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San Francisco Public Library 


Not to be taken from the Library 


3 1223 06019 8117 

JAN 3 1 2002 

3 1223 06019 8117 





FEB 8 1978 







V Foreman's Letter to the Presiding Judge 

116 Adult Probation Department 

54 Aging, Commission on the 

64 Agriculture and Weights and Measures, Department of 

19 Airports Commission 

86 Animal Control Center 
10 Art Commission 

87 Asian Art Museum 
100 Assessor 

83 California Academy of Sciences 

60 Chief Administrative Officer 

91 City Attorney 

48 City Planning, Department of 

57 Civil Service Commission 

14 Community College District 

5 Controller 

60 Coroner 

66 County Clerk 

89 District Attorney 

62 Electricity, Department of 

7 Electronic Data Processing 


18/02 38 

1'AdLK OF CONTENTS (continued) 

18 Emergency Services 
oA Finance and Records, Department of 
85 Fine Arts Museums of San Francisco 
lo Fire Department 
S? Health Service System 
108 Juvenile Court - Youth Guidance Center 
Law Library 
1 Mayor 
105 Municipal Court 
k^ Parking Authority 
24 Permit Appeals, Board of 
L23 Personnel and Management 
21 Police Department 
2y Port Commission 

68 Public Administrator - Public Guardian 
92 Public Defender 
7r Public Health, Department of 
2? Public Library 
33 Municipal Railway 
'6 Public WorkSj Department of 
?4 Purchasing Department 

R^al Estate Department 
67 Recorder 
) Recreation and Park Department 


TABLE OF CONTENTS (continued) 

69 Registrar of Voters 
58 Retirement System 
95 Sheriff 

5^ Social Services, Department of 

103 Superior Court 

82 Supervisors, Board of 

70 Tax Collector 
101 Treasurer 

13 Unified School District 

28 War Memorial 

55 Women, Commission on the Status of 






Stelios M. Andrew 
Miss Barbara A. Belling 
Miss Kathleen M. Calkin 
Mrs. Mary B. Donnelly 
Lawrence M. DuVall 
Earl L. Ellingson 
Ms. Leslie Evans 
Wolfgang Hellpap 

George A. Kardum 
Frank L. Markey 
Mrs. Aileen McCarty 
Mrs. Dagmar G. Meyer 
Francis J. Murphy 
Seizo F. Oka 
Miss Irene G. O'Neill 
Mrs. Edith Perlman 

Carlos E. Xavier 

Miss Suzanne E. Perry, Secretary 

Robert E. Graham, Foreman 

Impaneled, August 1, 1976 

Discharged, July 7, 1977 


City and County of San Francisco 



Room iss. City Hall 
telephone: 558-5010 

Honorable Henry R. Rolph 
Presiding Judge , Superior Court 
City and County of San Francisco 
Room 465, City Hall 
San Francisco, California 94102 

Dear Judge Rolph: 

I am honored to transmit herewith the investigatory grand jury 
reports prepared by the 1976-77 Grand Jury for the City and County 
of San Francisco. 

You will, of course, note that despite our intentions one year 
ago, not all of the departments of the City and County of San Francisco 
have been investigated and reported upon. In part, this is because 
of the time required for the preparation of the extensive reports on 
other departments and, in part, it is because of the unique character 
of a citizens' Grand Jury. I will not apologize for failure of the 
group to produce a report on each department. It is not possible to 
investigate thoroughly and competently the workings of a government 
as complex as that of the City and County of San Francisco in the 
short time of one year. 

I feel it incumbent upon me to evaluate our term of office and 
to assess our successes. This Grand Jury was the first to be chosen 
by lot from the voter rolls; its make-up was widely diverse in income, 
in ages, in ethnic origin, and in professional or occupational back- 
ground. This diversity brought refreshing candor to our discussions 
and deliberations and provided divergent viewpoints. 

Nearly all of the members of this Grand Jury were employed; this 
fact presented our first difficulty. Employers were not uniformly 
understanding of the time required to competently and effectively 
investigate and report on the functions of the various city depart- 
ments. The time spent by some members of the Grand Jury during work- 
ing hours caused a certain degree of difficulty in their employment. 

Another problem was that the randomly selected Grand Jury was 
not uniformly well-received by City department heads. Several man- 
agers almost routinely made and cancelled meetings with us or even 
failed to appear at those conferences scheduled. Some department 
heads made rather blatant attempts to influence the opinions of the 
stronger willed members of the committees investigating their depart- 
ments. Some department heads clearly expected the Grand Jury to do 
nothing more than carry their message of budgetary plight to the pub- 
lic, the press, the Board of Supervisors, or whoever else they felt 


could assist them. Despite this treatment by a small minority of 
the leaders of our government, we have attempted to maintain an 
objective attitude in our evaluation. 

Those few problems notwithstanding, I do feel a Grand Jury 
chosen at random can effectively perform within certain limitations. 

First, it has become quite apparent to us that the enormous 
commitment of time, energy, and interest on the part of each mem- 
ber was not adequately stressed at the time we were chosen at random 
to serve on the Grand Jury. I would recommend therefore that each 
retiring foreman participate, by invitation of the Presiding Judge, 
in a discussion with prospective Grand Jury members concerning the 
duties and obligations of the Grand Jury with the view towards obtain- 
ing truly dedicated individuals with ample time and a desire to serve 
the city. 

Secondly, because the investigatory Grand Jury is chosen at 
random, there might not be an adequate experience level in business, 
management, accounting, or personnel. Lacking this experience level 
may result in a Grand Jury merely accepting the statements of those 
in City government as gospel. I would recommend, therefore, that 
selection areas of the city services or specific topics be investigat- 
ed depending on the interests and background of each Grand Jury. The 
present system of creating seventeen committees for the investigation 
of specific departments becomes extremely repetitive especially where 
no changes have occurred in the operations of some City departments. 
The resulting reports have sometimes read like an introductory civics 
lesson. Larger and more complex problems may be overlooked. A City 
department should not expect an annual review by the Grand Jury. 
Rather, the watchdog Grand Jury should turn its entire attention and 
energy in limited areas where problems have been disclosed in their 
investigations. The continued investigations should be thorough and 
minutely detailed. 

Lastly, I would also recommend further public participation be 
actively solicited to assist the Grand Jury. This Grand Jury solic- 
ited comments on the performance of City departments by means of a 
questionnaire to many community and neighborhood groups. The responses 
received from those neighborhood groups were generally derogatory 
towards the functioning of the City, but they also lacked the specif- 
icity needed to be meaningful in our investigation. Uniform praise 
and enthusiasm was given, however, for being included in the process 
of evaluating the City. Additionally, one committee had several 
afternoon sessions with employees of a specific department on an 
open-house basis. There was an unusually high level of participation 
in this process. The anonymous comments presented to the department 
head and discussed with him resulted in several improvements in the 
operation of that department. 

In conclusion, I would state that I sincerely appreciate the 
guidance and wisdom you have provided me in my duties. I also wish 


to express the appreciation of the Grand Jury for the active assis- 
tance and dedication of Michael Tamony and his staff. 

I would also like to publicly thank the members of the first 
randomly selected Grand Jury, individually, for their time, devotion, 
sacrifice and dedication during this past year. Each person has 
made a unique contribution to the final report. 



iobert E. Graham, Foreman 
1976-77 Civil Grand Jury 



George Moscone has been Mayor of the City and County of 
San Francisco now for approximately 1-1/2 years. In that time he has 
endeavored to create and endorse policy recommendations which would 
help to alleviate some of the confusion established by a City Charter 
written many years ago and based on the needs of that time. 

In spite of his attempt to manage this City and County , he has 
been subject to more verbal abuse and dissension from some members of 
the Board of Supervisors than any Mayor of San Francisco in thirty 
years. His low profile approach has undoubtedly done Mayor Moscone more 
harm than good, and it seems wise that the Mayor present more of his 
programs and endorsements to the people of San Francisco. 

Tax Relief : The budget submitted to the Board of Supervisors by the 
Mayor for the 1976-77 fiscal year, included such property tax relief 
proposals as a parking tax increase and extension of the gross receipts/ 
payroll tax (both originally cut, but returned to the tax rolls on the 
third reading), a property transfer tax, and the request that legisla- 
tion be instituted to increase the Municipal Railway fare. On the third 
reading of the budget, the gross receipts and payroll tax increases were 
adopted, as well as the parking tax increase, but the other relief 
measures were disregarded, rendering the people of San Francisco the 
most staggering property tax rate this City has ever seen. The Muni 
fare increase alone would have been helpful, but an Environmental Im- 
pact Report (EIR) is now required before such an increase can be 
considered, and the Board has advised that a study has not even been 
requested, as an increase is not 'timely'. 

It is firmly believed, however, that when San Francisco can 
have one of the lowest transportation fares throughout the country, 
and still have such a poor transit budget and a failing system, then 
'timely' or not, an increase should be adopted. We do not necessarily 
recommend that fares for senior citizens or students be increased, 
however, we do feel that general fares are disporportionate to services 
received. It is most commendable that there is a desire to continue 
to provide the people so much for so little, but when they must con- 
tinue to pay for a falling service, a change is clearly Indicated. 

Political timing is not what the citizens of San Francisco 
vote for, and this Grand Jury would hope that an environmental impact 
report be requested regarding an increase in the Muni fares; and 
further, that the gross receipts/payroll tax and parking tax increases 
be extended, as partial resolutions to a heavy property tax rate. 

CETA : The individuals of San Francisco who have comprised 
the 1976-77 Grand Jury have indeed seen what leaves much to be desired 
In the Joint effort of managing this City. 


TKl MAYOR (continued) 

There was a continuous flow of innuendo emmanating from the 
Board of Supervisors earlier this year with regard to the CETA Arts 
Program. when inadequate supervision was suggested by the 3oard, 
rather than requesting a review by the Director of the Budget, coor- 
dination with the Department involved could have been more expedient 
and inexpensive method of obtaining the same results. In this specific 
situation, no consultation with the coordinator of the CETA Arts Pro- 
gram was requested or made prior to the evaluation by the Bureau of 
the Budget. 

It is agreed without reservation that a check on Executive 
and Legislative powers is necessary, but definitely not at the expense 
of the people before all alternative measures have been exhausted. 

Personnel : 

Due to number of outdated Charter Laws pertaining to 
Civil Service, many City Departments lack effective training; evalua- 
tion of performance; standard setting, and priority listing of objec- 
tives and goals. It is clearly up to the individual departments to 
set the standards of performance, but Department Managers alone have 
the sole responsibility of setting priorities and the subsequent 
accomplishment of same, as mandated by the City Charter. 

As San Francisco is also reputed for its training programs, 
once again it should also have the benefit of full evaluation and 
selection, and as salaries and full benefits total approximately 80- 
90% of the City's budget every year, perhaps a look at ways of saving 
in this area should be taken. In many departments, a training period 
of 6-12 months is sometimes necessary, as in the Electronic Data 
Processing Department or the Assessor's Office, and this obviously 
leaves no time to properly evaluate an employees' knowledge and skill 
before probation is over. 

Further, as San Francisco is required to pay its employees 
in certain job classifications on a scale comparable to private in- 
dustry, then the City should have the same perogative of selection 
on the same basis. Promotion on qualification rather than seniority 
is a basic fact in business all over the nation, and San Francisco 
should be no exception. 

Mayo rial Endorsements and Recommendations ; 

Mayor Moscone has reviewed and endorsed many suggestions 
presented in various audits performed during this fiscal year. He 
has acknowledged the need of providing managers with more flexibility 
in recruiting, promoting and terminating, and he has requested the 
Civil Service Commission to propose programs to provide incentives 
for good performance. Charter Amendment recommendations to support 


TH" :-iAYOR (continued) 

this need and endorsed by the T^ayor are: 

1. To extend the probationary period of all employees to 
12 months; 

2. To combine the entrance and promotive examinations to 
create a list of all qualified personnel available for open positions. 

