 4.1-4.9 R2.1-2.3, 2.5-2.11, 3.2-3.9, & 4.1-4.7
Escalon Unified School District F2.1-2.11, 3.2-3.9, & 4.1-4.9 R2.1-2.3, 2.5-2.11, 3.2-3.9, & 4.1-4.7
Jefferson School District F2.1-2.11, 3.2-3.9, & 4.1-4.9 R2.1-2.3, 2.5-2.11, 3.2-3.9, & 4.1-4.7
Lammersville Unified School
District
F2.1-2.11, 3.2-3.9, & 4.1-4.9
R2.1-2.3, 2.5-2.11, 3.2-3.9, & 4.1-4.7
Lincoln Unified School District F2.1-2.11, 3.2-3.9, & 4.1-4.9 R2.1-2.3, 2.5-2.11, 3.2-3.9, & 4.1-4.7
Linden Unified School District F2.1-2.11, 3.2-3.9, & 4.1-4.9 R2.1-2.3, 2.5-2.11, 3.2-3.9, & 4.1-4.7
Lodi Unified School District F2.1-2.11, 3.2-3.9, & 4.1-4.9 R2.1-2.3, 2.5-2.11, 3.2-3.9, & 4.1-4.7
Manteca Unified School
District
F2.1-2.11, 3.2-3.9, & 4.1-4.9
R2.1-2.3, 2.5-2.11, 3.2-3.9, & 4.1-4.7
New Hope Elementary School
District
F2.1-2.11, 3.2-3.9, & 4.1-4.9
R2.1-2.3, 2.5-2.11, 3.2-3.9, & 4.1-4.7
New Jerusalem School District F2.1-2.11, 3.2-3.9, & 4.1-4.9 R2.1-2.3, 2.5-2.11, 3.2-3.9, & 4.1-4.7
Oak View Elementary School
District
F2.1-2.11, 3.2-3.9, & 4.1-4.9
R2.1-2.3, 2.5-2.11, 3.2-3.9, & 4.1-4.7
Ripon Unified School District F2.1-2.11, 3.2-3.9, & 4.1-4.9 R2.1-2.3, 2.5-2.11, 3.2-3.9, & 4.1-4.7
Stockton Unified School
District
F2.1-2.11, 3.2-3.9, & 4.1-4.9
R2.1-2.3, 2.5-2.11, 3.2-3.9, & 4.1-4.7
Tracy Unified School District F2.1-2.11, 3.2-3.9, & 4.1-4.9 R2.1-2.3, 2.5-2.11, 3.2-3.9, & 4.1-4.7
Escalon Police Department F2.4
R2.4

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51 RESPONDING AGENCY RECOMMENDATIONS
Lathrop Police Department F2.4
R2.4
Lodi Police Department F2.4
R2.4
Manteca Police Department F2.4
R2.4
Ripon Police Department F2.4
R2.4
Stockton Police Department F2.4
R2.4
Tracy Police Department F2.4
R2.4
San Joaquin County Sheriff F2.4
R2.4

Mail or hand deliver a hard copy of the response to:

Honorable Michael D. Coughlan, Presiding Judge
San Joaquin County Superior Court
180 E Weber Ave, Suite 1306J
Stockton, California 95202

Also, please email a copy of the response to Mr. Irving Jimenez, Staff Secretary to the Grand Jury, at [email protected]
.

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52 ATTACHMENT A
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53 2022–2023 San Joaquin County Grand Jury

Working Title 1: Working Title 2 (Case No. xx20)
Good Intentions Are Failing San Joaquin County’s At-Risk Children Case #0422
Summary
The 2022-2023 San Joaquin County Civil Grand Jury received a citizen’s complaint alleging the At- Risk Youth being housed at the Mary Graham Children’s Shelter (MGCS) were either engaging in or were victims of dangerous behaviors during their stay. The behaviors included drug and alcohol use, tobacco use, physical abuse, physical altercations, inappropriate sexual activity, and leaving the facility at any time without permission. Based on this complaint, the Grand Jury investigated the policies, procedures, and standards applicable to the care of At-Risk Youth in San Joaquin County (County).

The Grand Jury toured MGCS, the Juvenile Detention Center, and the Children's Home of Stockton (CHS) and reviewed numerous documents, statutes, and regulations. The Grand Jury participated in four presentations and interviewed 12 witnesses from several County agencies: Human Services Agency (HSA), Children’s Protective Services (CPS), Sheriff’s Office, Probation Department, MGCS, and CHS. In addition, the Grand Jury attempted to interview an individual at the State’s Community Care Licensing Department (CCLD) assigned to San Joaquin County to provide additional information concerning their role in policy application for the care of At-Risk Youth. The Grand Jury invited the CCLD to appear to provide clarification concerning employees’ responsibilities regarding searches of individuals and living quarters, substance abuse, and physical and sexual assaults by youth. CCLD declined, stating that the matter had already been discussed and settled at their meeting with County agencies and was protected by the attorney-client privilege. CCLD said if the Grand Jury wanted more information, they could contact the agencies that attended the meetings and that CCLD would oppose any subpoena that was received.

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54 At-Risk Youth are defined as children who do not have the opportunities, experiences, or resources necessary to succeed in life. These children have significant obstacles they need to overcome, including but not limited to parental neglect, abandonment, and medical or psychological needs that their families cannot or will not deal with on their own. In some cases, the children are victims of abuse or criminal activity. Experts continue to disagree on how to best manage and support these youth. The choices vary, from leaving them in a home with parents ill-equipped to care for them, to placing them in foster care families, group homes (whose numbers have declined), and children’s shelters or they could end up in a juvenile detention facility. Previously in San Joaquin County, agency choices available for placement of youth were temporary housing with either MGCS or CHS while being evaluated for long-term or permanent placement. CHS no longer accepts these youth as they have converted their facility to a Short-Term Residential Treatment Program (STRTP). The facility is now limited to 16 beds and only accepts female residents that have been victims of commercial sexual exploitation.

The focus of the Grand Jury investigation was to assess the quality of care At-Risk Youth receive from various social welfare and law enforcement entities. Specific attention was concentrated on MGCS and interactions with the County Sheriff’s Office. During the early stages of the investigation, it became clear that the complaints the Grand Jury received were not solely due to failures of these agencies’ policies and procedures. Multiple agencies, including the County’s CPS, Sheriff’s Office, Probation Department, and Courts, are ineffective in managing At-Risk Youth and their families.

Many individuals interviewed by the Grand Jury stated that disruptive youth behavior is escalating to levels where it is extremely difficult to manage the day-to-day behavior or focus on treatment for improvement. The main reasons given for this escalating behavior were a combination of neglectful parenting, greater access to social media, substance use by youth and parents/caregivers, and COVID-19 protocols. However, equally as critical and of particular concern to those interviewed, was the introduction of well-meaning legislation, which reduced resources for the welfare placement of abused and neglected youth. Concurrently, State criminal justice reform legislation (SB 439 and SB 823) resulted in increased justice-involved youth. Continuum of Care Reform (AB 403) resulted in youth with severe emotional issues being placed in the same environment as children CPS had removed for their safety. After the Grand Jury's investigation, they determined there are several reasons for putting these At-Risk Youth in harm's way. They are as follows:
• an increase in the population of At-Risk Youth who are more challenging to manage; • staffing issues, including insufficient number of available floor personnel, and lack of leadership;
• lack of sufficient training for administrators, onsite management, and staff necessary to deal with the challenges presented by the enactment of new laws and regulations; • lack of interagency cooperation within the County; and • lack of foresight and preparedness to deal with Criminal Justice Reform as it pertains to youthful offenders.

The Grand Jury found that the issues noted above bring into question the overall effectiveness of the County's current commitment to caring for At-Risk Youth. The collective findings of this

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55 investigation indicate that the County can be its own worst enemy when it comes to developing solutions to the ongoing problem of providing a safe environment for these At-Risk Youth, while also providing the services necessary to foster an ideal and secure environment where they can grow into productive citizens. Unfortunately, no magical solutions exist to solve the problems affecting these youth. All the witnesses interviewed by the Grand Jury expressed sincere concern for the welfare of the At-Risk Youth in our County. All County agencies involved in the care of this very vulnerable segment of the County's population must come together to create, implement, monitor, and advocate for better programs, care, and treatment of At-Risk Youth. These agencies must stop blaming each other for the deterioration of care for At-Risk Youth. The Grand Jury is aware of recent attempts to improve interagency cooperation. However, it has yet to see any significant evidence of progress that can result in real solutions.

Safety should be the primary focus of the agencies responsible for caring for these children. If these children do not feel safe, they may run away, act out, withdraw, or become susceptible to those who prey on them. These At-Risk Youth will view their experience with “the system” as something to survive and not an opportunity to improve the quality of their lives.

Listed at the top of the Foster Youth Bill of Rights are the following:
• To live in a safe, healthy, and comfortable home where he or she is treated with respect; and
• To be free from physical, sexual, emotional, or other abuse or corporal punishment.

The Quality Parenting Initiative (QPI), which has been effective in other counties in California and throughout the country, is also available to San Joaquin County. This program is sponsored by the Youth Law Center, a national organization cooperating with the State of California. QPI could provide a way to help relieve the pressures felt by those agencies responsible for the care of our At-Risk Youth. While QPI is intended to be a customizable solution for each county, addressing its goals, resources, and values, it does require buy-in from all the agencies that affect At-Risk Youth care.

Other programs and placement options were cited as necessary for the more difficult-to-manage youth. Alternatives with more structure and accountability by the youth and programs similar to the Discovery ChalleNGe Academy and Camp Peterson were identified by several witnesses. In addition, systems like the Catalyst Program, successfully run by CHS that helps youth aging out of the foster care system, could be an option. Catalyst provides a safe environment for these older individuals while assisting them with real-life skills to transition into the community successfully.

Glossary
• AB 153: State Assembly Bill 153 – As of October 1, 2021, in conjunction with the Federal Family First Prevention Services Act (FFPSA), requires that all children placed into congregate care, such as a Short Term Residential Therapeutic Facility (STRTP), or Community Treatment Facility (CTF), receive an objective assessment conducted by a qualified individual (QI).

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56 • AB 403: State Assembly Bill 403, known as the Continuum of Care Reform, was signed into law by Governor Jerry Brown in October 2015 and was seen as a comprehensive effort to reform Foster Care that transformed Group Homes into STRTPs.
• AB 2083: State Assembly Bill 2083, known as System of Care for Children and Youth, requires each County to develop and implement a Memorandum of Understanding outlining the roles and responsibilities of the various local entities that serve children and youth in foster care who have experienced severe trauma.
• At-Risk Youth: Children who are or may be at risk of being physically, sexually, or emotionally abused, neglected, or exploited.
• BHS: Behavioral Health Services.
• CCLD: State of California’s Community Care Licensing Division – responsible for oversight of group homes in the State.
• CCR: California Code of Regulations (Licensing regulations are in Title 22, Division 6, Chapter 5 Group Homes.
• CDSS: California Department of Social Services.
• CHS: Children’s Home of Stockton.
• Congregate Care: A type of residential childcare community and residential treatment center that consists of 24-hour supervision for children in highly structured settings such as group homes, residential treatment facilities, or maternity homes. • CPS: San Joaquin County Children’s Services: a Division of the San Joaquin County of Human Services Agency.
• Discovery ChalleNGe Academy: A partnership between the California National Guard and San Joaquin County Office of Education (SJCOE) for youth between the ages of 16 and 18 who have dropped out of high school, are at risk of dropping out, or are credit deficient. • FFPSA: Family First Prevention Services Act - Federal law was signed as part of the Bipartisan Budget Act on February 9, 2018. It reforms the Federal welfare financing streams, Title IV-E and Title IV-B of the Social Security Act, which provides services to families at risk of entering the child welfare system. The bill aims to prevent children from entering foster care by allowing Federal reimbursement for mental health services, substance use treatment, and in-home parenting skill training for families and children. It also seeks to improve the well-being of children already in foster care by incentivizing states to reduce the placement of children in group care.
• Foster Youth Bill of Rights: California Welfare & Institutions Code Section 16001.9(a). • Group Homes: Residential Care Facilities used for placement of At-Risk Youth by CPS or Probation, and licensed by Title 22, Division 6, Chapter 5 of the CCR. • HSA: Human Services Agency of San Joaquin County.
• JJCC: Juvenile Justice Coordinating Council (JJCC) as mandated by State law, to be eligible for specific State funding, develops and implements a continuum of county-based responses to juvenile crime. It is responsible for developing and updating the county’s Multi-Agency Local Action Plan to serve Juvenile Justice-Involved Youth.
• MGCS: Mary Graham Children’s Shelter.
• Probation: San Joaquin County Probation Department.