However, during the past year, this Jury has found serious 
hardships in many departments resulting from accumulated sick-leave 
be ins taken at retirement. This situation is more fully amplified in 
other reports of this Jury, (The Controller, Police Department, Adult 
Probation). It is strongly recommended by this Jury that a serious 
review of this situation be undertaken and Charter revision be proposed 
to shorten this accumulation to a more realistic figure for new City 
employees . 

Program Management : 

A major innovation of the Moscone Administration is in the 
Mayor's Department of Program Management. 

This department, being so aptly named, has the goal of 
providing services to the people of San Francisco by way of inter- 
departmental coordination. 

For example, complaints may be registered on the danger of 
embarking on a bus in a heavily trafficked downtown area, due to the 
bus stopping In the middle of the street because the bus zone is full 
of parked cars. Through the efforts of the Transportation Division 
of the Program Management Department, it is determined that the right 
lane of a 3-lane, one-way street in the downtown area, should be used 
for Muni service, and right-turn only for all vehicular traffic. 

The following departments must be consulted and coordinated: 

1. City Planning Department - for transit planning and 
coordination of all other one-way streets along the chosen route, 

2. Parking Authority - to aid in advising and regulating 
commercial vehicle parking and use of designated areas, 

3. Police Department/Traffic - to regulate and enforce the 
rules and flow of traffic, 

JJ . Public Works - to paint the streets accordingly, or post 
signs for turns. 

If the response from these individual City Departments Is 
inadequate and does not provide the necessary information sought , then 


THE MAYOR (continued) 

the staff of Program Management will respond and try to assist. How- 
ever, with a small staff of 11, each having responsibility of one of 
the divisions listed below, to advise and render individual assistance 
to each personal complaint is recognized as a rather monumental and 
sometimes non-productive task. It should be remembered that the sole 
function of this Department is inter-departmental coordination through- 
out the City and County Departments. 

The following is a list of the departments and areas of ser- 
vice coordinated by the Program Management Department: 


Departments Coordinated 



Recreation & Park 
Public Safety 
Housing/Comm. Dev. 
Human Care Services 

Cultural Activity 
Future Planning 

S.F. Unified School District & SFCCD 

PUC (Muni), DPW (Traffic), Police 
(Traffic), Parking Authority, Planning 
Dept. (Transp. Planning), All Private 
Transit Carriers (Airporter, Taxis, 
Jitneys, Etc.) 

All Recreation & Park Functions EXCEPT 
Prop. J Planning (which is in 'pl ann ing' 

Police, Fire, Adult Probation, Juvenile 
Court, District Attorney, P/D, MCJC, 

OCD, City Planning (Housing Section), 
SFRDA, SFHA, DPW (B3I) , Real Estate 
Dept. (REHAB) Model Cities 

Commission on Aging, Department of 
Social Services, All Department of 
Health Functions EXCEPT Environmental 
Health (this is in City environment 

Art Commission, Library, Museums, War 
Memorial, Academy of Sciences, Opera, 
Symphony & Ballet Association 

Energy/Land Use, PUC (Water & Hetch 
Hetchy, Planning) Planning Dept. (EIR 
Process), Real Estate Department (Zoning), 
Board of Permit Appeals (Planning issues), 
Environ. Man. Task Force, Prop J - Open 
Space Planning. 


THE MAYOR (continued) 
Jobs & Econ. Dev. 

City Environment: 

Other City Services: 

OED, MOET, City Planning (Commerce & 
Industry Element), Tourist & Hotel & 
Chamber Groups. 

DPW: (Sewer Repair, Street Cleaning, 
Tree Planting, Solid Waste 
Disposal, Street Repair, 
Bureau of Architecture, 
Building Repair) 

HEALTH: (Rats, Garbage, Environment) 

PUC: Hetch Hetchy/Water Department 
(day to day maintenance & 
repair problems) 

OTHER: Noise Abatement, Litter Com- 
mittee, Parapet Law, Seismic 
Safety, Landmarks, Historic 
Preservation, High Rise Safety. 

Port, Airport, (Except Transportation 
to & from; Human Rights Commission, 
Civil Service & Affirmative Action, 
Registrar of Voters, Purchaser of 


Politics is a way of life, and like taxes, will remain with 
us. To be opposed to a policy is accepted as the way of politics. 
However, by and large, this has not been the case in San Francisco 
since the election of George Moscone. The continuous clash between 
the Mayor and some members of the Board of Supervisors has not restricted 
itself to policy issues. 

We commend Mayor Mo scone for his efforts in endorsing some 
necessary changes needed to promote more efficient management of City 
Departments, and hope that he will more publicly present future proposals 
and endorsements to the people of San Francisco. 


The purpose of the Department of the Controller is to 
FINANCIALLY plan, control and manage the City and County of San Francisco. 

In October, 1976, the Controller's Department employed approxi- 
mately 126 persons in the following six divisions: 


THb CONTROLLER (continued) 

Accounts &. Reports General Audits 
Budget Utility Audits 

General Office Payroll 

By fiscal year end, there will have been several changes in 
this department, starting with the General Office Division. 

Organization : 

The implementation of a new Vendor Payment System is currently 
underway. This new system will make each individual desk in the 
General Office Division responsible for the transactions of individual 
departments. This new system will provide more timely processing and 
work flow of documents. 

Due to the more efficient work flow of documents from the 
General Office Division, the Accounts and Reports Division will be in 
a better position to provide more timely reporting schedules. 

Also being developed is a separate Grants Division, to be 
solely responsible for handling the more than $300 million in grants 
procured by the City through various programs. 

With the separation of the grants responsibility, this has 
opened the door to combining the General Audits and Utility Audits 
Divisions, leaving them free to conduct and report on a more timely 
basis the annual and monthly audits required by City Charter. 

Personnel : 

Turnover in personnel in the Controller's Department is quite 
high. Out of 47 employees in the General Office Division in 10/76, 
only 4 had been there for one year. A number of reasons exist for 
this high rate. 

Salary levels for most clerical workers in this department 
are somewhat below private industry, and this has left this department 
open as a training ground only. 

In turn, as the process of obtaining replacement personnel 
can take as long as 2-4 months, Supervisors must perform the day to 
day accounting functions, ■ lowering their morale, as they then are not 
effectively evaluating the personnel in their departments, and this 
is sorely needed. 

The accumulation of sick leave being taken at retirement, 
as a virtual additional vacation, and thus carrying a person on the pay- 
roll and not having the benefit of work out-put for a period of some- 
times up to six months, is also a low moral factor, not to mention 
economically unsound. 


THE CONTROLLER (continued) 

Recommendations : 

This Jury would recommend that a Charter change he proposed 
and endorsed to extend the probationary period of new employees to 
that of 12 months, for two basic reasons: 

1. To induce an attitude of more permanence; 

2. To allow for a more reasonable period of evaluation, 
as many departments require more than 6 months of 

This Jury endorses the recommendation of a combined entrance/ 
promotive examination and subsequent list of all qualified personnel, 
as recommended in other reports of this Jury (i.e., The Mayor). 

The sick leave accumulation problem can be most detrimental 
in this department, when combined with the high turnover problem, 
and a serious study and review is suggested at once to bring this 
accumulation down to a more realistic figure. 

Conclusion : 

Mr. John Farrell, Controller, is doing a commendable job in 
carrying out those functions directed by the City Charter which he 
has been charged with, considering the problem of high turnover, and 
lack of proper training that exist. 

The yearly audit of his department was thoroughly reviewed 
by the Controller and his staff, and some valuable suggestions presented 
which might be utilized were adopted. 

We laud his management of a department with such critical 
problems in personnel, and hope that those suggestions presented by 
this Jury will be seriously reviewed in an effort to create more effic- 
ciency in this, and other City Departments. 


The Electronic Data Processing Department (EDP) has a central 
complex at City Hall, currently running at 98-100% use capacity. The 
request for budget funds, to be subsidized by a request for federal 
funds, in the 1977-78 budget, was denied, and for at least the next 
fiscal year, EDP will have to make do. 

The invaluable systems being run and designed for the various 
City Departments through EDP are most impressive. 



The Health Care System, installed approximately 1-1/2 years 
ago, at San Francisco General Hospital, has recovered at least 
$'"4,000,000 in bill collections so far, and has enabled the hospital 
to double its billings. 

The purpose of computer aids is to obtain a full, true and 
total picture of a situation. When all of the problems have been 
acknowledged, a revision of departmental procedures and system design 
can then be made. However, there are still many problems existing in 
the admission, registration and accounting functions of the hospital, 
all of which require EDP assistance, and this assistance cannot be 
forthcoming until the current system capacity is enlarged. 

This Jury recommends that prompt attention and financial 
aid be rendered to EDP to help establish a system to generate more 
revenue from our health services departments. 

With the data currently in the computers , the EDP Department 
would appear to be in a most equitable position to assist in quantita- 
tive evaluations of department performance, and thereby aid in deter- 
mining the necessary procedural revisions. Hence, this could be deemed 
another reason to enlarge our computer capacity, with possible opti- 
mization of systems and operational procedures. 

As an example, EDP has set up, and is in the process of con- 
ducting a series of workshops with and for the Controller's Accounting 
Staff. These workshops are established to train the users of the 
computer system. The purpose of the program is three-fold: 

1. To familiarize the Controller Management Staff with 
current applications performed for the Controller's office; 

2. To promote a better understanding of mutual requirements 
and an appreciation of the problems of both the Controller's Accounting 
and Data Processing Divisions; 

3. To plan toward improving the effective use of EDP capa- 
bilities in the Controller's Office. 

This is but one instance of training programs for one depart- 
ment that all departments require. 

Also, an alleviation of particular training is sometimes 
necessary, as is shown in the new system that went into effect in the 
Fire Department, in November, 1976. SAFER (System for Assignment of 
Fire Equipment and Resources) is a system which supplants the old peg- 
board and bell system. There are terminals in every station house, 
and when an alarm is turned in, a voice will transmit information to 
the fire house that is to respond, and a print-out will come through 
indicating the date, time, location of incident, equipment required, 



etc. The terminals also retain which other houses and equipment are 
in use, and will automatically alert the next house to respond or 
standby . 

The most long sought after system coming into operation this 
year, however, is the FAMIS System, (Financial and Accounting Manage- 
ment Information System), a budget program system. 

The contract for system design has been signed with Peat, 
Warwick and Mitchell, and is to be completed in 3 phases: 

I. Determination or identification of Budget Program, 
this to be completed in 1978; 

II. Budget and Performance System, partial implementation 
is due in July, 1979; 

III. Standard Setting of Performance Evaluation due in 
approximately April, 1982. 

This entire system will cost approximately $4,000,000 and 
it is expected, within 6 years of use, to save some $6,000,000, and 
will be far more helpful in determining departmental and project budgets. 
The potential of helping save the taxpayer from the ever rising tax 
rate is astronomical. 

Recommendations : 

Investigation by this Jury has determined three areas of 
concern in EDP. The first, as previously mentioned, is the lack of 
computer capacity. The second area is training and evaluation. 

EDP is reputed for its high standards of training, and this 
is most commendable. However, it is recommended that the probationary 
period of new employees be extended to 12 months, as training in this 
department is often more than 6 months in duration and the need for 
adequate evaluation is most necessary. 

Thirdly, there is a lack of firm policy in determining secu- 
rity on the release of information. Pending further Federal and State 
law on the security of computer information, the City should have def- 
inite written policy to insure against the arbitrary release of infor- 

Currently pending review and approval are procedures for 
obtaining and releasing data. The new policy would require approval 
of release of information from the following: 

1. The owner of the material stored in the computer, (the 

department, bureau, agency or commission whose information 



is on the Controller's computer) 

2. Approval of legal counsel to the Controller; 

5. Approval of the Director of EDP; (all information would 
have to be obtained from the Controller's EDP department, 
and with such authorized EDP personnel in attendance.) 

4. No such release of information shall be given on an on- 
going basis, but must be renewed via appropriate channels, 
at regular intervals. 

The potential of Electronic Data Processing is most impressive, 
and the management and direction under Henry Nanjo, is most efficient. 
It is only hoped that future budget requests of EDP for expanding the 
capacity of the computer system will be granted, to benefit many City 


The Art Commission is an association of architectural, 
theatrical, musical and literary professionals, whose primary concern 
is in the review of design to enhance public buildings to add to the 
beauty of the City. 

The other areas of concern would be in the various activities 
or performances the Commission endorses and sponsors. 

The Pops Concert has been in existence for over twenty-five years and 
generates much interest, draws one of the largest crowds, and is always 
filled to capacity. However, the concert revenue is not as large as 
it could be, due to the fact that many organizations receive discount 
tickets, and some even free tickets. The purpose behind this activity 
however, is to bring the arts to the people and not keep it out of 
reach of those unable to afford it. 

The Neighborhood Arts Programs (NAP) are community organizations formed 
and advised 'aj the Art Commission to organize those interested communi- 
ties into theater, dance, music and poetry groups to advance an interest 
and participation in the arts, and to utilize the ethnic backgrounds 
which exist and bring these to others. 

The l??C-77 NAP budget was approximately ill 4, 000, and received 
£100,000 in private donations and approximately $150,000 ;.n grants and 
discretionary fund support. More and more neighborhood:-- are becoming 
interested in advancing this culturally beneficial program in their 
own communities, and through the efforts of the CETa program, and the 


ART COMMISSION (continued) 

aid that the CETA artists provide, these communities are able to con- 
tinue to bring such cultural benefits to their neighborhoods. 

The CETA Arts Program currently has 102 employees working in variou 
capacities throughout the City. 

The rules by which these CETA people are governed are much 
less stringent than those imposed on an office worker. Their purpose 
is, "to test and satisfy the growing public demand for art services.... 
to relieve recessionary pressures on non-profit art organizations and 
agencies, and broaden significantly the services to San Franciscans 
offered by art institutions, community centers and other agencies." 
This is done by contacting communities, neighborhoods, and those inter- 
ested in developing a more basic grasp of everyday application art. 

Better than ^0% of those employed through the CETA Arts 
Program are currently supplementing many art programs in our City 
School system. As monetary support for art, music and dance are cu1 
from the educational curriculum, these CETA artists are requested by 
the schools to supplement these educational programs and help to keep 
them alive. This is not meant to imply that these workers are teachers, 
they are artists advancing the arts. However, due to their unusual 
scope of employment, working hours and locations, it is recommended 
that an on-going procedure of job-site checking by individuals in a 
supervisory capacity be more fully complied with. 

As a tremendous backlog of requests for CETA Artists currently 
exist, further solicitation has been restricted. 

This had become necessary due both to the lack of sufficient 
personnel to accomplish the requests and in view of the fact that fed- 
eral funds will soon be exhausted. 

Street Merchant Licensing is another responsibility of the Art Commis- 
sion. A major concern in this area is with the issuing of licenses to 
the Street Merchants. The rules of "hand crafted", and "original design 
of materials" are many times not adhered to by the merchants, and the 
recommendation of this Jury is directed at the Art Commission to more 
carefully review both the new applications and the existing permits of 
the merchants and be assured that these rules have been complied with 
or refuse to issue a new license, and/or withdraw existing permits. 

It is also the duty of the Art Commission to disperse the 
Street Merchants within those areas allowed and provided (for the 
Streets Merchants). There has been some problem in this regard, and 
the Art Commission should more firmly seek assistance of other City 
Departments in an attempt to alleviate this problem area. 

In summary, the Art Commission is performing its primary 
function of bringing the arts to the citizens of San Francisco, and 


Aim COMMISSION (continued) 

assisting the educational institutions and the neighborhoods in the 
continuing programs of art, and we hope that the CETA Arts Program 
will be supported and future funds obtained to continue to assist the 
various departments and people of San Francisco. 

Aileen McC arty- 
Edith Pearlman 
Leslie Evans 

Kathleen Calkin, Chairman 



There have been a number of major changes in the San 
Francisco Unified School District this year; it is difficult to evalu- 
ate some of these as the programs have not been in effect long enough 
to produce results. We recognize that there are no immediate, easy 
solutions to the complex problems that face the District. 

The San Francisco Federation of Teachers became the exclusive 
representative for the District's 5000 teachers. It is hoped that this 
will simplify bargaining procedures and allow for more reasonable 
negotiations that will result in a satisfactory agreement for both 
teachers and the District. 

The Board of Education adopted a Board Policy outlining a 
new administrative organization, and describing the offices and their 
functions. The Office of the Superintendent of Schools is responsible 
for the development and operation of programs of instruction so that 
San Francisco schools may offer quality education. ^he Superintendent 
is the chief executive of the District and is responsible for the 
administration of the business functions. The Office of Management is 
responsible for all non-instructional services, including the office of 
Secretary of the Board, Data Processing, Internal Audit, Budget and 
Finance, and Management Services. The Office of Instruction is 
responsible for coordinating all instructional activities including the 
Children's Centers, Planning and Evaluation, Instructional Support and 
supervision of the Area Superintendents. 

As part of Superintendent Robert Alioto's redesign, the 
Unified School District opened four school district area offices in 
an effort to decentralize the administration. Each office is headed 
by an area superintendent who will be responsible for the educational 
programs of the approximately thirty-four schools in his area. This 
decentralization is intended to bring services closer to the schools 
and to make the administration more accessible to the public. 

The Unified School District is on a program budget, which 
has been found helpful in the few years since it has been implemented. 
Two financial reports have been introduced this year. The Quarterly 
Budget Review gives the current status of the General Fund, Children's 
Centers Fund, Development Centers Fund, County General Education and 
School Services Fund, Cafeteria Fund and Federal/State Aid with 
projections of year-end balances. The Three-Year Projection on 
Revenues and Expenditures, to be revised annually, is an effort to 
provide a basis for long-term planning. It lists projections on 
revenues, expenditures, salaries, local school tax rates, student 
enrollment and any other factors that might affect the budget. 



A new early retirement plan for teachers was adopted by the 
school board in April. Employees who have worked for the district at 
least ten years, and are between fifty and sixty years old may retire 
and work on a consulting basis for up to five years. Under this plan, 
teachers would receive roughly forty percent of their salary from 
the State Retirement Fund as well as State Health Benefits. VJhen 
called upon to perform consulting services they would be paid $150 
per day for assistance in solving specific problems. The school 
district will save over $14,000 per teacher yearly with this plan. 
Besides the substantial savings, allowing teachers to retire earlier 
will give the district greater flexibility in working with declining 
enrollment. Six hundred teachers are currently eligible and 1000 will 
be eligible to retire in the next three years. 

Superintendent Alioto and the Board of Education have 
finally faced up to the fact that with declining enrollments, the 
Unified Schools need fewer school buildings. At the end of May, it 
was voted to close five schools: Geary, Frederic Burke, Pacific 
Heights and Parkside Elementary Schools, and Portola Junior High. This 
Jury recognizes that it was a hard, unpopular decision, and commends 
the Board for making the necessary first move. It is estimated that 
these school closings will save the district $525,000 annually in 
administrative costs and Oil million in building construction costs 
since these buildings will not have to be earthquake proofed. 


The major goal of the Community College District is to give 

all adults living in San Francisco the opportunity to continue their 

education, to provide an atmosphere conducive to growth and learning. 

Their success at this is shown by the fact that about 80,000 people of 

all ages and backgrounds are taking advantage of these programs. 

In order to further this goal, the Community College District 
is divided into two separate systems, each with its own president: 
City College and Community College Centers. 

City College provides courses with credit for students who 
wish to take their first two years there, then transfer to a four-year 
college. There are also many two-year programs for those who wish to 
prepare for a career. Besides its large campus, City College offers 
credit courses at several of the Community College Centers and is part 
of the Bay Area TV-Consortium, which offers college-via-TV. City 
College is the largest two-year college in the State, with an enroll- 
ment of over P5,noo students. 

The Community College Centers offer non-credit courses 


through seven centers; they offer classes at about 180 branch locatio: 
spread throughout the City. Their emphasis is on variety so that 
everyone might benefit. m eachinr English as a second language, taking 
about 20'* of the Centers' budget, is an important part of education in 
San Francisco . The Centers also offer special classes for senior citi- 
zens, the handicapped, people working for elementary and high school 
diplomas and other special Interests. 

Dr. Louis 7. Batmale, Chancellor of the District since its 
beginning: in l n 70, retired at the end of June, l n 77- We would like to 
commend him for the excellent job he has done; he will be missed. After 
a thorough search, the Governing Board has named Herbert Sussraan, 
president of the '!ew York City Community College in Brooklyn, to replace 
»r. Batmale. 

As lack of classroom space continues to be a problem for 
the College Centers, we recommend that the Unified School District 
cooperate in allowing its vacant facilities to be utilized as much 
as possible by the College District. 

George Kardum 
Dagmar "eyer 

Barbara Belling, Chairman 



The 1976-77 Grand Jury has undertaken to evaluate further 
the effect of decreased salaries, cut benefits and the change in 
working hours on the fire fighters of San Francisco, 

The original budget of the Fire Department for the 1976-77 
fiscal year allowed 1,632 uniformed Firemen to comprise the protec- 
tive fire force in San Francisco. In October, 1976, there were 82 
positions deleted due to cuts in the budget; 70 retirements and 
approximately 50 sick leave/disability vacancies, leaving the true 
number of active personnel at approximately 1,430. In March, 1977* 
the vacancies had climbed to 231, leaving only l,28l uniformed Firemen 
to protect 49 square miles of homes and property. 

San Francisco is a very unique City, with its winding hills, 
woodi-framed buildings, the crosswind factor between the Bay and the 
ocean, not to mention our current drought situation, all creating 
great fire hazards. To attempt to place San Francisco on a comparable 
scale with any other City in California is an error by virtue of the 
fact that no other City in California has these same characteristics. 

The startling drop in the uniformed fire fighters from the 
originally budgeted 1,632 to our current l,28l, leaves San Francisco 
in a very precarious position, because there has been a dramatic rise 
in the number of 3rd, 4th, and 5th alarm fires. Between 1975 and 1976, 
the number of major alarms has doubled. After granting the Fire 
Department a 1976-77 budget to provide the City with these 1,632 fire 
fighters, the Board of Supervisors advised Fire Chief Andrew Casper 
that he must come up with $3,000,000 in savings by fiscal year end. 
To adhere to this directive, Chief Casper had to put a freeze on 
all new hires. 

Chief Casper has done a commendable job in attempting to 
compensate for this low level force, and he has requested the present 
staff to work overtime. Another result of the low level staff is 
that the Chief is required to send smaller contingents to respond to 
fires, this resulting in longer periods of time to contain the blaze, 
accounting for the increase in multiple alarm fires. 