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57 • QI: Qualified Individual. As of October 1, 2021, as required by FFPSA and AB 153 to conduct objective assessments of congregate care facilities to determine the setting which will provide the child/youth/non-minor dependent with the most effective and appropriate level of care in the least restrictive environment, consistent with the short and long-term goals, as specified in the permanency plan.
• QPI: Quality Parenting Initiative.
• SB 439: Senate Bill 439, signed by Governor Jerry Brown on September 30, 2018, established a minimum age of 12 for prosecuting youth in juvenile court in California, except in the most severe cases of murder and forcible rape. The law intends to protect young children from the adverse consequences of justice system involvement and encourage more effective interventions, if appropriate, to improve children’s well-being and public safety. In addition, by January 1, 2020, counties must have a protocol for addressing alternatives to prosecution of youth under 12, even though juvenile court jurisdiction is no longer permissible starting January 1, 2019. Counties may individually troubleshoot the circumstances and needs of each youth under 12 who otherwise were or may have been under juvenile court jurisdiction. • SB 823: Senate Bill 823 Department of Juvenile Justice Realignment Act, signed into law by Governor Gavin Newsom in September 2020, effectively eliminates Juvenile incarcerations. • STRTP: Short-Term Residential Treatment Program.
• YLC: Youth Law Center – a nationwide organization dedicated to protecting children's and families' rights.

Background
The media and multiple past Grand Juries have reported on poor conditions in foster homes, group homes, and emergency children’s shelters for decades. This reporting has contributed to new Federal and State laws to improve child and family welfare conditions. The most recent laws include the Federal Family First Preservation Act (FFPSA), AB 153, AB 403 – The Continuum of Care Reform Act, SB 439 – Minimum Age of Juvenile Prosecution, SB 823 – Department of Juvenile Justice Realignment Act, and AB 2083 – System of Care for Children and Youth. Unfortunately, the effect of these legislative attempts to improve the quality of care received by the population of At- Risk Youth has had the opposite result in San Joaquin County.

Recent Federal legislation has imposed stricter requirements on facilities attempting to qualify as group homes or STRTPs. These new laws require increased planning to implement the legislated changes, increased reporting by social workers, and augmented qualifications for staff. However, this left many privately run facilities unable to fully comply with the new standards. Consequently, many facilities have had to close or significantly reduce their capacity. The aftermath has been a net reduction of available placement options, and staff retention issues, especially for facilities required to take in At-Risk Youth.

The elimination of detention and incarceration of all youth offenders, except those that have committed serious crimes, e.g., murder or sexual assault, has further impacted the emergency care of At-Risk Youth. This has placed justice-involved youth or those with severe emotional issues with

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58 youth placed in care for safety reasons due to no fault of their own. The more difficult youth routinely walk away from facilities without permission and engage in dangerous activities, including physical violence and inappropriate sexual activity. Youth leaving the premises requires the facility to frequently call law enforcement per California Community Licensing Department (CCLD) requirements. The overlap of justice-involved youth with those with severe emotional issues and children recently removed from their homes for safety reasons intensifies the trauma for all involved.

Over the years At-Risk Youth in San Joaquin County have been cared for using various modalities, e.g., the Juvenile Detention Facility, Group Homes, Children’s Shelter, and Foster Care. The underlying thought has been that youth should not be treated like adults because children’s brains are not completely developed, and therefore they may not fully understand the consequences of their actions. Temporary Shelters, Group Homes, and STRTPs are licensed by the California Department of Social Services (CDSS) and the CCLD by Title 22, Division 6, Chapter 5 of the California Code of Regulations. This State regulation intended the oversight within San Joaquin County to be a collaborative effort with CCLD, BHS, HSA/CPS, and the Probation Department.

Group Homes must provide 24-hour non-medical care and supervision to youth who may be at risk of being physically, sexually, or emotionally abused, neglected, or exploited. These At-Risk Youth are dependents or wards of the Juvenile Court. They often display behavioral and emotional problems that prevent them from being cared for in a family or foster care environment.

In 2013, there were 21 group home providers operating 44 group homes in the County licensed by CCLD. Group homes in the County have either closed or converted to STRTP facilities. For example, CHS, for financial reasons and to comply with the new legislation and mandatory regulations, elected to operate solely as an STRTP facility with only 16 beds limited to female residents, compared to the 52-bed Group Home it operated before the new regulations took effect. Following the enactment of the new legislation, only two other STRTP facilities have survived in the County, providing an additional 12 beds.

The 2022-2023 Grand Jury opened an investigation into MGCS and the CHS after receiving complaints about youth engaging in inappropriate behavior, i.e., leaving the premises without permission, fights, drug and alcohol use, and participating voluntarily or forcibly in sexual activity.

As the Grand Jury delved into the allegations, it became clear that many issues contributed to these ongoing problems with At-Risk Youth. Many of the same deficiencies that the 2012-2013 Grand Jury found in Case #0412 — Fractured Oversight Fails to Serve At-Risk Youth, still plague the system, such as:
• Failure to follow mandatory reporting requirements.
• Improper incident/injury reporting.
• Incorrect Staff to Youth ratios.
• Inadequate implementation of or failure to provide mandatory training. • Inadequate interagency cooperation.

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59 Over 13,000 calls for Sheriff’s assistance at MGCS from June 2021 to December 2022.

Reason for Investigation
The 2022-2023 Grand Jury received a citizen’s complaint alleging incidents of inappropriate behavior, assaults, and the use of tobacco, alcohol, and drugs at Mary Graham Children’s Shelter (MGCS). Following initial consideration of the complaint, a review of media reports addressing similar concerns, and previous Grand Jury reports, the investigation focused on a review of how At- Risk Youth are being cared for in San Joaquin County. The current Grand Jury investigated how the agencies charged with the care of At-Risk Youth communicated with each other, particularly MGCS and the San Joaquin County Sheriff’s Office.

Method of Investigation
The Grand Jury conducted 12 interviews with Human Services Agency (HSA) and Children’s Protective Services (CPS) administrators, group home directors, supervisors, and other staff members. In addition, the Grand Jury invited the Youth Law Center (YLC) to make a presentation describing the way the new laws have impacted the Foster Care program in California. YLC also explained how the Quality Parenting Initiative (QPI), implemented in other counties of California and throughout the country, has helped to improve the quality of care provided to At-Risk Youth.

The Grand Jury also requested and received HSA, CPS, and CHS presentations.

Materials Reviewed
• 2021-2022 San Joaquin County Organization Chart.
• AB 403 Stone-Foster Youth Reform Bill 2015.
• California Complex Care Resource Guide 2022.
• Children’s Home of Stockton Emergency Intervention Plan.

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60 • Children’s Home of Stockton Flyer Catalyst- Homeless Prevention for Our Youth. • Children’s Home of Stockton History Booklet.
• Children’s Home of Stockton History Summer 2022.
• Children’s Home of Stockton Impact Report 2021-2022.
• Children’s Home of Stockton Milestones - 1882 to 2021. • County of San Diego Health and Human Services Agency’s Quality Parenting Initiative. • Department of Social Services - CCLD Facility Evaluation Reports and Citations. • FamilyFirstAct.org - 2018.
• FFPSA-Advocacy-and-Enforcement-Template-Letters-v.2.
• Foster Youth Rights Handbook, California Foster Care Ombudsperson. • Foster-Youth-Bill-of-Rights-WIC-16001.9_ADA Complaint Copy. • Grand Jury Report 2015-2016 Fostering a Better Foster Care System, Orange County. • Human Services Budget, Community Centers, Contact Information, Organization Chart. • Law Enforcement Incident Reports and Logs of Calls for Service. • Los Angeles County 2013-2014 Grand Jury Foster Care Report. • Personal Rights Children’s Residential Facilities.
• Placement Agreements for CHS.
• Prison Rape Elimination Act flyer from San Joaquin Juvenile Detention Facility. • STRTP Policy and Practice-California Alliance of Child and Family Services/Member Task Force. February 2021.
• STRTP- Specialty Mental Health Services Residential- Client eligibility, Services. • Various Facility Incident Reports.
• Various Interagency emails.
• Various Training Certificates and Training Documentation. • Youth Law Center Quality Parenting Initiative Presentation.

Websites Searched
• About the Law | FamilyFirstAct.org. February 2, 2018. Familyfirstact.org. https://familyfirstact.org/about-law. Accessed November 1, 2022. • California Department of Social Services. 2021. Short-Term Residential Therapeutic Program Interim Licensing Standards, www.cdss.ca.gov. California Department of Social Services. https://www.cdss.ca.gov/Portals/9/CCL/Childrens-Residential- Licensing/ILS/STRTP_ILS_v4.pdf?ver=2021-11-02-100839-873. Accessed February 15, 2023. • California Threatens to Take Control of Troubled San Joaquin County Child Welfare System. (n.d.). Retrieved March 18, 2023, from https://witnessla.com/california-threatens-to-take- control-of-troubled-san-joaquin-county-child-welfare-system/. Accessed March 18, 2023 • Carlton, B. May 23, 2013. My Stay at Mary Graham Hall Children’s Shelter | Faith Writers. www.faithwriters.com; Faith Writers. https://www.faithwriters.com/article- details.php?id=159918. Accessed March 17, 2023
• Civil Grand Jury County of Los Angeles. 2008. In grandjury.co.la.us/gjury08-

09.http://grandjury.co.la.ca.us/gjury08-09/masterdocument2009-06-07.pdf. Accessed March 20, 2023.

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61 • Civil Grand Jury County of Los Angeles. 2012. In http://grandjury.co.la.ca.us/gjury12- 13/Final%20Report%20%2012-13.pdf. Accessed March 27, 2023. • de Sá, K., Dizikes, C., & Palomino, J. August 26, 2017. State demands fixes in San Joaquin foster care system. San Francisco Chronicle.
https://www.sfchronicle.com/bayarea/article/State-demands-fixes-in-San-Joaquin-foster- care-11964444.php. Accessed March 27, 2023.
• de Sá, K., Palomino, J., & Dizikes, C. May 18, 2017. San Francisco Chronicle Interactives.

Projects.sfchronicle.com; San Francisco Chronicle. https://projects.sfchronicle.com.

Accessed March 17, 2023.
• Miller, M. (n.d.). How state law to help foster kids created bottleneck in care - The Sacramento Bee. Eedition.sacbee.com.
https://eedition.sacbee.com/popovers/dynamic_article_popover.aspx?artguid=2cbe80a1- 8938-4e44-a1cd-d1dee6bc2cb6. Accessed March 20, 2023.
• San. (n.d.). San Joaquin County Human Services Agency > Assistance > Children’s Services. www.sjchsa.org; San Joaquin County. https://www.sjchsa.org/Assistance/Childrens- Services. Accessed March 15, 2023.
• San Francisco Chronicle Interactives Fostering Failure: How shelters criminalize hundreds of children. May 18, 2017. Projects.sfchronicle.com. https://projects.sfchronicle.com. Accessed December 20, 2022.
• Short-Term Residential Therapeutic Program Interim Licensing Standards: Subchapter 2 Authored/Published by: CALIFORNIA DEPARTMENT OF SOCIAL SERVICES. 2017. https://www.cdss.ca.gov/portals/9/strtp%20ils%20subchapter%202%20under%206%20- .pdf?ver=2017-03-22-153356-353. Accessed March 11, 2023. • Workman, H. April 28, 2023. “It’s going to help grow local talent”: San Joaquin County unveils new behavioral health workforce development program. https://www.recordnet.com/story/news/local/2023/04/27/san-joaquin-county-launches- effort-to-recruit-more-behavioral-health-workers/70156135007/ Accessed May 19, 2023. • Writer, D. B. June 23, 1999. S.J. grand jury contributes party fund toward new children’s shelter. The Stockton Record. https://www.recordnet.com/story/news/1999/06/23/s-j- grand-jury-contributes/50813317007. Accessed March 18, 2023. • Writers, N. P. and F. B. R. S. September 9, 2001. No haven at shelter. The Stockton Record. https://www.recordnet.com/story/news/2001/09/09/no-haven-at-shelter/50783293007/.

Accessed March 17, 2023.
• Youth Law Center. 2020. A NEW DEAL FOR TRANSITION AGE FOSTER YOUTH IN CALIFORNIA:

A POLICY ROADMAP FOR ENSURING A RESILIENT RECOVERY AFTER COVID-19. In https://www.ycl.org. https://www.ylc.org/wp-content/uploads/2020/07/YLC_A-New-Deal- for-Transition-Age-Foster-Youth.pdf. Accessed March 17, 2023.

Sites Visited
• Children’s Home of Stockton.
• Mary Graham Children’s Shelter.
• San Joaquin County Juvenile Detention Facility.

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62 Interviews Conducted
• Current Group Home administrators.
• Current Group Home Facility managers.
• San Joaquin County Human Services administrators.
• San Joaquin County Children’s Protective Services administrators. • Current Home employees and supervisors.
• Current Sheriff’s Office employees.
• Probation Department administrators.

Discussions, Findings, and Recommendations

1.0 Increase in the Population of At-Risk Youth
With recent legislation, including the FFPSA, SB 823, SB 439, AB 109, AB 153, AB 2083, and AB 403, Juvenile Justice Realignment has reduced retention of juvenile offenders to only those committing egregious felonies, which overall is a small population of youth offenders. The annual Juvenile Justice Realignment Block Grant plan targets this small population of youth, ages 18-25, who have committed serious and/or violent offenses, i.e., murder and sex offenses. Wards of the court are 12-17 years old. Many are not confined and are immediately released to a parent, guardian, or caregiver, where they can access community-based programs and resources. Youth under 12 cannot be arrested or detained, as no delinquency or criminal court has jurisdiction over them.