Morale is one of the major problems in the Fire Department 
at present, and as Firemen do not receive time and a half for double 
shifts, in the alternative they do receive compensatory time off. 
However, in actuality, this is not possible, as they are understaffed 
to begin with and cannot take it. On the other hand, when the men 
agree to work the extra shift at regular pay, rather than take 
compensatory time, the costs to the City could be great. An overworked 
staff is not the most efficient in either attitude or physical capa- 
bilities. Further, the men in the Fire Department are dedicated to 


FIRE DEPARTMENT (continued) 

their job of saving lives and property, and believe that when their 
own City will not provide funds for an adequate staff, they must wonder 
if they are working with and for people who do not care as much as 
they. Another results of the low morale problem is with the eligible 
retirees taking advantage of their situation and retiring from the 
force, reducing the force to its present l,28l level. 

Turning to the problem of hours in the Fire Department, 
when the voters passed the initiative on the 10-14 system (10 hours 
on and 14 off/14 hours on and 10 off), they were actually returning 
the department to a situation they left over 20 years ago, primarily 
because the 10/14 system created serious problems in family life for 
the Firemen. The fighting force of the Fire Department will not 
necessarily be subject to increase, save for the number of retirement 
positions now open, and the need of filling these. However, the 
administrative staff will now have to coordinate and report on all of 
the activities created by the change in shifts every 10/l4 hours, and 
will inevitably have to be increased. 

Equipment in the Fire Department is also of paramount impor- 
tance. It is recommended, therefore, that a more realistic look be 
taken at the age and condition of the Departments ' s first line 
vehicular equipment. To maintain safety in vehicles, engines are 
used for 15 years, and trucks for 20 years, then retired to a relief 
status for 5 years. In the 1976-77 budget, 4 engines and 3 trucks 
were due to be placed in relief status; 21 vehicles were requested 
for replacement — none were granted. It should not be necessary that 
the City wait to replace necessary equipment until after serious 
da m a g e has been done, (as with the repair of the cable car depression 
beams made only after numerous injuries had been sustained). 

The 1976-77 Grand Jury would like to extend its appreciation 
and gratitude to the fire fighting force of San Francisco for their 
dedication and valor; and to Fire Chief Casper for his leadership 
and continuing efforts in his difficult job, but one well done. 



The City and County of San Francisco Emergency Services 
organization will plan, prepare for and conduct operations in order 
to accomplish the following objectives in the event of a major 
disaster or City emergency: 

1. Save lives and protect property. 

2. Repair and restore essential systems and services. 

3. Provide a basis for direction and control of emergency 
operations . 

l\. Provide for the protection, use and distribution of 
remaining resources. 

5. Provide for protection and continuity of government. 

6. Coordinate operations with the emergency service 
organizations of other Jurisdictions. 

The position of this Jury, as well as with past Grand Juries, 
in the matter of an Emergency Coordination Center, and the need of the 
9-1-1 communications system, is that it should be funded or proposed 
as a bond issue. Some of the advantages of building a coordination 
headquarters are: 

1. Fifty percent of the funds required would be Federally 
subsidized, because the City government is required to 
be prepared for any nuclear disaster which could occur; 

2. To provide one secured location to house all communi- 
cations, i.e., Fire Department, Police Department, 
Ambulance Services, would also provide one solution 
to some of the overcrowded departments; 

3. A single location for emergency communications provides 
for better coordination and control of all departments 
involved with handling the emergency. 

San Francisco is fortunate to have several prime locations 
for such a communication center, and Emergency Services feels that 
this center is most necessary. The present cost is estimated to be 
$3 million but this figure will escalate in the future due to 
spiraling inflation. 

We commend Mr. Edward Joyce, Director of Emergency Services, 
for his efforts in maintaining this important department for the 



protection of the people of San Francisco and for the fine rapport 
he has established with the other Bay Area counties in a Joint effort 
for the safety of all. 


The investigation of the San Francisco Airport facilities 
and managing staff, under the direction of William J. Dwyer, revealed 
a very dedicated, responsive and progressive management. 

The forecast of services to patrons at San Francisco Airport, 
after the completion of the expansion of the present facilities, will 
provide accomodations for 18 to 30 million passengers. Just over 
18,000,000 passengers were assisted at San Francisco Airport in 
1976-77, and an estimated 19,600,000 patrons are anticipated in 1977-78. 

The new North Terminal building, currently under construc- 
tion, is scheduled for opening in the 1978-79 fiscal year, and the 
total completion of the expansion program is due in 198*1. It is 
anticipated that this will be the last expansion program at the 
Airport in view of the fact that there is no room for further 
growth. It is believed that, with facilities capable of accomodating 
approximately 30,000,000 passengers , the need of further growth will 
not be necessary. 

Through the various rental charges, landing fees, conces- 
sions, etc., the Airport has been able to become a self-sustaining 
entity, and has in fact started repaying the general fund for the 
bond indebtedness incurred in 1957, at the rate of $1,000,000 per year. 

The Airport medical facilities are most impressive and 
unique in the sense that these facilities are within the Main Terminal 
building of the Airport, as opposed to most other airports which have 
small first aid stations outside the main terminal areas. 

These facilities, under the direction of Dr. Lawrence A. 
Smookler, are most complete, well managed and staffed 2k hours a day. 
Emergency vaccinations, which might be required for overseas travel, 
can be provided at a moment's notice; a fully equipped mobile cardiac 
and respiratory vehicle, capable of responding to an emergency within 
approximately 3 minutes is maintained; provisions of first aid to 
workmen, employees, and passengers are also available. Highly endorsed 
by this Jury is the purchase of one more mobile unit, which will be 
accomplished once the expansion of the Airport facilities has been 



We would like to take this opportunity to commend the 
Airports Commission and Mr. Dwyer, Director of the Airport, for their 
fine and conscientious efforts in maintaining and improving the 
San Francisco Airport. 

Kathleen M. Calkin, 
Earl L. Ellingson, 
Lawrence M. DuVall, Chairman 



During the fiscal year in which this Grand Jury served, 
it was found that the Police Department was constantly in a state 
of flux. The trend of numerous retirements, which began during 
the previous year, continued at an alarming rate; there was a 
constant re-assignment of Officers and there was noticeable 
dissension within the ranks. 

The first important point noticed by this Grand Jury 
was the low morale factor among the Police Officers from the 
lower echelon to middle staff. This morale factor was reflected 
in the high retirement rate of 8*1 during fiscal year 1976-77 
through the month of April 1977; for fiscal year 1975-76, there 
were 191 retirements, while in 197^-75, only 31 persons retired. 
The Grand Jury feels that some of the possible causes for the 
large number of retirees during the past several years are: 1) 
the attainment of retirement age of a large number of Officers; 
2) the disillusionment of the Officers after the adverse reactions 
of the voters on the recent ballot initiatives; 3) lack of coopera- 
tion and respect within the ranks. 

The large number of retirements in the Police Department, 
we feel, is a cause for some concern. This Grand Jury recommends 
that persons who become disabled in the line of duty and therefore, 
cannot perform in their original functions, should be referred to 
light duty as is done in Los Angeles County, if that be physically 
suitable to the individual. At present, the City and County of 
San Francisco has no such program and the Retirement Board has no 
alternative but to retire a partially disabled person. At this 
writing, the Board of Supervisors is considering the retention of 
an independent hearing officer to hear disability retirement 
applications. Having an independent referee, totally separate 
from the Department should prevent the possible abuse of disability 
retirements. . 

Turning to the problem of space within the Police 
Department as noted by the Grand Juries of prior years, the Crime 
Lab is definitely in need of additional working area. Some of 
the space consuming materials held as evidence have to be kept for 
long periods of time in the working office space of the Lab 
because of the requirements of the laws of evidence. This, of 
course, contributes greatly to the cluttered and crowded conditions 
in the Crime Lab. During the investigation of this Grand Jury, it 
has been revealed that some of the space under the Jurisdiction of 
the Coroner's Office, currently remaining unused, might be utilized 
by the Police Department by relocating the Crime Lab to the ground 
floor adjacent to the Coroner's Office, or in the alternative, 



transferring some of the stored items to the unused space. Thi3 
matter has been pointed out by this Grand Jury to the Police Chief 
and his Deputies, particularly from the advantageous standpoint of 
the nature of the work of both the Crime Lab and the Coroner's 
Office. It is recommended that the Mayor's Office and the Board of 
Supervisors look into this matter as one of the solutions to 
improve the over-crowded conditions of the Crime Lab. 

The space problem in the Criminal Investigation Bureau 
will be eliminated when that Bureau gets all its records on 
microfilm. Microfilming is now underway at a good pace. Rows upon 
rows of file cabinets occupied much needed space at the time of the 
Grand Jury's visit. 

The partial installation of the much publicized 9-1-1 
system of the Bureau of Communications has taken place, however, 
it still lacks certain hardware and personnel. The Board of 
Supervisors has thus far not allocated monies needed to complete 
the project. Also, further delays have occurred because 
feasibility studies have been requested by the State Legislature, 
since the State is providing some of the funds for installation 
of the system. 

The SAFE (Safety Awareness for Everyone) program was 
initiated in the Fall of 1976 for the purpose of citizen awareness 
of crime prevention at the neighborhood level. Meetings have been 
held between various neighborhood leaders and the Police Depart- 
ment. Local leaders concur in this idea of neighborhood involve- 
ment. Lt. Mullen and Lt. Jordan of the Police Department staff 
are bringing this program to the attention of the man on the beat, 
mostly through information given at the area watch meetings. 

Training and retraining of Officers is an important 
factor in the Police Department. Certain courses in police 
psychology and other police subjects are being offered the 
Officers in the Department as well as "on the job" training. 
Important in this respect is the comment from the Coroner's Office 
about the apparent mishandling or inadvertent destruction of 
evidence by Police personnel at the scenes of crimes. The 
Coroner's Office has expressed concern over important evidence 
having been mishandled on several occasions. The Police Chief, 
upon being questioned by this Grand Jury on the subject, stated 
that Police Officers are receiving training in laws of evidence 
to avoid the occurrence of such incidents. We recommend that the 
Coroner be invited to conduct sessions at the Police Academy with 
regard to the handling of evidence. 

In conclusion, this Grand Jury feels that morale is 
the underlying cause of certain dissension within the ranks and 



also that morale Is an important factor in the numerous "early" 
retirements. The crux of the matter lies in the plain and simple 
fact that communications appear to have broken down between the 
upper and lower echelon. The Grand Jury feels that those few 
Police Officers involved must rise above "petty politics" and 
remind themselves of their sworn duty to protect the Citizens of 
this City. We need the highest quality service they can, and for 
the most part, do, provide. 

Aileen McCarty 
Seizo F. Oka 

Francis J. Murphy, Chairman 



The Board of Permit Appeals is an appointed body of 
citizens which hears cases resulting from granting or denying 
permits through the administrative process of other City departments 
such as Police, Fire, Health, Public Works and City Planning. 

This Grand Jury finds that many of the problems previously 
encountered by this Board with these City departments appear to be 
evaporating for several reasons. The Board appears to be more 
business-like in its meetings, or hearings, lacking the "frivolous 
atmosphere" and "insensitivity" that were apparent to a previous 
Grand Jury. Meetings of the Board are orderly. They are usually 
somewhat lengthy - perhaps more so than they should be. This results 
from the Board's attempt to give all applicants and protestants 
an adequate and equitable opportunity to present their case at the 
public hearing. The Board members appear well informed on cases 
being presented to them. Changes in department-head level of other 
City departments may also have contributed to the reduction in 
inter-department problems in that this Board is not regarded in as 
much an adversary role as it once was. Further, the present Board 
appears to be extremely concerned with public input and with the 
rights of "ordinary citizens" rather than with more influential 

We commend Philip Siggins, Executive Director of the Board, 
for his services both to appellants and to the Board. Mr. Siggins 
meets with appellants, outlines the appeals process and gives the 
advice necessary to permit the process to work smoothly. We 
understand that he has often been accused of being an advocate of 
the appellant because of his very obvious attempt to assist the 
citizenry with their problems. This Grand Jury submits that this 
should be the function of the public servant. 

The administrative process of permit denial and appeal is 
confusing to most citizens and should be clarified or modified. 
Applicants denied permits or licenses are supposedly given notice 
that they have a right to appeal within a short 10 days of the 
denial, although the processing period prior to that denial may have 
taken several months. In many cases, the appellant is unaware of 
his rights to appeal. It should be mandatory that with each denial 
of license or permit an applicant should be informed Immediately in 
writing , in easily understood terms, of his rights to appeal and of 
the required timetable. He should have the counseling of a staff 
member of the Board at that time if necessary. The 10 day period 
for filing an appeal should be extended to permit adequate time for 
preparation and processing of the appeal. 



The need for an attorney (or attorneys) on the staff of 
this Board has often been the subject of discussion. The Executive 
Director has found it necessary to attend Law School to prepare 
himself for the service he must perform. It is the recommendation 
of this Grand Jury, as it has been from previous Grand Juries, that 
no such staff counsel position be established nor that the Director 
be required to be an attorney. We recommend that legal consultation 
be obtained from the City Attorney's office as and when required 
by this Board. There appears to be a concern on the part of the 
City Attorney that, by providing this consultation to the Board by 
his staff, he may create a conflict of interest situation. It 
appears to us that, by careful assignment of responsibility, the 
problem of alternately designating an attorney to work with this 
Board and with other "adversary" City departments can be eliminated. 

This Board may hear over iJOO cases in a year. With this 
as a consideration, it appears to be understaffed with only an 
Executive Director, one Secretary and one CETA employee, with 
academic training in the law, available to process all appeals and 
to offer the required services to appellants and to the Board. 
Budgetary problems appear to be extremely critical. It has been 
brought to our attention that for a period of several months in the 
last fiscal year, no funds were available for a court reporter to 
provide the required hearing transcripts and no funds were available 
for stamps and mailing of necessary documents. We are concerned of 
legal responsibilities if a situation develops in which a court 
hearing is required at a later date and no transcript is available 
from a Board hearing. It would suggest and we recommend that this 
Board be provided adequate funds to provide the services necessary 
to the public — including court reporters and personnel for counselling. 

Our immediate impression of the office facilities of 
Mr. Siggins certainly was unfavorable. It appeared to be one of the 
shabbiest of all City offices. We recognize that physical facilities 
are not as important as a staff that performs its duties well, it 
nevertheless strikes us that this office should not give to the 
public the impression of total poverty and neglect. 


San Franciscans should be and can be pleased with the 
appointment of their new City Librarian. John Frantz comes to our 
City with vast experience, innovative ideas, and motivation to 
rebuild the library system. Following the controversy that surrounded 
a previous City Librarian, Kevin Starr, this Grand Jury Committee 
was impressed with both Mr. Frantz and with his predecessor, the 
interim caretaker of the system, Edwin Castagna. 


PUBLIC LIBRARY (continued) 

The Librarian has had little time since his arrival in 
February to effect substantial change in either organization or 
operation. His beginning by development of a master plan for the 
Library is laudable. We feel that, in its final form, this master 
plan should include not only program objectives but also detailed 
employee performance standards, not only recommendations for new 
facilities but also plans for better, more efficient use of existing 
facilities, not only appeals for or plans for additional staff and 
financial support but also plans for additional services resulting 
from streamlining the existing operation. 

It now appears that the City Librarian is competent to 
deal with the administrative problems that have plagued the system 
for some time. 

We are pleased that the budget for the next fiscal year 
includes provision for the Automated Circulation System to replace 
an out-dated "Self-Charge System". The new system, which has been 
recommended for many years, has been tried and has proven successful 
in other public libraries. It should be considerably more efficient 
and should reduce losses and overdue accounts. Although three new 
positions have been approved in the new budget, that of Assistant 
City Librarian has not. This is one of the major requirements 
of the Library as we perceive it. The position had been approved 
by the Mayor but was again cut by the Board of Supervisors. It is 
imperative that this position be approved in the future. The City 
Librarian must be responsible for administration and management of 
the library system but he must also interface appropriately with 
City government and, particularly in San Francisco, with civic and 
social groups. Without the services of an Assistant City Librarian 
to manage the budgetary and routine administrative functions of the 
system, priorities and time constraints would dictate that little 
effort could be allocated by the Librarian to important civic and 
social interaction. We understand that San Francisco is the only 
City of its size in the United States that does not have a similar 
library position funded at the present time. Some believe that 
management of the system can, and should, be left entirely to the 
City Librarian as his sole responsibility. The effort required of 
a new City Librarian to solve the current problems of a complex 
system will require more than routine management, however. 

A recent research report compared eight major city library 
systems for U. S. cities with population of approximately 600,000 
to 900,000. Although San Francisco ranked sixth in population within 
the library system service area in that study, it ranked first in 
total system bookstock and third in total system circulation. It had 
the largest staff per capita and the largest number of branch 
libraries. It appears, then, that the personnel and facilities are 
there to provide substantial and adequate service given the proper 


PUBLIC LIBRARY (continued) 

motivation and innovation by the new City Librarian and the 
cooperation of the City Administration. 

The challenge to the Library system is its re-orientation 
from white middle class to a multi-national, multi-racial, multi- 
interest system. The administrative staff is beginning to recognize 
the needs and the branch libraries are being tailored to meet the 
needs of the communities they serve. 

It is beginning to become evident that it is difficult to 
staff the library adequately within the civil service system. The 
system hinders the selection of appropriate employment candidates 
for very specialized assignments. It dictates promotion from within, 
thereby fostering inbreeding within an existing staff. And, it does 
not provide adequately for rewarding excellent employee performance 
of the kind expected at the professional level in a service organiza- 
tion such as the library. One of the City Librarian's major tasks 
must be the review of the selection process for new employees and 
for promotion of his existing personnel. Position descriptions must 
be modified to reflect the current requirements of the system and 
care must be taken by the Library and by Civil Service to recruit, 
employ and promote only those job candidates that meet the vigorous 
standards required by the system. 

Previous Grand Jury reports have proposed a reduction in 
the number of branch libraries to effect increased service levels 
without increasing staff. This Grand Jury recommends that all existing 
branches remain open to serve the neighborhoods. It further recommends 
that consideration be given in the Library's master plan to opening 
certain branch libraries on Sunday afternoons, as is being considered 
for the main library, even if this requires modification of hours 
during the balance of the week. In fact, given a choice, it appears 
very clear that certain branch libraries would get wider use per 
employee during Sunday opening than would the main library. 

For many years the issue of a new Main Library building 
has been discussed in San Francisco. It is generally agreed that a 
new, more functional building is a requirement for efficient operation. 
This Grand Jury heartily agrees that the existing building, although 
an architectural Jewel in the Civic Center setting, is functionally a 
misfit for modern library operation. We recognize equally, however, 
the current economic realities of city government and recommend 
therefore, that consideration of a new Main Library building be 
deferred. It is inconceivable that a bond issue of the magnitude 
required for construction of the new facility could gain voter 
approval. It is further recommended that the existing building be 
reviewed within the master plan not only with the idea of making it 
more functional within some reasonable capital cost, but also with the 
idea of improving the physical condition of the parts that have fallen 
to woeful disrepair. 



The War Memorial Board is entrusted with operation o? 
two J*5 year old buildings, the Opera House and the Veterans' 
Building. The Opera House is a 3250-seat multi-purpose performing 
arts building. The Veterans' Building contains administrative 
offices, meeting rooms for Veterans* groups, an auditorium with a 
seating capacity of approximately 1000, and the San Francisco Museum 
of Art. 

Past Grand Juries, in their reports, have been critical of 
the physical condition of the property. We are pleased to note a 
change in direction from those deplorable conditions. These 
facilities now appear to be in a much better physical condition than 
many other City-owned or City-maintained properties. 

The Opera House is used substantially all year although it 
is not always revenue producing. It generates revenues only when 
performances are open to the public but not during rehearsals. The 
complex operates on an annual budget of about $900,000. Current 
revenue is less than $200,000 leaving an annual deficit of almost 
three quarters of a million dollars to be made up from the general 
fund. Any attempt to make these facilities self-supporting would 
require substantial increases in rent to the performing companies. 
These companies, in turn, would find it necessary to raise ticket 
prices or would require some form of tax support if they were to 
continue their cultural activities. Ticket price increases would be 
unpopular and may reduce attendance. The transfer of tax subsidy 
from the Opera House to the performing companies is unnecessary and 
cannot be recommended by this Grand Jury. 

The Feasibility Study of a Proposed San Francisco 
Performing Arts Center (PAC) prepared by the Stanford Research 
Institute was studied in detail. The building, as proposed, would 
provide substantial flexibility in the scheduling of cultural events 
in the several auditorium facilities that would then be available. 
The proposed PAC would increase exposure to cultural events for the 
Bay Area public - approximately 50? of whom would come from outside 
San Francisco - since it would provide space for many more activities 
such as traveling road shows and musicals for which there is no 
space now available. 

This Grand Jury heartily endorses the PAC proposal and 
recommends that, since the Center is a cultural arts facility, it 
be put under the management of the War Memorial Board and its 
Managing Director Donald Michalske when completed. Only in that way 
will the City benefit fully from the aforementioned flexibility in 
scheduling. We see little reason for the added expense of indepen- 
dent management. We are unequivocally opposed to its management by 
the Real Estate Department which manages the Civic Auditorium and 
other City buildings because of the lack of similarity of the 


WAR MEMORIAL (continued) 

functions of other City properties with those of the new PAC. In 
order to accomplish the merger of management responsibility, action 
will be required by the Board of Supervisors to expand the property 
limits of the War Memorial to include the proposed site on the block 
bounded by Van Ness, Hayes, Franklin and Grove. We further urge 
that the War Memorial Director be involved in the planning and 
construction phases of the PAC from its inception. 


The management of the Port of San Francisco has found itself 
naively caught in the cross fire of opposing political interests. It 
has also found itself overburdened with financial problems not of its 
own making but mostly inherited when the City voted to take over its 
operation in 1968 from the State. 

Members of this Grand Jury found Port Director Thomas T. 
Soules to be a thoroughly professional and knowledgeable maritime 
administrator with much experience in the shipping industry and many 
worldwide contacts. He must, however, be freed of the politial 
shenanigans with which he is saddled so that he may function properly 
to reestablish the Port of San Francisco as a viable financial entity 
and as an asset to the City. It appears, for example, that the filing 
by the City of the recent suit against Triple A Machine Shop, the 
Department of the Navy, et al., at a time when arrangements had been 
made for negotiations to resume between Triple A and the Port for 
lease of the Hunters Point Shipyard property was either inordinately 
poor timing or an attempt at political embarrassment. 

In order to survive, the Port must undergo radical physical 
changes as well as some obvious organizational and political changes. 
The San Francisco Port is faced with the problems typical of facil- 
ities worldwide that have not kept pace with technological advances 
in the maritime industry. The proposed plan to establish the required 
facilities, under the Port's direction, at Hunters Point appears 
mired in political controversy. Much of the traffic appears to be 
lost, for the time being, not only to Oakland, Redwood City, and the 
river ports, but also to Seattle, Portland and Southern California. 

A major question that must be answered is the need for 
port activity in San Francisco itself, not in San Francisco Bay and 
adjacent river areas such as Stockton. This Grand Jury believes that 
Port activities contribute substantially to the economic life of the 
City. It is also our belief that maritime activity can and should be 
subsidized. It appears that the direct cost of Port operations can- 
not be borne entirely from maritime income. Commercial Port develop- 
ment, which must be actively pursued, could substantially defray the 
losses from Port operation. 