Youth under 12 cannot be prosecuted except for murder or forcible rape. San Joaquin County has a contact protocol for juvenile offenders, but for alternative placement, as described in SB 439, counties are urged to develop a protocol, which the County has not done. In 1991 a San Joaquin County Juvenile Court Judge said, “[t]here is a need for a place somewhere between Juvenile Hall and foster care to act as a safety valve to hold the most disruptive youths temporarily away from the shelters.” The administrators, managers, supervisors, and employees interviewed echoed the judge’s sentiment.

The Welfare & Institutions Code, Sections 1990-1995, established the Juvenile Justice Realignment Block Grant program. To receive Block Grant funds, counties must create a multiagency Juvenile Justice Coordinating Council (JJCC) to develop annual plans describing the facilities, programs, placement services, supervision, and reentry strategies to provide appropriate rehabilitative services for realigned youth. The San Joaquin County JJCC consists of the San Joaquin County Probation Department, Office of the Sheriff, County Office of the District Attorney, County Office of the Public Defender, HSA, BHS, Police Departments of Escalon, Lodi, Manteca, Ripon, Tracy, and Stockton, along with Stockton Unified School District’s Department of Public Safety. The JJCC’s annual plans include legislative changes as they become law.

Based on the legislated premise that community-based support services improve an offender’s potential to reintegrate into the community successfully, counties are directed to develop and initiate such services. The evidence-based programs, practices, and alternatives to incarceration are intended to limit future crimes and reduce victimization. The JJCC plan identified and implemented several programs and continually evaluates the success and value of each. The San Joaquin Community Data Co-Op conducted the most recent evaluation report of programs

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63 operated in Fiscal Year 2020-2021 by the San Joaquin County Probation Department and community-based organizations: 1) Probation Officers on Campus program, 2) the Reconnect Day Reporting Center, 3) Neighborhood Service Centers, 4) Transitional Age Youth Unit, and 5) Family Focused Intervention Team. The evaluation also included the Positive Youth Justice Initiative at Community Partnership for Families of San Joaquin and Sow A Seed Community Foundation.

COVID-19 protocols severely impacted the implementation of the network of other County funded community-based programs. As a result, actions and involvement have yet to progress as planned.

Accordingly, many community programs are no longer in place, while others are slowly gearing back up. As a result, youth are not receiving the community care envisioned by the legislated reforms.

SB 823 is in the implementation phase of the Juvenile Justice Realignment Block Grant, which ends in June 2023. Its success will be evaluated for both the reduction in the number of juvenile incarcerations and juvenile offenses. The shift from punishment and warehousing of juvenile offenders to prevention, rehabilitation, treatment, and second chances will not be accomplished without overcoming challenges. In California’s eagerness to reduce the number of incarcerated youth, Juvenile Courts avoid sentencing them to incarceration for anything except for murder and sex offenses. Laws reducing juveniles’ exposure to the harshness of the incarceration system failed to provide an alternative to juvenile detention or county jail, and instead created a “revolving door” in the courts. Unless the offenses are violent or deemed heinous, youth are released without consequences. According to witness testimony, “second chances” are good, but too many second chances without consequences lead to a lack of accountability. Youth offenders have no reason to change their behavior, leading to a “you can’t do anything to me” attitude, which has led to disruptions in congregate care. We do these youth a disservice because once they become adults, they will no longer be protected from prosecution for their offenses.

Before SB 823, arrested youth were taken to the Juvenile Detention Facility, where they were immediately evaluated to assess their risk to the community or themselves. A comprehensive assessment was conducted by educational, medical, psychiatric, probation, and custody staff from different County agencies working together as a team at the detention facility. High-risk youth were retained. Low-risk youth were released to their parent/legal guardian or placed in foster care.

Some were referred to community-based programs for services or placed on probation.

After SB 823, all youth offenders are either released on probation or their charges dismissed and their records sealed, except those who committed murder or sex offenses. Critics allege this endangers public safety and puts these offenders back on the streets to commit more crimes without victims being notified. Due to this policy, youth offenders have quickly realized that there is no meaningful consequence to committing criminal acts.

As highlighted in yellow in the chart below, the legislation led to a decrease in juvenile detention and an increase in the population at MGCS.

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64 Statistics from the annual Proposed Budget Books prepared for the County Board of Supervisors.

Department

2017-18

2018-19

2019-20

2020-21
Est/Act
2021-22
Juvenile Detention
Admissions
Avg Daily Population
Camp Avg Daily Pop
856
90 24
695
88 22
651
38 16
664
63 17
478
41 8
HSA – Foster Care
Institutions / Group
Homes / STRTP 173 182 184 115 170
MGCS3
Children Provide Care*
Avg Daily Population**
564
16 486
11 476
9 892
17 921
22 Findings
F1.1 The San Joaquin County Board of Supervisors and San Joaquin County Probation Department failed to promptly take expedient measures to keep up with the ever-changing regulatory environment regarding the Juvenile Realignment Act, which created significant deficiencies in available placement options.

F1.2 The San Joaquin County Board of Supervisors and San Joaquin County Human Services Agency failed to take timely steps to keep up with the Juvenile Realignment Act’s ever-changing regulatory environment, which created significant deficiencies in available services and placement options.

F1.3 The San Joaquin County Board of Supervisors and San Joaquin County Human Services Agency and San Joaquin County Probation Department are underutilizing available program options like the San Joaquin County Office of Education’s Discovery ChalleNGe Academy, or the Youth Law Center’s Quality Parenting Initiative. This deprives children of additional available resources.

F1.4 The San Joaquin County Board of Supervisors and San Joaquin County Human Services Agency and San Joaquin County Probation Department, did not plan or account for the increased number of the most difficult-to-place youth needing placement in congregate care, creating restricted access to services and potential harm to juveniles and communities throughout San Joaquin County.

3 *Figure includes services for individuals provided multiple occurrences of care throughout the year. **After January 1, 2017, the length of stay was statutorily limited to 10 days.

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65 Recommendations
R1.1 By December 31, 2023, the San Joaquin County Board of Supervisors and San Joaquin County Probation Department, through collaboration with Human Services Agency, Children’s Protective Services, Behavioral Health Services develop, adopt, and implement appropriate alternative housing placement options (e.g., transitional housing placement program, small family homes, group homes, and/or short-term residential therapeutic programs).

R1.2 By December 31, 2023, the San Joaquin County Board of Supervisors and Human Services Agency, through collaboration with the Behavioral Health Services, San Joaquin County Probation Department, San Joaquin County Office of Education, and all San Joaquin County Law Enforcement Agencies, develop, adopt, and implement appropriate programs for justice-involved youth, as listed in Finding 1.3.

R1.3 By December 31, 2023, the San Joaquin County Board of Supervisors, through collaboration with Human Services Agency, Probation, and Juvenile Justice Coordinating Council, develop plans for the increased utilization of programs such as the San Joaquin County Office of Education’s Discovery ChalleNGe Academy or the Youth Law Center’s Quality Parenting Initiative.

R1.4 By December 31, 2023, the San Joaquin County Board of Supervisors, through collaboration with the Human Services Agency and San Joaquin County Probation Department, develop, adopt, and implement a type of alternative placement for the most difficult-to-place youth.

2.0 Training and Staffing Issues
Throughout all presentations and interviews, the 2022-2023 Grand Jury heard on all topics investigated, recruitment and retention of personnel is a significant concern for multiple departments. The Board of Supervisors has approved many additional positions requested by the Human Services Agency and Probation Department. However, many positions remain vacant. The vacancy reasons include staff departures during the COVID-19 protocols, multiple legislative compliance requirements, County salaries not being competitive with nearby counties, and obstacles filling positions managing difficult-to-control youth. As of April 2022, the County workforce vacancies increased to 15.9% over the prior fiscal year of 4.7%. HSA and Probation are listed as departments with significant vacancies. HSA has 181 vacancies, 14% of its total workforce, and Probation has 93 vacancies, 28% of its workforce.

The positions most impacted in this investigation are those dealing with the daily management of disruptive youth. In interviews conducted with HSA/CPS, MGCS, and San Joaquin County Probation Department, additional employees for these positions were deemed by all as the most essential in managing these youth. However, this specific workforce experiences a high turnover due to burnout from dealing with high-needs youth on an hourly/daily basis. In addition, many departments compete within the same pool of candidates, i.e., law enforcement and social workers. More departments are requesting the addition of social workers as more individual evaluations and treatment plans are required by legislation. San Joaquin County Probation Department and CPS work closely as many youth offenders cycle between the departments, with

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66 many residing at MGCS between placements. Caseloads have increased throughout the State as the number of youth needing foster care increased, and the ratio of social workers and probation officers per child has decreased.

Challenges to Having a Fully Trained Work Group
Finding adequate training time requires extra staffing to maintain the necessary ratio of youth to staff. This is exceedingly difficult for departments already struggling to fill positions. In addition, the staffing turnover rate in the most challenging, and frequently lower-paid, positions is exceptionally high.
“Out-of-control youth” is the description used by many interviewees. However, youth behavior has changed noticeably in the past decade. When asked about the observed behavior of youth-in-care now versus a decade ago, all witnesses testified to behavior becoming worse and worse, year upon year:
• “Youth wouldn't think about punching an officer, now they do that.” • “Youth wouldn't before think about attacking a kid four times their size, now they do that.” • “A lot of self-harm… a lot of self-harm.”
• “Years working at Juvenile Hall, we've regularly had kids in the psychiatric hospital on a psychiatric hold, but recently, two critical incidents of legitimately attempted suicide. Never had that before.”
• “Kids used to do what they were told when they were told. And now these Gen Z are on a whole other level of do what they want when they want to do it.” • “The immediate gratification, they have social media, they have Door Dash, all these instant things that they can have in the world now, and that is very different from the kids I served in 2000, that they didn't really have cell phones or Internet or those direct connections.” Witnesses interviewed gave vague answers to straightforward questions about the way physical and sexual assaults are handled, or when a youth and their property can be searched. The Grand Jury discovered that no procedures were in place to guide congregate care employees. When asked about a hypothetical situation where a 10-year-old girl was discovered being sexually abused by a 16-year-old boy, most witnesses said they would tell the boy to stop. When the witnesses were asked what they would do if the boy refused, the Grand Jury was met with silence. All agreed the behavior should be stopped, but interviewees were unsure how. This indecisiveness was part of the reason the Sheriff’s Department became so frustrated with MGCS. In the Sheriff Department’s view, it is a crime, and there is no question that the action needs to be stopped immediately with whatever force is necessary. The Sheriff’s Department was unaware that employees could not just jump in and physically restrain youth. MGCS staff are required to try all non-physical techniques first. Their actions are guided by what is known as “trauma informed” policies, which are based on the idea that At-Risk Youth have been traumatized by the events leading to their removal from the home, being placed in the foster care system, the type of placement, along with the number of placements. All of these factors contribute to a certain amount of trauma.

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67 When dealing with these At-Risk Youth, procedures and protocols are designed to not add any additional trauma. In theory, trauma-informed policies would be sufficient for most cases. In extraordinary cases, while compassion can be a mitigating factor, it should not restrict the caregiver’s ability to prevent dangerous, illegal, or disruptive behaviors. Restorative Justice could then be applied after the event is under control. Trauma inflicted on the caregivers during such incidents is given low priority and will remain so until appropriate policy and procedural changes can be made.

Compliance With State Mandates
Multiple new legislation and voter proposition mandates often require developing plans, some by forming commissions. As a result, timelines for plan development can overlap. In addition, various plans require interagency teams to cooperate in the drafting and approval process. As a result of new legislation and new plans, County agencies find it necessary to update policies, procedures, and training continuously. This can confuse staff as to what policy or procedure is the current order of the day. In addition, this takes numerous hours from coordination to actual implementation and creates a challenge to maintain day-to-day operations.

Mary Graham Children’s Shelter
MGCS provides services to all youth who do not have a caretaker. They cannot refuse to take in any youth brought to them. Most interviewees mentioned the value of MGCS to the County. However, either due to a lack of sufficient staffing or inadequate training, MGCS staff are not equipped to manage every youth they receive. This includes youth who are removed from homes for their safety, youth between treatment programs, and justice-involved youth who have been adjudicated and returned to MGCS. In addition, the population may include severely emotionally disturbed youth that would have previously been candidates for secured facilities.

The County Board of Supervisors recognized the need for increased staffing allocations at MGCS and approved the budget for increased staffing. However, MGCS continues to experience a remarkably high staff turnover rate. Multiple openings are continuously posted for applications. As a result, MGCS is perpetually going through the staff fulfillment process. A typical hiring scenario starts with 25 applicants for 14 open positions and fills only two. Only half of the applicants respond and schedule an interview. Of that half, eight show up for the interview, six pass background checks, one resigns before training is over, and three leave when the job proves too difficult.