PORT COMMISSION (continued) 

Further, the Port must be absolved of the responsibility of 
paying the cost of operation of the fireboat "Phoenix". This total 
annual cost approximates $1 million per year. It is our understand- 
ing that, through the efforts of Mayor Moscone, an agreement has 
been reached between the Fire Department and the Port Director to 
share this cost of operation Jointly between these two entities on 
a 51^/^9? basis, respectively, for the fiscal year 1977-78. Granted, 
the fireboat, is operated for the safety of the Port. However, fire- 
fighting and the equipment with which to fight fires are the respon- 
sibility of the Fire Department. This Grand Jury recommends, 
therefore, that the total cost of operation of the "Phoenix" be borne 
by the Fire Department and that the Board of Supervisors adequately 
fund the budget of that department to provide for this increased 
cost in the future. A study, now being completed by the Fire 
Department, indicates that a new fireboat, costing some $600,000 
had the potential of saving the City almost that much each year, 
primarily in labor costs. We agree that, since the "Phoenix" is 
approximately 20 years old and nearing the end of its economic life, 
it could and should be replaced if the indicated savings - whether to 
the Port budget or to the Fire Department budget - can be realized. 

Approximately $86 million worth of bonded debt was absorbed 
by the City when it took over operation of the Port. Over ^0% of the 
annual Port budget goes to pay interest on this debt. Recently the 
Port Commission took a major step toward developing the strategy 
with which to approach the State in an attempt to gain "forgiveness" 
for at least to reduce that portion, $36.5 million, owed to the State. 
It is imperative that this Commission convince Mayor Moscone to use 
his persuasive powers and influence on the State legislators, with 
whom he worked so well for many years, to develop a sound and reason- 
able package for reduction of this obligation. 

Perhaps 10,000 Jobs in San Francisco are directly related 
to cargo handling and other maritime activities, such as ship 
chandlery, repair, insurance, etc. The economic multiplier effect on 
other peripheral Jobs created by this direct employment could be two 
or three to one, creating some 25,000 Jobs in the City and the Bay 
Area. In addition, San Francisco remains the center of port-related 
functions - even for many shipping companies whose cargo handling has 
been transferred to Oakland and other Bay Area ports -and the hub of 
import/export firms. The Port produces Jobs, income to the local 
populace and, indirectly, tax revenues to the City. It is therefore, 
necessary to the City economy that the Port not only continue 
operation but also expand its activity in a logical, planned, 
businesslike manner. 

San Francisco has one of the traditional, technologically 
obsolete ports. Its finger pier construction is grossly inadequate 
to handle large modern vessels and container cargo carriers. As 


PORT COMMISSION (continued) 

constituted, it cannot easily be converted to a terminal for handling 
bulk cargo such as coal. The major positive factor of the Port is 
the excellent, natural deep-water channel that now exists to Piers 80 
through 98 and to the Hunters Point area. 

The Army Street Terminal, Pier 80, was reconstructed 
several years ago at a cost of $8 million. It has eight berths and 
two container cranes. It is, however, barely adequate and because 
of subsidence is only slightly above water level at high tide. This 
reconstruction was done despite the known risk of settlement, 
recognized at that time by the engineers working on the project. The 
decision was made to proceed then with construction on a less costly 
basis and face the consequences at a later date - now. The only 
technically viable solution at present is to place a layer of paving 
on the existing pier at a cost of $150,000 to $250,000, an expenditure 
the Port can ill afford at this time but one that must be done at 
some time soon if this pier is to remain as a usable facility. There 
appears to be no legal recourse available to recover any of the costs 
of reconstruction resulting from the now-obvious poor decision of 
ten years ago. Piers 91 and 96 were recently completed at a cost of 
$15 million and are as modern as their competitors across the Bay 
in Oakland. 

Several major projects are in the planning stage that will 
take economic advantage of both the deep-water channels available and 
the real estate potential of the water's edge. Maximum effort must 
be made by the Port Commission and the City Administration to spear - 
head a drive to develop the waterfront properties . Necessary permits 
must be obtained and the way cleared for construction of the proposed 
$40 to $60 million bulk coal terminal at Pier 91, the slurry terminal 
at Pier 98 and the $29 million North Point Pier plan at Piers 37, 39 
and 11. 

Mr. Soules has already made contact with international 
receivers to assure, in advance, that markets are available for moving 
bulk coal through the Port. The investment in the bulk coal terminal 
will be made by private developers with relatively minor expenditures 
required of the City. It is estimated that the Port will benefit by 
almost $1.5 million annually from this project when it reaches full 
operation of 10 million tons of coal each year. The Port would be 
required to dredge the harbor at a cost of about $1 million to 
accomodate the large vessels used but this investment would be 
returned many times over in the future. 

The recent resignation of Port Commissioner Byron Arnold 
gives Mayor Moscone an opportunity to appoint a third person to the 
five member Commission and, in effect, gain control of the waterfront 
through his appointees. Rumors that the future of Port Director 
Soules may be at stake in this appointment cannot do other than hurt 
the already troubled Port. Although Mr. Soules may have difficulty 


PORT COMMISSION (continued) 

dealing with the political problems of San Francisco's Port, he has 
nevertheless attracted several major developers. This Grand Jury 
believes that he warrants a vote of confidence from the Port 
Commission and the Mayor and an opportunity to continue to revive 
what had been a dying San Francisco entity. 

Several interesting and innovative concepts were advanced 
and discussed during the investigation by this Grand Jury. At least 
one of these - the "independent" Port Authority - is worthy of 
comment. Without substantial further study , however, we cannot 
recommend the Implementation of such a proposal at this time . We do 
recommend that the Mayor appoint a task force to study the legality , 
feasibility and acceptability of such an arrangement. As an example, 
under one scheme proposed, the Port would be directed by an elected 
board, be independent of the City and County government, and be 
subsidized by funds from a revenue producing source such as the 
Airport. Although such an agency, which apparently has worked well 
in other geographic areas , can and does have appeal to the Port 
Director, who has had difficulty disengaging the problems of the Port 
from those of the political arena, it does require substantial 
reorientation and restructuring of the City and County government. 
It must be studied very carefully. 

Although not yet financially healthy, the Port appears to 
be improving its general fiscal condition. Back, unpaid rent is 
being pursued vigorously. A recent financial report may be somewhat 
deceptive, however, since it shows a substantial positive net income 
position. This in fact results from approximately $2.95 million in 
insurance, payments received after the Pier 37 fire less some $600,000 
required to clear the site. Even in this transaction the present 
management has shown its resourcefulness. We understand that Mr. 
Soules had been advised to accept $1 million for the loss but because 
of his tenacity and knowledgeability the Port's position has been 
improved by almost $2 million. Approximately $2.3 million of the 
settlement is now in escrow and can only be used for revenue producing 
capital improvements dedicated to maritime use. 

This Grand Jury recognizes many problems still to be dealt 
with. We also note that there are improvements resulting from the 
current management. We strongly urge that City government improve its 
relationship and its attitude toward the Port and that a project plan 
be prepared and promoted for major development of the area. Unless 
this is done, the Port will remain mired in financial difficulty. 

Wolfgang Hellpap, 

Frank L . Markey , 

Stelios M. Andrew, Chairman 


The Municipal Railway has a greater impact on the residents 
of San Francisco than any other City service. It is not an emergency 
service; it is not geared to one interest group; it is not an indirect 
service. The Municipal Railway provides vitally needed transportation 
to 250,000 passengers daily. All residents are eligible to use public 
transit, and a greater percentage do so than in any other city in the 
country, save New York. 

In scope of proposed service, Muni is a first-class transit 
system. Over 80% of the City's residents live within two blocks of a 
Muni line. Muni operates more than 1000 vehicles over 70 routes having 
300 line miles. It is first in the country in revenue passengers per 
employee; first in the country in vehicle hours per inhabitant; first 
in the country in revenue passengers per mile of service. 

We emphasize the impact of the Railway because we are alarmed 
by the extent to which it has been neglected. Our report covers the 
effect of this neglect on City residents, how the neglect came about, 
and the parties responsible for it. 

Equipment Deterioration 

There can be no doubt that the Municipal Railway's rolling 
stock was allowed to deteriorate badly during the last three years. 
The Grand Jury has attempted to determine why, until recently, the 
equipment was in such poor condition. 


Muni first became aware of its critical maintenance problem 
in April, 1974-. During December, 1973* while he was still Deputy 
General Manager, Curtis Green asked one of his operations analysts to 
study Muni's automotive maintenance practices. The resulting report, 
dated the following April, is astonishing. Record-keeping, inventory 
and maintenance itself were found to be chaotic. 

Supervisors and mechanics wasted a lot of time on clerical 
work because shop clerks were badly trained and in short supply. 
Record-keeping was inconsistent and erroneous because of poor training 
and because the results were not seen as a valuable planning tool, but 
were regarded instead as history only. A chronic shortage of parts 
had resulted in 72 coaches (13 per cent of the fleet) out of service. 
Supervisors and foremen spent 50 to 70 per cent of their time rummaging 
for parts; a common practice was to raid an out-of-service coach for 
parts to repair another one. Mechanics even resorted to making parts 
themselves, and the resulting product might cost three times purchase 
price. The General Motors coaches were inspected every 6000 miles 


MUNICIPAL . ..ILwAY (continued) 

instead of the manufacturer's recommended 1500. The mechanics in the 
automotive divisions spent at least 60% of their time responding to 
emergency road calls since the poorly maintained "buses broke down at 
an alarming rate. In short, there was a complete lack of anything a 
transit expert would call preventive maintenance. 

Muni ' s Response 

Despite the crippling effect of poor maintenance practices, 
Muni was still able to hobble along: the General Motors coaches 
(purchased during 1969-70) were relatively new and there were not 
enough operators to place a maximum demand on usage. Meanwhile, there 
was an attempt to regroup. Top management gave its official blessing 
to a policy of preventive maintenance, and although it took great 
persistence to convert the supervisors and foremen, a maintenance 
schedule was installed at Kirkland and Ocean Divisions. Mechanics 
and servicemen were made more efficient by having operators bring 
coaches into the yard for repair, by abbreviating the servicing cycle 
and by eliminating the use of mechanics as servicemen. Training 
courses and bi-weekly meetings were required of shop supervisors. A 
work order system was clearly needed, but was delayed for two reasons. 
An ED? system (TIMS) was being designed and the development of an 
interim manual system was seen as hindering progress on the automatic 
system. When it became clear that it would take years to develop 
TIMS, a manual work order system was devised but was not installed 
until early 1977 because of a shortage of clerical shop personnel. 
The chronic parts shortage could be solved only by increased budget 

The Board's Response 

Following the revealing report of April, 197^ and Curtis 
Green's promotion to General Manager, the first budget submitted by 
the new Muni administration was for 1975-76. This budget emphasized 
preventive maintenance, including mechanics, shop clerks, and parts. 
The budget was approved by the Board of Supervisors without critical 
cuts; however, because of pressure to relieve the City's property tax 
rate, most of the new maintenance positions, including the clerks, 
were frozen. The Board promised to release the frozen positions in 
January, 1976 but did not. During May the Board requested that Muni 
cut one-half its vacant positions, both new and old positions which 
were vacant because they were frozen. 

The Mayor's Response 

In September, 1975 the Public Utilities Commission requested 
31.5 million for Muni maintenance, but the request was cut to $.5 
million by Mayor Alioto. In December Muni initiated an engine re- 
building program, using the supplemental appropriation to hire an out- 
side contractor to perform part of the work and to hire six additional 



Muni mechanics. The number of out-of-service coaches dropped, but 
the program was terminated on June 30, 1976 when the half-million 
ran out. 