The most difficult-to-fill positions are “floor staff” that deal hourly with youth. As discussed in Section 1.0, with more youth not being detained per the new justice guidelines, MGCS is receiving more disruptive youth, and at the same time, they are experiencing a shortage of floor staff. In addition, assaults experienced by floor staff happen quite often, ranging from attacks as severe as a
knife to the neck and being jumped on, to spitting, hitting, shoving, and throwing things, including chairs, food, hygiene products, and hot water. Staff also endure screaming, yelling, and cursing.

These cumulative incidents lead to a high rate of staff trauma and attrition of floor staff. Concerns

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68 for staff safety have resulted in a recent union-negotiated safety supplement increase in wages for these positions.

Additionally, with the rise in incidents, in view of the 13,000 calls from MGCS for service reviewed by the Grand Jury, HSA/CPS reached out to the Sheriff’s Office for assistance to determine whether the Sheriff’s Office would be willing to provide a deputy on a 24-hour basis, modeled after Orange County’s Memorandum of Understanding (MOU) with their Sheriff’s Office. CPS hoped this service, which would be funded by HSA/CPS, would provide deputies with the demeanor, approach, and concern for the youth served at MGCS. After discussion, the Sheriff’s Office declined this request.

Training
Training has been and continues to be a source of concern for MGCS. The 2012-2013 San Joaquin County Grand Jury noted non-adherence to annual training requirements as a reason for deficient performance. The 2022-2023 San Joaquin County Grand Jury noted that staff were unsure what they could or could not do in certain situations, especially regarding physical assaults, drug and alcohol possession and use, and sexual activity by youth. While MGCS used an Excel spreadsheet to track the completion of training, CCLD noted that the records were spotty at best and sometimes nonexistent. No method was in place to regularly monitor what training was necessary, how often, and what certifications needed renewing. Scheduling and attendance were also questionable.

During COVID-19, witnesses stated that all training “kind of stopped at the very beginning of the pandemic” from March 2020 until May 2021, when virtual training began. Training and the scheduling of training has been inconsistent. Training to renew certifications for physical intervention by MGCS employees lapsed. Since this lapse, staff have been relegated to managing behaviors using verbal de-escalation or body proximity (inserting themselves between youth).

Management claims their failure to maintain timely training was due to a lack of staff.

Management further maintained staff could not attend training sessions because they could not be released without violating mandated staffing ratios.

In response to a number of CCLD citations, HSA was required to develop a Plan of Correction (POC) to address MGCS employee training. A new analyst position was created at MGCS to formalize the training and tracking of employees. After the expiration of the physical intervention certifications, a decision was made by MGCS leadership to go with a new certification program vendor. This necessitated training an in-house trainer (the new Analyst) before training employees. The result of this decision has been a year-long gap in recertification for physical intervention by staff dealing with youth. MGCS continues to track training on an updated spreadsheet, which has resulted in two subsequent inspections of training records by CCLD yielding positive reports.

While focus and concern are given to youth trauma, the Grand Jury heard concerns about the lack of safety training focused on staff’s safety from assaults and emotional trauma. Currently, employees can talk to a CCLD-contracted psychologist and utilize their medical health benefits.

However, this process may take six months from an incident to a counseling appointment. In addition, after-incident reports do not include official debriefings of the entire floor staff,

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69 supervision, and management. Floor staff have told their supervisors that they want to be debriefed after incidents occur to improve incident responses.

Human Services Agency/Children’s Protective Services
The Children’s Protective Services Bureau of HSA (CPS) requires specific in-person service delivery by social workers to prevent or remedy neglect or abuse. Social workers are formed into teams to address the multiple needs of youth removed from the home:
• Investigation, Intake, and Assessment.
• Court.
• Permanent placement.
• Federal case review.
• Child and Family Team.
• Child Advocacy Center.
• Family Reunification.
• Intensive Family Preservation.

In 2020-2021, many social workers left employment with this department. Compared to the previous three fiscal years, the attrition has slowed. However, the positions dealing with day-to-day care continue to experience more vacancies, many due to burnout. CPS social workers routinely enter situations that are highly emotional and potentially volatile. Often, law enforcement assistance is needed. The social workers deal with families going through a traumatic experience for all involved. Parents are frustrated when a child is separated from their family, and social workers may be threatened. Children are removed because of concern for the child’s welfare due to neglect and physical and/or sexual abuse. Social workers interview these children to obtain detailed information and hear troubling stories daily. Overall, the substance use rate in the County is very high, resulting in a high volume of cases. When CPS separates a child from their parent(s), social workers go to court to testify and are cross-examined frequently to justify the child’s removal. Child welfare contains many laws requiring continuous reporting. The paperwork is onerous and time-consuming.

These social workers were deemed essential during the COVID-19 pandemic, requiring them to continue going into homes, in-person meetings, and court. Many were uncomfortable doing so and left these positions, causing an increased workload for the remaining workers. A bachelor's degree or a master's degree in social work is required for these positions. Many social workers in CPS with a master's degree were able to transfer to mental health clinical positions, as the number of these positions in the County has increased and offer higher salaries for a much less stressful job.

On April 26, 2023, the San Joaquin County Board of Supervisors awarded $5.2 million in grant money to San Joaquin County Behavioral Health Services and HealthForce Partners Northern San Joaquin Valley. This new workforce development program will “find ways to get people into behavioral health services because there's a huge need. Not many people go into the field, so any way we can make it easier for folks — to not only learn here but to stay here — and grow our community, is really important," as reported in Recordnet.com.

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70 Findings
F2.1 Human Services Agency, Children’s Protective Services, and Mary Graham Children’s Shelter are critically and chronically understaffed and fail to provide the level of supervision required for At-Risk Youth and sheltered children.

F2.2 Human Services Agency, Children’s Protective Services, and Mary Graham Children’s Shelter training has been inconsistent and inadequate to meet regulatory requirements that are critical for the staff to maintain the welfare of At-Risk Youth and sheltered children.

F2.3 Mary Graham Children’s Shelter employees lack clear and concise guidance for handling disruptive behaviors, which creates an environment where the safety of children and staff is compromised.

Recommendations
R2.1 By December 31, 2023, Human Services Agency implement an ongoing recruitment plan utilizing the services of a third-party recruiter.

R2.2 By December 31, 2023, Human Services Agency and Mary Graham Children’s Shelter develop and implement a regular training schedule for all levels of employees and administrators, and provide accurate documentation that all required training has been completed.

R2.3 By December 31, 2023, Human Services Agency requests clear and concise written guidance from the California Care Licensing Department concerning how to deal with disruptive behaviors by youth.

3.0 Lack of Interagency Cooperation
AB 2083 (System of Care) requires each county in California to develop and implement an MOU outlining the roles and responsibilities of the various local entities serving At-Risk Youth. In January 2021, San Joaquin County prepared and submitted its MOU to the State. Signatories to this MOU were agency heads from the following entities:
• San Joaquin County Health Care Services.
• San Joaquin County Behavioral Health Services.
• San Joaquin County Human Services Agency.
• San Joaquin County Probation Department.
• San Joaquin County Office of Education.
• Valley Mountain Regional Center.

In addition to the agency heads, the attorneys for Behavioral Health Services and Human Services Agency signed the document. Further, representatives from the Lodi Unified School District and Stockton Unified School District signed the document. Conspicuously missing from the MOU were

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71 any representatives from the San Joaquin Sheriff’s Office or any discussion about how the Sheriff’s Office would fit into this plan. The absence of the Sheriff’s Office from participation in the development of the MOU was a significant omission. Their exclusion from the MOU created a disconnect between the social agencies responsible for the immediate care of At-Risk Youth and the Sheriff’s Office, whose services are often required in moments of crisis.

From the beginning of the Grand Jury’s investigation, it became clear that one of the most significant issues impacting the policies for managing the care for At-Risk Youth in the County was a lack of meaningful interagency cooperation. The Grand Jury heard testimony from several witnesses from different agencies, each of whom blamed the other for ineffective collaboration.

For example, witnesses from HSA/CPS and MGCS testified that to help reduce the number of runaways from MGCS and instances of inappropriate behavior there (e.g., substance use, physical and sexual misconduct), they asked the Sheriff’s Office during a meeting in 2021 to station a deputy 24 hours a day at the shelter. The Sheriff’s Office was initially receptive to the proposal but, at a subsequent meeting, responded that they did not have the budget or staffing for such an assignment. When HSA/CPS offered to provide the funds necessary for such an assignment, the Sheriff’s Office failed to respond. As a result, no further discussions were held or plans made to address this matter.

Witnesses from the Sheriff's Office testified that they were overwhelmed by calls to MGCS due to runaways, violent altercations between youth residing at the shelter, altercations between youth and staff, illicit drug and alcohol use, and inappropriate sexual activity. The Sheriff’s Office attributed these issues to MGCS’s failure to enforce its rules. Their witnesses and documents noted over 13,000 calls for service over a year and a half, stating that it was a drain on their available resources. The Sheriff’s Office witnesses were unaware that MGCS and every congregate care facility are required to call a law enforcement agency whenever a child leaves the premises without permission. The calls for runaways represented the majority of calls for service the Grand Jury reviewed. One member from the Sheriff’s Office threatened to have MGCS shut down if they could not resolve their issues internally.

After meetings between the Sheriff’s Office, HSA/CPS, and MGCS proved unfruitful, the Sheriff’s Office filed a complaint with CCLD, alleging that MGCS was not following its internal protocols. The Sheriff’s Office also requested clarification from CCLD concerning what actions could be taken to stop inappropriate behaviors. During the meetings with CCLD, HSA/CPS, the Sheriff's Office, and Probation, CCLD explained the children’s rights as they pertained to searches for contraband.

However, the meeting became adversarial, and the Sheriff’s Office made no recommendations other than that MGCS needed to enforce its rules. CCLD never provided the requested clarification and declined to appear before the Grand Jury.

A fourth meeting was held in December 2022, where representatives from HSA/CPS, MGCS, Probation, Behavioral Health Services, CCLD, California Department of Social Services (CDSS), and the Sheriff’s Office were in attendance. CDSS facilitated the meeting based upon an understanding that work needed to be done regarding collaboration between the County partners. The consensus was that the other agencies collaborated consistently except for the Sheriff's Office. However, the Sheriff's Office persisted by inquiring what MGCS was doing to make changes. The representative from CDSS stated the purpose of the meeting was not to determine what MGCS was doing, as they

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72 were already working on a Plan of Correction. Instead, the purpose of the meeting was to focus on interagency collaboration. As a result, HSA/CPS and the Sheriff's Office offered to provide training to each other’s staff. An apparent agreement had been reached to provide CPS field training to deputies, and the Sheriff’s Office would provide narcotics training to MGCS staff. Both parties agreed on a date. However, HSA/CPS reached out multiple times to the Sheriff’s Office to confirm the dates; but they were met with silence. Due to the agency heads’ failure to follow through on the training, the Sheriff’s Field Training Officers took the initiative to ask CPS staff for training on how to conduct their interactions with At-Risk Youth. In exchange, the officers would provide narcotics training to CPS staff. At the time of this report, no interagency meetings or training have taken place.

Findings
F3.1 The absence of the Sheriff’s Office from participation in the development of the System of Care Memorandum of Understanding was a significant omission by the San Joaquin County Board of Supervisors and the San Joaquin County Human Services Agency, which failed to capitalize on law enforcement experience when developing the MOU.

F3.2 Substantial issues in managing the care for At-Risk Youth in the County were due to a lack of meaningful interagency cooperation, which missed an opportunity to leverage and gain sustainable support from other agencies.

F3.3 The Sheriff’s Office has failed to meaningfully collaborate with the other agencies charged with the care of At-Risk Youth, leaving those agencies more vulnerable to threats and challenges.

Recommendations
R3.1 By December 31, 2023, San Joaquin County Human Services Agency prepare an addendum to the System of Care MOU that includes the participation of the Sheriff’s Office.

R3.2 By December 31, 2023, San Joaquin County Human Services Agency establish and utilize a multiagency task force to focus on managing the care for At-Risk Youth in the County.

R3.3 By October 1, 2023, the Sheriff’s Office designate a permanent liaison to collaborate with the other agencies charged with the care of At-Risk Youth.

Conclusion
The agencies of San Joaquin County tasked with caring for the health and safety of our At-Risk Youth need to come together and be proactive in changing the current system. Unfortunately, there is no one-size-fits-all remedy that solves all the problems. What is recommended in this report may help in the short term, but long-term solutions require a reevaluation of recent legislative changes and guiding principles.

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73 Locally, the system needs to be given the priority it deserves. County leaders must work together to seek out and take advantage of all existing State and Federal programs. They must become more effective leaders. They need to join, sponsor, and advocate for groups and programs by lobbying for legislative changes. Currently, the County needs more hands-on, face-to-face staffing to care for and guide the most challenging youth. The County needs to have structured placement options with some restrictions to separate the justice-involved youth from the youth Children’s Protective Services has removed for safety reasons.

The County should immediately enhance recruitment efforts through the use of a third-party recruiter. In addition, priority should be given to recognizing and aiding at-risk families, helping them stabilize and stay together so foster care will not be needed. The County has plenty of laws, funds, and the knowledge that the system as it currently exists needs to be improved.

Disclaimers
Grand Jury reports are based on documentary evidence and the testimony of sworn or admonished witnesses, not on conjecture or opinion. However, the Grand Jury is precluded by law from disclosing such evidence except upon the specific approval of the Presiding Judge of the Superior Court, or another judge appointed by the Presiding Judge (Penal Code Section 911, 924.1(a), and 929). Similarly, the Grand Jury is precluded by law from disclosing the identity of witnesses except upon an order of the court for narrowly defined purposes (Penal Code Sections 924.2 and 929).

The Grand Jury issued this report except for one member of the jury. This juror was excluded from all parts of the investigation including interviews, deliberations, and the making and acceptance of the report.

Response Requirements
California Penal Code Sections 933 and 933.05 require that specific responses to all findings and recommendations contained in this report be submitted to the Presiding Judge of the San Joaquin County Superior Court within 90 days of receipt of the report.

Note: If the responder is an elected official, the response must be sent within 60 days of receipt.

San Joaquin County Board of Supervisors
Findings – F1.1, F1.2, F1.3, F1.4, F3.1, and F3.2
Recommendations – R.1.1, R1.2, R1.3, R1.4, R3.1, and R3.2 San Joaquin County Human Services Agency
Findings – F1.2, F1.3, F1.4, F2.1, F2.2, F2.3, F3.1, and F3.2 Recommendations – R1.1, R1.2, R.1.4, R2.1, R2.2, R2.3, R3.1, and R3.2 San Joaquin County Sheriff’s Office
Findings – F3.2 and F3.3
Recommendations – R3.2 and R3.3
San Joaquin County Probation Department
Findings – F1.1, F1.3, and F3.2

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74 Recommendations – R1.1, R1.2, R1.3, and R3.2
Mail or h
and deliver a hard copy of the response to:

Honorable Michael D. Coughlan, Presiding Judge
San Joaquin County Superior Court
180 E Weber Ave, Suite 1306J
Stockton, California 95202
Also, please email a copy of the response to Mr. Irving Jimenez, Judic ial Staff Secretary to the Grand Jury, at [email protected].

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75 2022–2023 San Joaquin County Grand Jury

Working Title 1: Working Title 2 (Case No. xx20)
The Eastern San Joaquin Groundwater Authority:

A Rubik’s Cube of Water Management
Case #0622

Summary
Water has been a concern for all Californians since the earliest days of statehood. Years of severe drought are often followed by a superabundance of rain and snow that results in flooding. Both can be devastating, as has been the case recently in San Joaquin County. Because our State’s water

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76 supply is cyclical, the need for intelligent and efficient management of this crucial resource is vitally important for everyone.

Our water sources generally can be categorized as either surface water (rivers, creeks, lakes, etc.) or groundwater (water held in the soil or underground aquifers). In the early 1900s, the State government began authorizing the creation of water districts to manage groundwater, favoring local control of this resource. Due to decades-long declines in groundwater levels and water quality, in 2014 the State legislature adopted three bills that together are known as the Sustainable Groundwater Management Act (SGMA). SGMA requires the creation of Groundwater Sustainability Agencies (GSAs), which are tasked to develop and implement Groundwater Sustainability Plans (GSPs). GSPs describe how to avoid undesirable results and mitigate groundwater overdrafts in basins and subbasins identified as being in a state of critical overdraft by 2040. Our Eastern San Joaquin Subbasin is in critical overdraft.

In 2017, the 16 GSAs and local agencies responsible for managing the groundwater in the Eastern San Joaquin Subbasin joined together to form the Eastern San Joaquin Groundwater Authority (ESJGWA) to cooperatively carry out the purposes of SGMA. Having received a citizen’s complaint and subsequently reviewing concerns about public outreach and engagement by the ESJGWA in the course of its work, and because of the significance of water issues to San Joaquin County residents, the 2022-2023 Grand Jury elected to undertake an investigation.

The Grand Jury conducted 12 interviews with the complainant, members of the ESJGWA Board of Directors (current and former), County staff, representatives of several stakeholder groups, and interested citizens. The State Department of Water Resources (DWR) staff, who have been meeting monthly and working directly with the ESJGWA, declined the Grand Jury’s request for an interview.

The Grand Jury also reviewed ESJGWA governance documents, meeting minutes, budgets, annual reports, initial and final GSPs, and public outreach materials; websites of the ESJGWA and its member GSAs; portions of the SGMA and related Department of Water Resources (DWR) requirements, California Water Code, and other relevant government codes; stakeholder correspondence; news media stories on groundwater in the Central Valley; and many other pertinent documents.

The Grand Jury concluded that while the ESJGWA has successfully developed and is currently implementing its GSP, concerns exist about inadequate public engagement, a lack of transparency in the conduct of its business, and administrative issues.

Although the ESJGWA developed an unadopted plan for public outreach and engagement and has contracted a consultant to develop a new plan, it currently has none. Outreach efforts to identify and engage members of disadvantaged communities and non-English speakers have been limited and unsuccessful. DWR and ESJGWA also have not developed a clear and consistent message to help the public understand the importance of SGMA and how groundwater shortages can impact their lives.

Important ESJGWA financial information is buried deep within the websites of the County Flood Control & Water Conservation District and the County Administrator’s Office (CAO), making it nearly impossible for citizens to locate. The ESJGWA’s website does not include information

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77 required by several State laws, does not identify the members of the Board of Directors, minutes of public meetings are difficult to locate or missing, and financial information is absent.

Board and other public meetings are routinely held at inconvenient times for public participation, and repeated public requests that meeting times be changed have not been addressed. Possible Brown Act violations have occurred relating to the ESJGWA’s Technical Advisory Committee (TAC).

The ESJGWA has inadequate staff support to function efficiently and effectively. This is evidenced by the year-long lapse of an important agreement between one of the member parties and the County, and by staff members’ testimony.

To correct these deficiencies, the Grand Jury recommends the ESJGWA Board of Directors, County Board of Supervisors, and Auditor-Controller’s Office take the following actions:
• Develop, adopt, and implement a plan to improve public communications and outreach. • Reinstitute periodic outreach events to inform the public about the GSP and the status of its related implementing projects.
• Identify ways to better find and engage with members of disadvantaged communities (DACs), including non-English speakers, in the San Joaquin Subbasin. • Update the website to provide easier, more comprehensible access to ESJGWA financial information.
• Update the Flood Control & Water Conservation District’s website to provide convenient access to financial and project information related to the use of Zone 2 funds. • Explain the differences between the fiscal year-end ESJGWA fund balance reports and the annual independent audit balance sheets.
• Update the website, esjgroundwater.org, to ensure full compliance with the provisions of SB 929, SB 272, and Government Code Section 7405.
• Update the website and Board Bylaws to reflect the actual dates and times for Board meetings.
• Update the website to enable easier public access to meeting minutes. • Identify the members of the Board on the website, meeting agendas, and official written documents.
• Consider ways to enable and promote increased public attendance at open meetings. • Formalize the status of the TAC as a standing committee and bring it into compliance with the requirements of the Ralph M. Brown Act.
• Monitor the expiration dates for any relevant governance or contractual documents and GSP implementation deadlines to ensure the Board can act before any lapses occur. • Ensure staff support is adequate for efficient, cost-effective operations.

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78 Glossary
• AB: Assembly Bill.
• Ad Hoc Committee: A committee created for a particular purpose when necessary or as needed. • Basin: An underground reserve of water.
• CAO: San Joaquin County Administrator’s Office.
• California Code of Regulations (CCR) 354.10(d)(3): That part of the California Code of Regulations pertaining to notification and communication requirements for groundwater sustainability plans.
• County Resolution R-15-17: The Resolution whereby the County Board of Supervisors adopted the 2015 Strategic Plan to Meet Water Needs and Zone No. 2 property-related fees. • Cal Water: California Water Services Company.
• CPRA: California Public Records Act.
• DAC: Disadvantaged Community. A census designated area with an annual median household income (MHI) that is less than 80 percent of the Statewide annual MHI. • District: San Joaquin County Flood Control & Water Conservation District. • DWR: California Department of Water Resources. The DWR protects, conserves, develops, and manages much of California's water supply. Its mission is to sustainably manage the water resources of California, in cooperation with other agencies, to benefit the state’s people and protect, restore, and enhance the natural and human environments. • ESJGWA: Eastern San Joaquin Groundwater Authority.
• Ex officio: A person who holds a position in one body (such as an organization’s staff) by virtue of holding a position in another.
• GBA: Ground Water Banking Authority. The predecessor agency to the ESJGWA. • Government Code Section 7405: Passed by the State Legislature in 2016, this directs that State governmental entities follow Section 508 of the Federal Rehabilitation Act requiring accessibility of electronic and information technology. • GSA: Groundwater Sustainability Agency.
• GSP: Groundwater Sustainability Plan.
• ISD: Independent Special District.
• JPA: Joint Powers Agreement (or Authority). A written legal agreement between two or more public agencies allowing joint exercise of common powers. See California Government Code beginning at Section 6500.
• MHI: Median Household Income.
• MOA: Memorandum of Agreement. A written document reflecting an agreement between parties to cooperatively work together on a project or objective. • Meeting Minutes: The official written record of a meeting, including who was in attendance, what decisions were made, and other consequential events that happened at the meeting. • Overdraft: When the rate of groundwater pumping exceeds the rate of groundwater recharge. • SB: Senate Bill.
• SB 272: Approved in 2015, SB 272 adds a section to the California Public Records Act requiring local agencies to create a catalog of Enterprise Systems by July 1, 2016, with annual updates.

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79 • SB 929: Passed in late 2018, SB 929 is a law requiring all independent special districts in California to create and maintain a website by January 2020, with five distinct pieces of information posted: contact information, the current agenda for regular meetings, a financial transaction report, a compensation report, and an enterprise system catalog. • SGMA: Sustainable Groundwater Management Act. SGMA comprises a three-bill legislative package (AB 1739, SB 1168, and SB 1319) signed by Gov. Jerry Brown in 2015. It requires local agencies to form groundwater sustainability agencies (GSAs) for high- and medium-priority basins. GSAs must develop and implement groundwater sustainability plans (GSPs) to avoid undesirable results and mitigate overdraft by 2040.
• TAC: Technical Advisory Committee.
• Water Code Section 10723: The part of the California Water Code that pertains to establishing groundwater sustainability agencies.
• Water Code Section 10728.4: The part of the California Water Code that describes notification requirements for holding a public hearing prior to adoption or amendment of a groundwater sustainability plan.
• Zone 2: Water Investigation Zone No. 2, which was established by the San Joaquin County Board of Supervisors as a Countywide zone in 1989. In 2015, San Joaquin County property owners approved a property-related fee in support of the water management efforts funded by Zone 2.

Background
Most Californians depend on two sources for water: surface water and groundwater. Surface water begins as rain or snow running through rivers and streams, lakes, reservoirs, canals, treatment plants, and finally into the pipes that lead to our faucets. Groundwater is held in layers of soil, gravel, and rocks known as aquifers, which absorb and store water that percolates through the soil.

Groundwater is pumped from wells and used for drinking and other home uses, for the water needs of businesses and industry, and for farm irrigation and livestock watering. See Figure 1.

Figure 1. Diagram of the Hydrologic Cycle.
(Source: Department of Water Resources, “Groundwater: Understanding and Managing this Vital Resource.” https://storymaps.arcgis.com/stories/ff075c25b77e4b1d95ce86a82bf0fe96)

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80 As shown in Figure 2, groundwater use in California varies by location, but Statewide approximately 40 to 60 percent of the water used in California is groundwater. The amount of groundwater used in a year depends on precipitation and reservoir conditions, with more groundwater being pumped in dry years when it serves as a crucial buffer during drought conditions.

Figure 2. Groundwater Use Versus Other Water Sources for Different Areas of California. (Source: Department of Water Resources, “Groundwater: Understanding and Managing this Vital Resource.” https://storymaps.arcgis.com/stories/ff075c25b77e4b1d95ce86a82bf0fe96)

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81 As Figure 1 illustrates, water can go back into the aquifers in a groundwater basin (recharge) through natural processes and human efforts. However, the amount of groundwater is limited.

When the rate of pumping exceeds the rate of recharge (overdraft), the aquifer becomes depleted.

This can cause shallow wells to go dry and pumping costs to rise as wells must pump water from deeper levels. It can take years, if not decades, to replenish depleted aquifers. In some areas where groundwater levels have dropped because of excessive pumping, portions of the aquifers have collapsed causing the land surface to drop (land subsidence). Less groundwater can be stored in the aquifer for future use, and less groundwater is available as a buffer against drought. Worse, when aquifers collapse, the negative impact on storage capacity cannot be reversed.

The series of “atmospheric river” storms that pummeled California in the winter and spring of 2023 dumped record-setting levels of rain and snow, unfortunately resulting in serious flooding for certain areas. A positive aspect has been the replenishment of depleted lakes and reservoirs, bringing some immediate drought relief. However, the effects of many preceding years of extreme drought, an increase in the number of wells to replace surface water, and the resulting over- pumping of groundwater, cannot be so easily undone. Land subsidence has already occurred, shallow wells have already run dry, and aquifer recovery is slow at best.