The Results 

During the summer and fall of 1976, Muni equipment was sink- 
ing to a critical level of disrepair. Any semblance of scheduled 
maintenance came to an end, as the mechanics coped with the ever in- 
creasing number of road breakdowns. The Elkton shop was capable of 
six engine overhauls a month, but the breakdown rate was at least 150% 
the repair rate. The Flyer trolleys were arriving, full of bugs and 
creating more work in the electrical maintenance shops. Throughout 
the mounting crisis, there was a severe shortage of mechanics and 
servicemen. Primarily because of the passage of Proposition B which 
cut craft workers' pay, the retirement rate doubled, but vacant posi- 
tions were still frozen. The manpower shortage was acute in every 
classification; for the Electrical Transit Service Workers, hours of 
availability dropped 32%. Even the position of Automotive Transit 
Equipment Superintendent was vacant for over two years, and as of this 
writing, still is. When the last Superintendent died, he left 7 1/2 
months of accumulated benefits which had to expire. Since then, there 
has been no list from which to hire a replacement, although one is now 
in preparation. 

The Board Again 

Meanwhile, the new Muni budget request for 1976-77 had been 
cut from $87 million to $80 million by Mayor Alioto and had been fur- 
ther cut to $73 million by the Board of Supervisors. Instead of the 
1902 drivers and 520 maintenance personnel considered necessary by 
Muni to operate the schedules then in force, the Board had allocated 
1862 drivers and 512 maintenance personnel and because of continued 
position freezing, only 1800 drivers and 490 maintenance personnel 
were actually working. In August the FUG voted to accept the reduced 
schedule proposed by Muni and to send a strongly worded message to 
the Board. The message requested that frozen positions be restored 
and stated that the full complement of 1902 drivers would be required 
to meet schedules as printed. The Board did agree to release frozen 
positions if Muni would agree to another $1.8 million cut. In 
September the FUC requested the remaining $1 million to continue the 
engine rebuilding program, but the Board reasoned that Muni had the 
manpower to do the job in-house. 


The entire question of whether to reduce runs and how many 
drivers would be required to meet any given schedule was becoming 
academic; because of broken-down vehicles, Muni missed about 25% of 
scheduled runs during September and October of 1976. 



The Board's Response 

In September, 1976, Muni reached its nadir; in November, 
the Board responded by hiring the United Transportation Development 
Corporation to investigate maintenance operations at the Municipal 
Railway. The UTD report, dated December 8, was hailed by the Board 
as proof that Muni's maintenance problems were due primarily to poor 
management; even a Public Utilities Commissioner declared the report 
"fair and objective." Indeed, the report is stylishly written, with 
Just the right touch of sarcasm. Muni's written response, dated six 
days later, is dowdy, heavy-handed and evidently not even proof-read. 
In substance, both the report and the response are lacking. 

One by one, UTD dismisses each possible factor in the main- 
tenance muddle, leaving only management as the culprit. The Muni 
organizational structure (whereby accounting, personnel, safety, 
transit planning and public service all report to the PUC General 
Manager rather than to the Muni General Manager) is recognized as 
peculiar, but not a problem. The Geneva and Elkton yards are admit- 
tedly antiquated, but the Kirkland yard is declared adequate despite 
the fact that 2hk coaches are stored in an area designed to hold 178. 
The parts shortage, not cured until the 1975-76 budget, is dismissed 
as a myth and part of the Railway's "folklore." A five per cent in- 
crease in approved staff is seen as an indication that "the Railway 
is no worse off now than it was in the late 60 's." In reality, the 
number of working mechanics, machinists and servicemen has declined 
from 1 worker per H.l vehicles in 1967-68 to 1 worker per 4.5 vehicles 
in 1976-77. Since the UTD consultants are Toronto transit men, they 
should perhaps compare the Muni maintenance force to Toronto's. At 
the time of the report, Muni employed 506 maintenance workers for 1040 
vehicles, or 1 worker per 2.1 vehicles; Toronto had 199^ maintenance 
workers for 2600 vehicles, or 1 worker per 1.3 vehicles. 

Even though all problems external to Muni are discounted, 
the UTD report does offer several anecdotes which reflect poorly on 
Muni management. The Muni response to these stories generally con- 
sists of excuses and rationalizations and circuitous reasoning, when 
frank acknowledgement might be in order if no better answers can be 


In late December, 1976, San Francisco received a Federal 
grant of nearly $3.4 million, under the Local Public Works Employment 
Act. Mayor Moscone announced that approximately one-half the grant 
would be used to fund a crash maintenance program at Muni. Perhaps 
generosity was prompted by the Urban Mass Transit Administration. 
On November 10, UMTA sent a letter to the Public Utilities Commission 
threatening to discontinue Federal funds for capital improvement un- 
less the City cleaned up its maintenance act. UMTA had so far pro- 



vlded $275 million, primarily for the purchase of new rolling stock, 
only to see those nev; vehicles rotting away for want of repairs. 

During the Fall of 1976, a crash maintenance program had been 
outlined by Muni, the original idea being to ask the Board for a sup- 
plemental appropriation. When the Federal funds became available, the 
Emergency Maintenance Program was begun on December 1 and will continue 
until November 30, 1977. About 86 additional maintenance workers are 
to be hired, and most of the automotive personnel have been recruited. 
The diesel engine overhaul rate has been increased from 1.5 per week 
to 6 per week, and is expected to go to 7 per week. Approximately 
100 coaches have been returned to service, and missed runs have been 
reduced to 5%. 

A few of the projects originally Included in the program were 
deleted because of a $139,000 cut in Muni's share of funds. The Board 
of Supervisors voted to reduce Muni's share and the Recreation and 
Park share, and to use $200,000 of the deleted funds to hire an 
independent consultant, (read UTD) to implement the recommendations in 
the UTD report. The Board took this action despite the fact that 
Public Works ' money can only be used for wages and must be spent on 
deferred programs. 

Financial Resources 

Funding for the Municipal Railway has three nearly equal 
sources: fares; ad valorem taxes; and State and Federal assistance. 


Currently Muni collects an average fare of 21$ for a ride 
that costs approximately 68<fc. While this Grand Jury is adamantly in 
favor of tax-supported public transit, we feel that the time has come 
for a fare increase. If the fares were increased to 35<fc for regular 
riders and 10<fc for children and seniors, total revenue would increase 
from $22 million to $29 million. A counter argument often heard is 
that ridership would decline, but we cannot imagine that regular 
riders would walk, drive, or simply stay home rather than pay an extra 
dime or nickel. Those on General Assistance already ride free, and 
the increased fares would still be among the lowest in the nation. 

During the coming year, fares will account for an even 
smaller proportion of expenses. The Muni budget for 1977-78 shows a 
deficit of $62 million; the deficit for last year was $1*8 million. 
The Metropolitan Transportation Commission paid 6% of Muni's operating 
expenses last year, and this important source of funds might be 
endangered if fares are not increased. MTC guidelines call for 35£ 
farebox funding as a prerequisite to MTC financial assistance. Even 
with the credit allowed for discounted fares, Muni is only 32!? fare- 
box funded, and the percentage will drop when the new budget is 




The Public Utilities Commission approved a fare increase 
over a year ago. During the furor last Fall over the increased 
property tax rate, Mayor Moscone sent to the Board a list of several 
alternative revenue sources, including a Muni fare increase. The 
Board's Finance Committee rejected the suggestions in toto. Instead, 
the Board raised the property tax rate and refused to fund a mainten- 
ance program for Muni. Not only did the Board fail to increase fares, 
their failure to fund a maintenance program has resulted in a decrease 
in farebox revenue. When Muni misses 25$ of scheduled runs because 
of poorly maintained equipment, the effect on fares collected is 
noticeable. During last September and October revenue was 9% less 
than in 1975. 

The fare increase so far proposed has been 35<t and KH for 
single rides, and §15. 00 and $3«50 for Fast Passes. Perhaps it would 
be wiser to keep senior fares at the present level and raise passes 
proportionately less than single fares in order to encourage regular 
riding. We do not endorse any particular scheme, but we do urge that 
fares be raised in some manner in the coming year. 

Ad Valorem Taxes 

Despite inflation and rising salaries, the City's share of 
Muni funding dropped from $36-9 million in 197*1-75 to $25.6 million 
in 1975-7^. It is true that most of the decrease was caused by the 
sixty-day strike since wages and benefits account for nearly 90* of 
Muni's operating expenses (compared to 655? for other Bay Area transit 
systems). Nevertheless, City support dropped about $2.8 million 
(nearly °%) . We believe that the underlying reason for this inade- 
quate financial support is a mistaken notion on the part of some mem- 
bers of our Board of Supervisors that the Muni budget should not show 
such a large deficit. 

The proposed Muni budget for 1977-78 included 55 additional 
maintenance personnel expressly for a preventive maintenance program. 
It should be kept in mind that overtime will be cut by 25 man years, 
leaving the true increase In manpower at 30. The original budget had 
provided for lHk new maintenance workers, but that number was cut to 
55 by the Public Utilities Commission. The PUC's rationale for the 
cut was that Muni could not absorb that many new workers In one year, 
even though the Emergency Maintenance Program was utilizing the ser- 
vices of 60 new, but temporary, employees with spectacular success. 

We attended one session of the Board's 1977-78 budget hear- 
ings, on the day of Muni's reckoning before the Finance Committee. 
The chairman of that venerable committee is Supervisor Barbagelata; 
the other members are Supervisors Kopp, Molinari and von Beroldingen. 
Throughout the hearing, the members of the Finance Committee seemed 



determined in refusing to believe that the Muni budget could possibly 
be warranted. Supervisor Barbagelata commented that "we lose $5 
million a month on Muni," although other city departments are not 
expected to make money. He estimated an average taxpayer's annual 
share of the Muni budget deficit and appeared astounded at the answer 
which was $200.00 for a house assessed at $50,000. Perhaps Super- 
visor Barbagelata thinks in terms of the taxpayer who maintains a car 
and drives it everywhere, rarely using a transit service he is 
nevertheless forced to pay for. A more enlightened view might consider 
that the purpose of a public transit system is to get drivers out of 
their cars; that the cost is a bargain for those to take the Muni; 
and that traffic is reduced, the environment protected, and energy 
saved, all of which benefit everyone, even those who must drive. 

Supervisor Barbagelata cited the UTD report as generally 
accepted proof that Muni does not require more mechanics; he even 
stated that Muni already has more maintenance personnel than the 
Toronto system, although in reality it has fewer. The American 
Public Transit Association ranks Muni 18th out of 20 North American 
transit systems in maintenance workers per vehicle; Toronto is ranked 
second. Supervisor Barbagelata further stated that he cannot rely 
on Muni's assessment of its own situation, that he would prefer UTD's 
recommendations. Supervisor Kopp questioned the need for additional 
workers when Muni is currently meeting 95£ of all runs, a specious 
comment. Surely the improvement is proof of the need, the increase 
in runs having been accomplished by a tremendous increase in manpower. 

The outcome of all this haggling is that the Board has 
agreed to Muni's 55 new maintenance workers if the PUC will request 
a supplemental appropriation in order to hire UTD as a consultant to 
Muni. The PUC had finally convinced the Board that Public Works' 
money could not be used to hire UTD, and UMTA had made it clear that 
its funds cannot be spent on a sole-source contract. Undaunted, the 
Board decided that UTD consultation is so essential as to warrant an 
appropriation from the General Fund. 