In some parts of California, often in underrepresented or disadvantaged rural communities, people rely on groundwater to supply all their water needs. When aquifers in these areas are over- pumped, families are left without clean water for drinking, cooking, and bathing. Over-pumped aquifers also can lead to higher concentrations of pollutants in the groundwater, making the groundwater that remains unsafe for drinking and unusable for agriculture. Over-pumping of groundwater and the resulting negative effects is a serious issue for all Californians.

Groundwater Management in California
Article X, Section 2 of the California Constitution requires that all water use be both “reasonable and beneficial,” but until recently regulation focused mostly on surface water, not groundwater.

Beginning in the early 1900s, the State began to study groundwater and authorized the creation of local water districts to manage groundwater within those districts. Since that time, the State policy has favored local control of groundwater resources, with the State’s role limited to funding technical studies to better understand its groundwater resources. In 1956, the State formed the Department of Water Resources (DWR) to manage much of California's water supply. In the same year, the San Joaquin County Flood Control and Water Conservation District was formed to plan, construct, and operate flood control, water supply, drainage, and groundwater recharge projects.

By the 1980s, concern about environmental impacts, including the continuing declines in groundwater levels, led to increased support for more comprehensive management of California’s groundwater. Within San Joaquin County, local water interests have partnered together over the years to build consensus regarding the groundwater resources with varying degrees of successful implementation of plans, however, the subbasins continue to be overdrafted.

In 2014, the State legislature adopted three bills, together known as the Sustainable Groundwater Management Act (SGMA), which for the first time set forth a statewide framework to manage groundwater by shifting the State’s role to that of overseer and potential regulator. In signing SGMA, however, Governor Jerry Brown emphasized that “groundwater management in California is best accomplished locally.” SGMA and subsequent Statewide regulations require local agencies to

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82 develop and implement plans for sustainable groundwater management within specified timelines or face the consequence of the State taking over groundwater management. SGMA and subsequent State regulations require local agencies to form Groundwater Sustainability Agencies (GSAs) for all medium and high-priority groundwater basins in the State. GSAs are required to develop and implement Groundwater Sustainability Plans (GSPs) designed to avoid undesirable results and mitigate overdrafts by 2040. The State Department of Water Resources (DWR) provides regulatory oversight through its responsibility to evaluate and assess GSPs.

Groundwater Management for San Joaquin County
Groundwater in San Joaquin County is found in two separate subbasins of the San Joaquin Valley Groundwater Basin: the Eastern San Joaquin Subbasin and the Tracy Subbasin. The 2022-2023 Grand Jury focused its attention on the Eastern San Joaquin Subbasin (see Figure 3), one of 21 basins and subbasins the DWR has identified as being in a condition of critical overdraft.

Figure 3. Eastern San Joaquin Subbasin.
(Source: Eastern San Joaquin Groundwater Authority, “Eastern San Joaquin Groundwater Subbasin Groundwater Sustainability Plan,” November 2019; revised June 2022. https://www.sjgov.org/docs/default-source/public-works- documents/water-resources/final-esj-revised-gsp_june2022_clean.pdf?sfvrsn=675b059b_5)

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83 The Eastern San Joaquin County Groundwater Banking Authority established in 2001 consisted of many of the same members as the ESJGWA. This group produced a Groundwater Management Plan in 2004 to address the overdraft situation as well as other water management projects.

Complete follow-through on this plan and prior plans was hindered primarily by lack of funding.

However, lessons learned have provided solid groundwork for the establishment of the SGMA- focused ESJGWA.

In April 2017, the 16 GSAs and local agencies responsible for managing the groundwater in the subbasin entered into a joint exercise of powers agreement (JPA) to establish the Eastern San Joaquin Groundwater Authority (ESJGWA) “for the purpose of coordinating the various GSAs’ management of the Basin, in accordance with SGMA” (JPA, Recital D). Later that year, San Joaquin County and California Water Services (Cal Water), an investor-owned utility that has groundwater management operations and acts as an urban water supplier in the subbasin, signed a Memorandum of Agreement (MOA) authorizing Cal Water to participate as a limited voting member in a GSA pursuant to a provision in SGMA allowing such arrangements.

The GSAs comprising the ESJGWA are a mixture of independent special districts (ISDs), municipalities, and San Joaquin County. As defined by the California Special Districts Association, “Special districts are local governments created by the people of a community to deliver specialized services essential to their health, safety, economy, and well-being. A community forms a special district, which are political subdivisions authorized through a state’s statutes, to provide specialized services the local city or county do not provide.”
Both the ESJGWA and its member GSAs are governed by individual boards of directors. The boards of the GSAs are elected by the people of their respective communities, and typically consist of three, five, or seven members. ESJGWA Board members serve by appointment; each GSA selects one of the members of its board (plus an alternate) to also serve on the ESJGWA Board. Thus, the ESJGWA Board has 16 members. The 16 GSAs that comprise the ESJGWA are as follows:
• Calaveras County Water District/Stanislaus
County (Eastside San Joaquin GSA)
• Lockeford Community Services
District
• California Water Service Company (Cal
Water-San Joaquin County No. 2)
• North San Joaquin Water
Conservation District
• Central Delta Water Agency • Oakdale Irrigation District • Central San Joaquin Water Conservation
District
• San Joaquin County
• City of Lodi • South Delta Water Agency
• City of Manteca • South San Joaquin Groundwater
Sustainability Agency
• City of Stockton • Stockton East Water District
• Linden County Water District • Woodbridge Irrigation District GSA

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84 The service areas for each of these agencies is shown in Figure 4.

Figure 4. Areas Served by ESJGWA Member GSAs.
(Source: Eastern San Joaquin Groundwater Authority, “Members.” http://www.esjgroundwater.org/About- Us/Members)
Reason for Investigation
The Grand Jury received a citizen’s written complaint, conducted an interview, and subsequently reviewed issues concerning public outreach and engagement by the ESJGWA. According to the State’s publication, Governments Working Together, A Citizen’s Guide to Joint Powers Agreements, the Grand Jury is an agency for the public that can provide independent oversight of Joint Powers Authorities such as the ESJGWA. Due to the significance of water issues to the citizens of San Joaquin County, the ESJGWA’s activities were an important subject for investigation.

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85 Method of Investigation
Owing to the history and complexity of water issues and entities in the Eastern San Joaquin Subbasin, the 2022-2023 Grand Jury concentrated its investigation on the transparency of the ESJGWA’s meetings, public engagement, and decision-making processes; its efforts to encourage and facilitate public participation during and after the development of its initial Groundwater Sustainability Plan (GSP) as required by the Sustainable Groundwater Management Act (SGMA); and the correctness and transparency of its financial records. The Grand Jury did not evaluate the substantive actions recommended in the Groundwater Sustainability Plan adopted by the ESJGWA.

The Grand Jury reviewed the legal requirements and State Department of Water Resources (DWR) recommended actions for developing a GSP; the ESJGWA’s governance documents and bylaws; the meeting minutes for the ESJGWA Board and other committees; ESJGWA and GSA websites; presentations and budgets; technical and outreach materials related to how the ESJGWA developed its GSP; and correspondence from stakeholder organizations. The Grand Jury conducted 12 interviews with current and former ESJGWA and GSA Board members, County officials, staff, and stakeholders. Grand Jury members also attended several ESJGWA and GSA Board meetings.

Materials Reviewed
• 2020–2021 San Joaquin County Civil Grand Jury. Independent Special Districts:

Transparency “Not Found,” Case #0220.
• California Department of Water Resources. Guidance Document for Groundwater Sustainability Plan Stakeholder Communication and Engagement. January 2018. • California State Legislature, Senate Local Government Committee. Governments Working Together, A Citizen’s Guide to Joint Powers Agreements. August 2007. • California State Legislature, Senate Local Government Committee. What’s So Special About Special Districts? A Citizen’s Guide to Special Districts in California. Third Edition, February 2002.
• Eastern San Joaquin Groundwater Authority. Stakeholder Engagement & Public Outreach Plan DRAFT. June 25, 2018.
• Eastern San Joaquin Groundwater Authority Bylaws. August 9, 2017. • Eastern San Joaquin Groundwater Authority. Eastern San Joaquin Groundwater Subbasin Water Annual Reports for 2019-2021.
• Joint Exercise of Powers Agreement Establishing the Eastern San Joaquin Groundwater Authority. Adopted April 17, 2017.
• “Letter of Extension of the Memorandum of Agreement Forming the Cal Water-County Groundwater Sustainability Agency.” December 17, 2019.
• “Memorandum of Agreement Forming the Cal Water-County Groundwater Sustainability Agency.” May 23, 2017.
• San Joaquin County Public Works Department. Eastern San Joaquin Groundwater Authority Board & Steering Committee (SC) Assignments to TAC. Undated. • State Water Resources Control Board. Sustainable Groundwater Management Act, Stakeholder Inclusion. November 2022.

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86 Websites Searched
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• Baig, Yousef. “Broad-Based Buy-in Is Key to Bay-Delta Water Plan.” CalMatters. September 12, 2022. https://calmatters.org/commentary/2022/09/broad-based-buy-in-is-key-to-bay- delta-water-plan/. Accessed February 25, 2023.
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https://www.theguardian.com/environment/2020/feb/27/california-groundwater-sgma- law-what-does-it-mean. Accessed October 29, 2022.
• Calaveras County Water District, Board of Directors. https://ccwd.org/about-us/board-of- directors/. Accessed November 4, 2022.
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• California State Controller. https://www.sco.ca.gov/. Accessed January 28, 2023. • “California Water 101 - Water Education Foundation.” Water Education Foundation.

September 15, 2014, https://www.watereducation.org/photo-gallery/california-water-101.

Accessed January 16, 2023.
• “California’s Groundwater Live.” sgma.water.ca.gov.
https://sgma.water.ca.gov/CalGWLive/#groundwater. Accessed February 21, 2023. • Central San Joaquin Water Conservation District, Board of Directors. http://csjwcd.com/about-csjwcd/board-of-directors/. Accessed November 4, 2022. • City of Manteca, Mayor and City Council. https://www.ci.manteca.ca.us/Mayor- Council/Pages/David%20Breitenbucher.aspx. Accessed November 4, 2022. • City of Lodi, Council Members. https://www.lodi.gov/879/Council-Members. Accessed November 4, 2022.
• Draft -- Best Management Practices for Sustainable Management of Groundwater.

Water.ca.gov. https://water.ca.gov/-/media/DWR-Website/Web- Pages/Programs/Groundwater-Management/Sustainable-Groundwater-Management/Best- Management-Practices-and-Guidance-Documents/Files/BMP-6-Sustainable-Management- Criteria-DRAFT_ay_19.pdf. Accessed February 5, 2023.
• Eastern San Joaquin Groundwater Authority.
http://www.esjgroundwater.org/Portals/0/assets/docs/agendas/2019/ESJ-Groundwater- Sustainability-Workgroup-Stakeholder-Assessment-Highlights-Report.pdf • Eastern San Joaquin Groundwater Authority. Eastern San Joaquin Groundwater Sustainability Plan. June 2022. https://www.sjgov.org/docs/default-source/public-works-

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87 documents/water-resources/final-esj-revised-gsp_june2022_clean.pdf?sfvrsn=675b059b_5.

Accessed February 5, 2023.
• Eastern San Joaquin Groundwater Basin Authority. www.gbawater.org. Accessed October 12, 2022.
• Escriva-Bou, Alvar, et al. “Groundwater Recharge.” Public Policy Institute of California. https://www.ppic.org/publication/groundwater-recharge/. Accessed February 25, 2023. • Garner, Eric, et al. “The Sustainable Groundwater Management Act and the Common Law of Groundwater Rights—Finding a Consistent Path Forward for Groundwater Allocation.” UCLA Journal of Environmental Law and Policy, vol. 38, no. 2. 2020. https://doi.org/10.5070/l5382050109. Accessed November 17, 2022. • Gosselin, Paul. “Through Challenges of Drought, Locally Led Solutions for Groundwater Sustainability Are Advancing.” water.ca.gov. March 11, 2022. https:// water.ca.gov/News/Blog/2022/March-22/Through-Challenges-of-Drought-Locally-Led- Solutions-for-Groundwater-Sustainability-Are-Advancing. Accessed November 30, 2022. • Greater San Joaquin County Regional Water Coordinating Committee. www.esjirwm.org.

Accessed October 12, 2022.
• “Groundwater.” Water Education Foundation.
www.watereducation.org/aquapedia/groundwater. Accessed November 17, 2022. • “Groundwater & Drought | USGS California Water Science Center.” ca.water.usgs.gov. https://ca.water.usgs.gov/california-drought/california-drought-groundwater.html.

Accessed January 16, 2023.
• “Groundwater: Understanding and Managing This Vital Resource.” ArcGIS StoryMaps.

March 23, 2021.
https://storymaps.arcgis.com/stories/ff075c25b77e4b1d95ce86a82bf0fe96. Accessed January 31, 2023.
• Hanak, Ellen, et al. A Review of Groundwater Sustainability Plans in the San Joaquin Valley.

May 14, 2020.
• Hank, Helen, et al. “Groundwater in California - Public Policy Institute of California.” Public Policy Institute of California. May 2017. https://www.ppic.org/publication/groundwater-in- california/.
• “History of Water Development and the State Water Project.” water.ca.gov. https://water.ca.gov/Programs/State-Water-Project/SWP-Facilities/History. Accessed October 29, 2022.
• Horton, Michelle. “The Past, Present and Future of California’s Groundwater | Water in the West.” waterinthewest.stanford.edu. June 11, 2020.
https://waterinthewest.stanford.edu/news-events/news-insights/thepast-present-and- future-californiasgroundwater. Accessed February 25, 2023. • Jezdimirovic, Jelena, et al. “Water Availability for San Joaquin Valley Farms: A Balancing Act.” Public Policy Institute of California. April 21, 2020. https://www.ppic.org/blog/water- availability-for-san-joaquin-%20valley-farms-a-balancing-act/. Accessed February 25, 2023. • Jezdimirovic, Jelena, et al. “What’s the Plan to End Groundwater Overdraft in the San Joaquin Valley?” Public Policy Institute of California. April 6, 2020.

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88 https://www.ppic.org/blog/whats-the-plan-to-end-groundwater-overdraft-in-the-san- joaquin-valley/. Accessed October 29, 2022.
• Kiparsky, Michael. “Unanswered Questions for Implementation of the Sustainable Groundwater Management Act.” California Agriculture, vol. 70, no. 4. August 2016. pp. 165–168. https://doi.org/10.3733/ca.2016a0014.
• Linden County Water District. http://www.lindencwd.com/. Accessed November 4, 2022. • News, Bay City. “Scientists Use Imaging Technology in Quest to Recharge State’s Shrinking Groundwater Table.” Stocktonia. November 21, 2022.
https://stocktonia.org/2022/11/21/scientists-use-imaging-technology-in-quest-to-recharge- states-shrinking-groundwater-table/. Accessed February 25, 2023. • North San Joaquin Water Conservation District. https://nsjgroundwater.org/. Accessed November 4, 2022.
• Oakdale Irrigation District. https://www.oakdaleirrigation.com/division-3-director-tom- orvis-president. Accessed November 4, 2022.
• Peterson, Molly. “Time’s up on Groundwater Plans: One of the Most Important New California Water Laws in 50 Years Explained.” KQED. January 20, 2020. https://www.kqed.org/science/1955916/times-up-on-groundwater-plans-one-of-the-most- important-new-california-water-laws-in-50-years-explained. Accessed January 16, 2023. • Rasmussen, Carol. Hartono, Naomi, Ed. “NASA Measures Underground Water Flowing from Sierra to Central Valley.” National Aeronautics and Space Administration. January 23, 2023. https://www.nasa.gov/feature/jpl/nasa-measures-underground-water-flowing-from-sierra- to-central-valley. Accessed January 31, 2023.
• Rosato, Jr., Joe. “Central Valley Farmer’s Bold Water Experiment Setting Example for California.” NBC Bay Area. April 22, 2022. https://www.nbcbayarea.com/news/local/stories- by-joe-rosato-jr/central-valley-farmers-bold-water-experiment-setting-example-for- california/2871668/. Accessed January 13, 2023.
• San Joaquin County Administrator’s Office. “OpenGov Financial Data Transparency Portal.” https://www.sjgov.org/department/cao/programs-services/opengov-financial-data- transparency-portal. Accessed May 9, 2023.
• San Joaquin County Auditor-Controller. https://www.sjgov.org/department/aud/home.

Accessed February 8, 2023.
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Accessed April 18, 2023.
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https://www.sjgov.org/department/pwk/home. Accessed February 2, 2023. • “San Joaquin Valley Groundwater Basin Eastern San Joaquin Subbasin Basin Boundaries and Hydrology.” January 20, 2006.
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https://www.waterboards.ca.gov/water_issues/programs/sgma/development.html.

Accessed November 17, 2022.

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89 • Shao, Elena. “California Has Begun Managing Groundwater under a New Law. Experts Aren’t Sure It’s Working.” Inside Climate News. February 17, 2022. https://insideclimatenews.org/news/17022022/california-groundwater-law/. Accessed January 16, 2023.
• Sommer, Lauren. “3 reasons why California's drought isn't really over, despite all the rain.” NPR. https://www.npr.org/2023/03/23/1165378214/3-reasons-why-californias-drought- isnt-really-over-despite-all-the-rain. Accessed March 24, 2023. • South San Joaquin Groundwater Sustainability Agency. https://www.ssjid.com/about- us/agendas-and-minutes-south-san-joaquin-groundwater-sustainability-agency-ssjgsa/.

Accessed November 4, 2022.
• South San Joaquin Irrigation District. https://www.ssjid.com/about-us/board-of- directors/bob-holmes/. Accessed November 4, 2022.
• Stockton East Water District. https://sewd.net/elected-board-members/. Accessed November 4, 2022.
• Stockton East Water District. “Encouraging the Use of Surface Water.” Stockton East Water District. https://sewd.net/encouraging-the-use-of-surface-water/. Accessed February 21, 2023.
• Sustainable Groundwater Management Act: AB 1739 (Dickinson), SB 1168 (Pavley), and SB 1319 (Pavley).
• Sustainable Groundwater Management Act Overview – Fillmore & Piru Basins Groundwater Sustainability Agency. https://www.fpbgsa.org/gsa-formations/sustainable-groundwater- management-act-overview/. Accessed November 17, 2022.
• “Sustainable Groundwater Management Act (SGMA).” California Department of Water Resources. 2014. https://water.ca.gov/Programs/Groundwater-Management/SGMA- Groundwater-Management. Accessed November 17, 2022.
• Wikipedia Contributors. “Sustainable Groundwater Management Act.” Wikipedia.

Wikimedia Foundation. September 5, 2018.
https://en.wikipedia.org/wiki/Sustainable_Groundwater_Management_Act. Accessed November 30, 2022.
• Wyatt, Dennis. “Flood Irrigation Has Positive Water Impacts.” www.mantecabulletin.com.

August 2, 2022. www.mantecabulletin.com/news/local-news/flood-irrigation-has-positive- water-impacts/. Accessed December 14, 2022.
• “Your Views: It Is Time to Implement the Bay-Delta Water Quality Control Plan.” The Stockton Record. September 24, 2022.
https://www.recordnet.com/story/opinion/2022/09/23/lack-water-flows-delta-draw- public-comment/8093803001/. Accessed September 28, 2022. • Zhong, Raymond. “Parched California Misses a Chance to Store More Rain Underground.” The New York Times. February 21, 2023.
https://www.nytimes.com/2023/02/21/climate/california-storms-groundwater-aquifer- recharge.html?smid=nytcore-ios-share&referringSource=articleShare. Accessed February 21, 2023.

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90 Discussions, Findings, and Recommendations

1.0 Outreach and Engagement
Much of what the Sustainable Groundwater Management Act (SGMA) requires of local agencies like the Eastern San Joaquin Groundwater Authority (ESJGWA) is beyond the scope of this Grand Jury investigation. However, the statute and California Department of Water Resources (DWR) regulations include provisions to promote involvement of interested parties in the formation of a Groundwater Sustainability Agency (GSA) and in the development and implementation of a Groundwater Sustainability Plan (GSP). As the local agency formed specifically to “cooperatively carry out the purposes of SGMA” and “satisfy the requirements of SGMA for coordination among GSAs” (JPA, Article 3.4(c) and (e)), the Grand Jury determined to investigate whether the ESJGWA had fulfilled, and is currently fulfilling, those public outreach obligations.

DWR’s primary role in SGMA is to give guidance and support to GSAs. This is done through regional coordinators along with staff from four regional offices to serve as primary points of contact for GSAs. This support includes guidance on communication and engagement. During the Grand Jury’s investigation, it became evident that communication and engagement while developing the GSP was challenging. To support ESJGWA, DWR provided grant funding and contracted consultants to assist with outreach efforts.

1.1 Requirements and Suggested Practices for Outreach Under SGMA In January 2018, DWR published the Guidance Document for Groundwater Sustainability Plan Stakeholder Communication and Engagement. The guidance provided that: “Other than what is required by statute or regulation, GSAs have discretion on how they communicate and engage with the beneficial uses and users of groundwater within a basin,” and “expertise of stakeholders may increase the chance that the GSAs are using best available information and best available science for GSP development.” The guidance document included a chart to help GSAs determine who should be invited to engage in GSP development. The chart is reproduced in Appendix A.

In addition, according to the State-prepared fact sheet, Sustainable Groundwater Management Act, Stakeholder Inclusion: “SGMA requires consideration of the interests of diverse, social, cultural, and economic elements of the populations within the basin during plan development. Collaborative and inclusive processes can make plans more resilient by increasing buy-in and trust. . .. It is important that GSAs send appropriate notices; hold meetings in times, places, and manners that support effective engagement; and acknowledge issues raised.”
To promote inclusiveness in the development and implementation of a basin’s GSP, SGMA requires that an agency take the following actions:
• Consider the interests of all beneficial uses and users of groundwater in the basin, including agricultural and domestic users, municipal uses, environmental uses, users of interconnected surface water, Federal and State agencies, California Native American tribes, and disadvantaged communities (Water Code, Section 10723.2). • Maintain a list of interested persons to whom the GSA will send notices regarding plan development, meetings, and other activities (Water Code, Section 10723.4).

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91 • Issue a written statement describing the manner in which interested parties may participate in the development and implementation of the plan. This statement must be provided to cities, counties, and public water systems located in the plan area (Water Code, Section 10723.8).
• Provide notice and hold a public hearing at least 90 days after providing notice prior to adoption or amendment of a plan (Water Code, Section 10728.4). • Describe GSA outreach efforts in plans (California Code of Regulations, Section 354.10(d)(3)).

SGMA also suggests the agency implement the following actions:
• Hold meetings in places and at times that support participation, including evening meetings to accommodate those unable to otherwise attend.
• Send notices both electronically and via mail.
• Send notices in languages that people understand and otherwise communicate effectively across diverse language groups.
• Ensure the notices are sent to disadvantaged communities, public water suppliers serving those communities, small agricultural operations, and other interest groups who may face barriers to participating in GSA efforts. People who are not active in, or represented by, an existing agency, association, or group, may need additional effort to reach and engage. • Document GSA outreach efforts.
• Share outreach responsibilities with partner agencies that are available and have expertise in the subject.

1.2 Outreach Efforts Before and After Initial Submittal of the GSP

1.2.1 Public Meetings
The Grand Jury found that during development of the initial GSP, from July 2017 until submittal to the DWR in late January 2020, the ESJGWA held numerous meetings that were open to the public, including 28 Board of Directors meetings and 20 Advisory Committee meetings. Since the initial GSP submittal, from February 2020 until present (April 2023), 21 Board meetings and 22 Steering Committee meetings have been held. As described fully in Section 3.2.1, ESJGWA Board and Advisory/Steering Committee meetings have consistently been held on weekdays during the morning.

1.2.2 Informational Open House Events
During the period of initial GSP development, the ESJGWA held four informational open house events: August 29, 2018 (Stockton); November 7, 2018 (Manteca); February 12, 2019 (Lockeford); and July 18, 2019 (Stockton). The purpose of these informational events, according to event announcement flyers, was to offer “a series of public meetings to provide updates on local efforts to meet the State’s SGMA goals.” The flyers further invited the public “to learn about sustainable groundwater management. You will have the opportunity to ask questions and provide input about the Groundwater Sustainability Plan.” In addition to these general events, the ESJGWA also

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92 provided seven presentations to targeted community groups in 2018 and 2019. Some member GSAs provided outreach presentations to their communities during this same period. Other than a SGMA update event held on July 22, 2021, in Ripon, the Grand Jury found no additional public information events have been held since the initial GSP submittal to the DWR in January 2020.

According to the ESJGWA’s June 2022 GSP update, a total of 175 individuals attended the four open houses. However, multiple witnesses testified that with one exception, the open house events had low attendance, with only 15-20 members of the public over the course of several hours. An opinion expressed by several witnesses was that “trying to get public input is really tough,” especially with a topic as esoteric as groundwater management.

1.2.3 Communications Responsibility and Planning
An important consideration about effective public engagement and outreach regarding SGMA and the GSP is: whose responsibility is it, the ESJGWA’s or the individual member GSA’s? The answer is both. JPA Article 2.8 states in part, “The Members intend through this Agreement to cooperate to…conduct outreach to Other Basin Agencies and private parties…” Both the ESJGWA and individual member GSAs are required by SGMA to engage in outreach activities. Some witnesses stated that, in addition to their efforts, the ESJGWA looked to individual GSAs to engage with their respective communities. However, the Grand Jury examination of member GSA websites shows a wide variation in the amount of information provided. Some have a great deal of information about SGMA and the GSP, while others have some, and a few have no information. A few GSAs held outreach events during GSP development, but the majority did not. The Grand Jury concluded that between the ESJGWA and member GSAs, outreach and engagement efforts have been uneven.

The ESJGWA hired consultant firms both to develop the GSP and to assist in formulating and executing a public outreach and engagement strategy, which was to be implemented while the GSP was being completed. A Stakeholder Engagement & Public Outreach Plan, dated June 25, 2018, and labeled DRAFT, was posted to the ESJGWA’s website, but as of April 2023 had been removed. The draft plan is included as an appendix to the June 2022 version of the GSP. Based on witness testimony, the Grand Jury concluded this plan was never finalized nor formally implemented by the Board, though aspects of it appear to have been used.

Clear messaging to gain stakeholder interest was problematic given the technical and complex nature of groundwater management. This difficulty was evidenced by the Grand Jury’s questioning of witnesses critical of ESJGWA’s efforts. To better understand the outreach shortfalls, the Grand Jury questioned what the message “should be” and how best to engage the public. No specific messaging was suggested, while outreach ideas included visiting local community areas to conduct individual discussions or sending notifications by mail, which some witnesses stated was not effective. Many affirmed the issue was complicated.

Witness testimony and minutes from recent Board and Steering Committee meetings demonstrate a renewed interest in outreach and engagement by the ESJGWA motivated by the five-year GSP update cycle required under SGMA. Funds for outreach efforts have been limited; however, for 2023, DWR has funded a consultant firm to work with the Board to develop a new communications and engagement plan. Current efforts include, as suggested by SGMA, efforts to “share outreach responsibilities with partner agencies that are available and have expertise in the subject.”

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93 1.2.4 Sustainability Work Group
One aspect of the draft Stakeholder Engagement & Public Outreach Plan that appears to have been implemented was the Stakeholder Work Group (subsequently renamed Sustainability Work Group), which began in July 2018. The Sustainability Work Group consisted of 16 members representing a range of interests, including wildlife habitat, water conservation, agriculture/farming, and environmental justice. Aided by a DWR facilitator and other consultant personnel, the group met monthly to “review and/or provide input to the consulting team who is developing the GSP about groundwater-related issues.” The Eastern San Joaquin Groundwater Sustainability Work Group Stakeholder Assessment Highlight Report, produced by consultant personnel and dated December 31, 2018, described inadequacies and frustrations perceived by some members with the work group and GSP development process, including:
• Insufficient outreach to and inclusion of potential members of other organizations. • A concern the work group was just a “check-the-box” exercise and would not result in meaningful contributions to the GSP.
• Insufficient time at meetings for discussion after information was presented to the group. • Lack of clarity on how work group comments will be incorporated into GSP development. • A need for more diverse representation in the ESJGWA organization and its decision making; specifically, to include environmental and environmental justice interests. • A belief that outreach to the broader public was lacking and that many people who could be impacted by the GSP were not aware of the development process.

Testimony offered by some witnesses echoed and added to concerns expressed by members of the Sustainability Work Group, while others said they felt ESJGWA consultants had done a reasonably good job. Some witnesses testified that suggestions and ideas from the work group were completely ignored, while others said they had been used to inform the GSP. A witness testified consultant staff did not possess detailed knowledge of local issues facing specific groups such as some urban water users and small domestic well owners. The Sustainability Work Group continued to meet until December 2019, at which point it was disbanded. Witness testimony included the recommendation to reactivate the Sustainability Work Group.

1.2.5 List of Interested Persons
In accordance with Water Code Section 10723.4, the ESJGWA developed a list of persons who expressed interest in the development and implementation of the subbasin GSP. According to the revised GSP (June 2022), this list was developed from “existing stakeholder lists and databases from prior Eastern San Joaquin Subbasin engagement efforts, conducting new research, and obtaining referrals from key stakeholders and stakeholder groups.” Interested persons could also subscribe to the mailing list on esjgroundwater.org. Flyers advertising the four outreach events described in Section 1.2.2 were distributed to individuals and groups on the interested persons list via email and hard copies.

The interested persons list was used recently by ESJGWA’s consultant for a survey in the initial stages of developing the new communication and engagement plan. The ESJGWA consultant found

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94 the list to be “weak,” and they will be connecting with other groups to broaden and update their outreach. One witness testified that ESJGWA outreach efforts since January 2020 have been “minimal” and had been curtailed because of budgetary constraints, while another stated they had not received any notifications from the ESJGWA since GSP submittal.

Findings
F1.2.1 The Eastern San Joaquin Groundwater Authority has provided no public information events on the status of the adoption and implementation of the Groundwater Sustainability Plan since July 2021, leaving the public largely unaware of what the Eastern San Joaquin Groundwater Authority is doing regarding groundwater sustainability and the associated effects and costs of Groundwater Sustainability Plan implementation.

F1.2.2 The Eastern San Joaquin Groundwater Authority developed but never formally approved or adopted an engagement and public outreach plan, and although the Department of Water Resources is now funding a consultant firm to work with the Board of Directors to develop one, public communications and engagement efforts so far have been limited and ineffective.

Recommendations
R1.2.1 By November 1, 2023, the Eastern San Joaquin Groundwater Authority Board of Directors, in consultation with member Groundwater Sustainability Agencies, develop, adopt, and implement a schedule for regular public events to provide information on Groundwater Sustainability Plan adoption and implementation and the associated effects and costs.

R1.2.2 By December 31, 2023, the Eastern San Joaquin Groundwater Authority Board of Directors follow the Department of Water Resources-funded communications consultant’s recommendations in developing, adopting, and implementing a communications and outreach plan and that the plan be posted to its website upon adoption.

1.3 Efforts to Reach Diverse Population Groups
SGMA requires that agencies developing Groundwater Sustainability Plans, “Consider the interests of all beneficial uses and users of groundwater in the basin, including…disadvantaged communities” (Water Code, Section 10723.2). DWR defines a disadvantaged community (DAC) as a community with an annual median household income (MHI) that is less than 80% of the Statewide annual MHI. Multiple communications from various stakeholder groups to the ESJGWA, which were provided to the Grand Jury, questioned the DWR’s income-only-based definition of DAC. These stakeholders urged the ESJGWA to consider other factors, such as socioeconomics, public health, and environmental hazards, in determining whether a community is “disadvantaged.” In its GSP, the ESJGWA includes a description of DACs they identified in the subbasin. However, there is no mention of outreach efforts tailored to DACs, only that DACs are included in the overall target audience for outreach and engagement efforts. Specifically, two witnesses noted that domestic well owners and small community water systems had not been engaged, either before GSP submittal or since. Additional witness testimony acknowledged that these users might not be DACs as defined by DWR, but insufficient engagement of these users remains the case.

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95 In reviewing numerous printed and electronic materials used by the ESJGWA for outreach and educational purposes, the Grand Jury noted they were primarily in English, with a few flyers also in Spanish. No materials were in other languages. According to the San Joaquin County Council of Governments, 39 languages are spoken in County homes, including significant numbers speaking Spanish, Tagalog, Vietnamese, Mandarin, Cantonese, and Arabic.

Findings
F1.3.1 The Eastern San Joaquin Groundwater Authority’s efforts to identify and engage with people who are members of disadvantaged communities have been limited, potentially excluding members of these communities from learning about and having a voice in groundwater sustainability plans.

F1.3.2 Informational materials used to communicate with and inform residents of the subbasin have been in English and Spanish only, thus leaving subbasin residents who speak and read other languages potentially uninformed about the Eastern San Joaquin Groundwater Authority and its activities.

Recommendations
R1.3.1 By November 1, 2023, the Eastern San Joaquin Groundwater Authority Board of Directors develop specific methods for better identifying and engaging with disadvantaged communities in the Eastern San Joaquin Subbasin and include these in the communication and engagement plan currently being developed with the Department of Water Resources.

R1.3.2 By November 1, 2023, the Eastern San Joaquin Groundwater Authority Board of Directors develop methods for communicating more effectively with major non-English speaking groups and include these in the communication and engagement plan currently being developed with the Department of Water Resources.

2.0 Funding, Budgets, and Expenditures
The Eastern San Joaquin Groundwater Authority (ESJGWA) was created to develop a Groundwater Sustainability Plan (GSP) that achieves groundwater sustainability in the Eastern San Joaquin Subbasin by 2040. The Subbasin’s existing independent water management agencies agreed that cooperating to form the ESJGWA was an efficient and cost-effective method to develop the GSP for initial and ongoing compliance with the Sustainable Groundwater Management Act (SGMA) within the Subbasin (Joint Powers Agreement, Recital E). Plan development entailed obtaining and coordinating the necessary funding, staffing, data collection and analysis, and identifying projects or strategies to meet current and future water demands.

Preparing and submitting the GSP to the Department of Water Resources (DWR) for review and approval within the deadlines established by SGMA and DWR was a complex and expensive challenge. This successful endeavor by the ESJGWA is singular within the State. Of special note is the number and diversity of the 16 GSAs within the Subbasin collaborating on one plan for the entire Subbasin. These autonomous agencies vary in size, user types, water sourcing methods, and administrative and financial levels.

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96 The recent approval by DWR of the ESJGWA’s GSP is a notable achievement and ensures water management in San Joaquin County remains local as the GSAs adhere to the approved plan. A significant benefit of retaining local control rather than the State taking control is much lower costs to all users within the Subbasin area. In addition, proposals for projects supporting GSP implementation, when presented as a unified ESJGWA body, are more substantial and compelling for obtaining financial support in the form of grants and/or tax or fee increases to ensure project completion and continuous success toward the sustainability goal.

In reviewing their annual budgets, the Grand Jury found the primary source of funding for the ESJGWA’s work to this point has been DWR grants (roughly 50% of funding). The balance of ESJGWA funding comes from a combination of GSA member contributions and the County’s Water Investigation Zone 2 fund (about 25% each). The GSA member contribution is a cost allocation determined by a formula established by the ESJGWA Board to be paid by each member GSA (JPA, Article 3.9.c.). As discussed in more detail below, the Zone 2 fund revenue derives from a Countywide property fee.

2.1 Water Investigation Zone 2 Funds Used By the ESJGWA The Grand Jury investigated the use of Zone 2 funds by the ESJGWA. Zone 2 revenue pays for water resource planning activities of the San Joaquin County Flood Control & Water Conservation District (District), which reports directly to the County Board of Supervisors. The District established Zone 2 to provide a revenue source through a property fee levied on all properties within the County. The planning activities funded by Zone 2 must support the six goals of the County’s 2015 Strategic Plan to Meet Water Needs, one of which is “manage groundwater in eastern San Joaquin County” (County Resolution R-15-17).

The Grand Jury was particularly interested in the use of Zone 2 funds relating to ESJGWA member Cal Water. Pursuant to the JPA that formed the ESJGWA, once all autonomous member water agencies within the Subbasin had formed GSAs and established their boundaries, San Joaquin County formed a GSA that included all remaining properties. California Water Service (Cal Water) is a private investor-owned utility that delivers water to properties both within the City of Stockton and to unincorporated areas within the County. Under SGMA, private investor-owned utilities such as Cal Water cannot form their own GSAs but can participate in a limited fashion in connection with a local agency. The City of Stockton retained Cal Water’s service area within its GSA, while the County opted to enter into a Memorandum of Agreement (MOA) with Cal Water. The MOA divides the County’s GSA into two separate areas, called County GSA (also identified as Eastern San Joaquin 1) and Cal Water-County GSA (also identified as Eastern San Joaquin 2). The MOA grants Cal Water limited participation rights in ESJGWA planning efforts in exchange for Cal Water’s agreement to pay all costs associated with Cal Water-County GSA. (MOA, Article 4) The Grand Jury reviewed available financial records of the ESJGWA and the County (listed in Section 2.2 below) and determined that Cal Water has paid all ESJGWA costs associated with the Cal Water-County GSA, as allocated by the formula used for cost allocation to all GSAs located within the County. The cost allocation paid by each GSA within the ESJGWA, including Cal Water-

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97 County GSA, is reduced by a credit from Zone 2 funds. The Eastern San Joaquin GSA represents properties located outside the County and does not receive the Zone 2 credit.

Findings
F2.1.1 The Memorandum of Agreement with Cal Water benefits the County and its taxpayers by reducing the cost allocation paid by the County and incorporates Cal Water’s expertise and support into the Groundwater Sustainability Plan development and implementation.

F2.1.2 Zone 2 property fees are collected by the County within the Cal Water-County GSA boundaries. Therefore, it is reasonable and equitable that Cal Water-County GSA receives the same reduction to its member cost allocation as all other County Groundwater Sustainability Agencies to reflect the property fees paid into the Zone 2 fund.

2.2 Transparency and Ease of Access to Financial Information During its investigation, the Grand Jury requested, received, and reviewed the following financial data: Zone 2 Fund Reports (2016-2022), ESJGWA Fund Reports (2018-2022), Countywide annual audits (2014-2021), Chart of Accounts, Vendor Payments (2015-2022), ESJGWA and Zone 2 projected and actual budgets, and annual County proposed budget reports prepared for the Board of Supervisors. In addition, Grand Jury members reviewed the County’s OpenGov Financial Data Transparency Portal. The Grand Jury also heard testimony from County officials familiar with ESJGWA financial processes.

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