During the Pall, the Board had hired UTD, under a nominal 
contract, to study Muni maintenance practices. The resulting report 
placed all blame on Muni management and completely discounted the 
lack of manpower (and thus the Board) as the primary problem which 
we believe it to be. Mow Muni is asked, or rather ordered, to join 
forces with their detractors to implement the preventive maintenance 
program, a venture for which the consultants will be paid ^2 n 0,000. 
Apparently even UTD is uneasy about the feelings they raised at Muni 
since they asked the PUC for assurance that if hired they will be 
made to feel welcome! 

We do not question that Muni could profit from the advl^n 
of Toronto transit experts, but we do object to such Matant rcl'.tii 
manipulation. It seems to us that the Board has attempted to give 



the appearance of discovering the cause of Muni's maintenance probler. 
and subsequently solving it, when in reality they have done neither. 
We strongly urge that the Board adopt a more rational attitude toward 
Muni funding. 

State and Federal Assistance 

For several years now, the Public Utilities Commission has 
been instrumental in securing State and Federal funding for Muni. 
During 1975-76 State and Federal funds provided for 31JE of Muni's 
operating expenses. Of even greater significance is the capital 
improvement program financed by the Urban Mass Transit Administration. 
UMTA has so far spent over $275 million to provide San Francisco with 
a new fleet of motor coaches and electric trolleys which are already 
in service, and the all new Muni Metro which is due to begin opera- 
tion in 1978. We applaud the PUC for its role in building a modern 
Muni. Since UMTA has stated emphatically that future capital will be 
denied unless the equipment is kept in good repair, we call upon the 
Board of Supervisors to ensure a proper maintenance program. 

Driver Attitude 

Time and again the members of the Grand Jury have heard and 
voiced complaints about the rude and reckless drivers. We have found 
five leading causes for poor driver attitude: discipline, equipment, 
security, schedules and selection. 


Muni's Transportation Department is charged with the disci- 
pline of all drivers, inspectors and dispatchers. Until recently, 
the principal tool of driver discipline was a day's suspension, used 
mostly for running sharp (ahead of schedule) and miss-outs (failure 
to report in time for the first run). Another means of discipline 
was something called "attitude development," to which drivers were 
sentenced for discourtesy. We feel that the Transportation Depart- 
ment has displayed an attitude problem of its own, promoting a policy 
of suspensions and pooh-poohing the value of regular in-service train- 
ing for drivers and supervisory training for inspectors and dispatch- 
ers. We have even heard attitude development referred to as a "glamour 

Suspensions have been a major factor in low driver morale. 
The drivers regard the Inspectors as their enemies because it is the 
inspectors who observe and report running sharp; the drivers feel 
that some inspectors have favorites and pick on those whom they do not 
favor, and the inspectors are rarely suspended for their own miscon- 
duct. The inspectors themselves are not too happy either. They may 
actually make less money than when they were driving (because they no 
longer receive premium pay), and yet they do not enjoy the compensation 



of management status. The atmosphere is one of suspicion and resent- 
ment, when what is required for a smoothly functioning transit system 
is a spirit of friendly cooperation. It is the Muni drivers and their 
inspectors who are the primary providers of public service in our City. 

In the arena of driver discipline, there has been for some 
time now a tug-of-war between the Muni Transportation Department and 
the Transport Workers Union, with denunciations on both sides. But 
now that the Union and top Muni management have finally joined forces 
behind a new Uniform Disciplinary Code, it seems realistic to expect 
real improvement in the near future. 

While Muni is not ceding its right to discipline employees 
found fullty of major violations, such as dishonesty or drunkeness, 
the new discipline code calls for a stair-step of corrective actions 
for minor or moderate Infractions, such as running sharp, miss-outs 
and discourtesy. The corrective actions range from verbal "caution 
and reinstructicn" for the first offense in a three month period to 
possible termination for the sixth offense. Furthermore, it is now 
official policy that Division Superintendents and inspectors will 
work with the operators in finding solutions to problems, and that they 
will develop rapport and a more personal style of supervision. The 
inspectors' morale will improve when they are not perceived as hench- 
men and when they are treated as management. The emphasis will shift 
from punishment to correction as Muni makes a concerted effort to 
reduce accidents, miss-outs, and courtesy complaints by raising driver 
morale. During a six month trial period, careful records will be kept 
of disciplinary actions, and we recommend that the next Grand Jury 
determine whether improvement is achieved. 


The Muni drivers, already feeling low because of the suspen- 
sion policy, are further demoralized by the condition of the fleet. 
When the shops and yards are full of vehicles waiting for repairs, a 
large number of runs are missed, as much as 25* in September and 
October of 1976. Passengers wait and wait, only to board crowded buses 
or to be passed by altogether because if the driver were to open the 
door, someone would fall out. Driving a sardine-packed bus full of 
irritable passengers, every morning and every evening through heavy 
traffic must be quite provoking. This is not to say that driver 
temper is excusable, but under the conditions described it is under- 
standable. Furthermore, a driver can hardly feel satisfaction in his 
work when he knows he is providing second-rate service and there is 
little he can do about it. At least this is a problem that has an 
obvious solution, and the situation is well in hand as the Emergency 
Maintenance Program continues to return coaches to service and the 
number of missed runs holds to 5% or less. Of course, this program 
will end on Movember 30, 1977; the future depends on a permanent 
preventive maintenance program. 



Se curity 

Security is another major factor in poor driver morale and 
attitude. The drivers, especially those without radios, feel abandoned 
when faced with violence on their coaches. In order to be first on 
the draw, they may do a tough-guy act. The Board of Supervisors, the 
Public Utilities Commission, the Municipal Railway and the Police 
Department have had considerable difficulty in agreeing on a solution 
to crime on the Muni. A large force of regular police officers would 
cost too much. Temporary officers, who would receive full pay, but 
limited tenure and no retirement benefits, would be cheaper, but the 
use of temporaries is opposed by regular policemen who see a threat 
to their own security and status. The least expensive solution is a 
force of Federally funded CETA guards, but there is a natural reluc- 
tance to arm them since they are not professionals. 

The outcome was the decision to train a new class of CETA 
guards, to be ready for duty in June under the supervision of the 
Police Department. Unlike previous CETA guards, the new ones will be 
authorized to carry a weapon. Although we have been assured that they 
receive the same degree of fire-arms training as a regular policeman, 
we do not consider armed CETA guards the ideal solution. 

Since it is impossible to supply a guard for every Muni 
vehicle and since such a cure might be worse than the disease, we are 
hoping that the new communications system will go a long way in 
alleviating crime on the Muni. The system has been approved for fund- 
ing by the Urban Mass Transit Administration, but remains to be 
contracted. The system's primary security feature Is a silent alarm 
which will enable a driver to call for help without endangering him- 
self or the passengers. The system is in use in three major cities 
and is reported to have reduced transit related crime by 85 to 95% - 
We urge that all parties concerned, work diligently to install our new 
communications system as soon as possible. 


Another major factor working against good driver attitude, 
and safety as well, is the scheduling of runs. The schedules were 
drawn up long before present traffic conditions. The drivers* attempts 
to finish their runs on time is a leading cause of rudeness and reck- 
less driving. It is the primary reason drivers leave their runs early 
(running sharp), run red lights, pick up passengers without pulling In- 
to the curb, pass up other passengers altogether, and fail to wait for 
the elderly to be seated. While tight schedules do not excuse reck- 
less driving, it is certainly a cause. We feel that many drivers will 
not accept responsibility for attitude as long as they can find an 
excuse in tight schedules. 

The Transport Workers Union calls for schedule revision, 



but takes Muni to court over a proposal to delete three runs from 
one line and shift them to a nore crowded line, arguing (successfully) 
that the transfer would be a hardship for those drivers on the reduced 
line. Consider also that the Union asked the PUC to establish Muni 
runs to the airport, when excellent and inexpensive service is already 
provided, and it seems clear that the Union is bucking for more runs 
and thus more drivers. Since a significantly larger operator force is 
unlikely because of the City's financial condition, we hope to see 
improved cooperation in making effective use of the drivers currently 
authorized. We have been assured by the PUC that schedules will 
indeed be revised. 

The automatic scheduling system (RUCUS) which will soon be 
installed at the PUC Computer Center is expected to be a boon to the 
tedious and time-consuming chore of schedule revision. Another cause 
for cheer is Muni ' s current consideration of changing from a schedule- 
first philosophy to a spacing-first practice. Currently the inspectors 
are required to keep vehicles on schedule as much as possible, rather 
than space them out when a driver is late due to traffic conditions. 
This requirement is the primary reason for ''bunching", an irritation 
to drivers and passengers alike. Since bunching usually occurs during 
rush hours when runs are frequent anyway, we feel that spacing should 
take priority over schedules. The scheduling system and the practice 
of spacing (if adopted) will improve Muni's responsiveness to changing 
requirements, if the cooperation that is sorely needed is forthcoming. 


Even though the percentage is small, there do seem to be 
drivers who are unsuitable to public service. In past years, the 
Civil Service Examination for drivers did not attempt to assess a 
candidate's even temper. The situation is improving, however, because 
the latest examination included English usage and driving codes, as 
usual, but in addition the candidates were examined by an oral board 
which deliberately tried to provoke them into losing their tempers. 
Those who became aggressive and those who remained passive were failed; 
the successful persons were those who confronted the situation, but 
in a reasonably calm manner, Muni has received high praise for the 
drivers so far hired from the new list, and as larger numbers of these 
persons are hired, the public may see a difference in driver attitude. 

It is indeed necessary now to use the word persons instead 
of men. Women comprise nearly 13/5 of the new eligibility list; before 
the new list, less than 1$ of Muni's l800 drivers were women. We 
think women drivers are not only adequate, we suspect that adding 
women to the force might, if anything, improve the tone a little. 


Accidents on the Municipal Railway have received extensive 



press coverage during the last year. The Grand Jury has studied the 
problem of accidents, both their causes and the remedies. 

Occupational Safety 

3y far, the greatest tragedy during the last year was the 
death of two cable car machinists on December 9. The Grand Jury has 
read detailed accounts of the events leading up to the accident, 
both Muni's report and that of an independent consultant. The 
consultant is a highly recommended safety engineer and registered 
safety inspector. According to his report, the safety procedures 
used In the cable car barn for 80 or 90 years were not adhered to that 
day because of an unfortunate combination of events. The usual pro- 
cedure is to shut down cable winding machinery before machinists 
begin repair work. On the day of the accident, three machinists were 
sent to the vault at California and Mason Streets before the winding 
machinery was shut down. They were instructed to perform some pre- 
liminary work at street level, but not to enter the vault. Instead, 
the three men entered the vault in order to conduct an impromptu 
training session for the newest employee, and while there decided to 
begin the initial phase of the work to be performed. The work required 
standing between the spokes of the wheel; at that moment, the cable was 
released from the' powerhouse, causing the wheels to rotate and crush two 
of the machinists, both the newest employee and the one in charge. Even 
though the machinists disobeyed orders, the accident would not have 
occurred had the riggers in the powerhouse released the cable earlier 
in the morning. They had been delayed because a vendor's truck had 
arrived and required loading, and the cable car machinery supervisor 
did not want to delay departure of the truck to bring back a shipment 
of new cable. The consultant's conclusions are that the supervisor 
should have communicated more effectively with the riggers in the 
powerhouse, but that he was relying on the well-established procedure 
that repair work does not begin until the machinery is shut down. The 
consultant also concluded that while the accident could have been 
avoided, it was caused by a combination of events rather than the 
negligence of any one or two people. Another aspect of the tragedy is 
that the cable car facilities were inspected by Cal OSHA in January 
1975, and no criticism was made of the established safety procedures 
for repair work. 

During the past year the press reported that Cal OSKA was 
threatening to shut down the Railway because of numerous safety 
violations. Using a supplemental appropriation, Muni began an all-out 
effort early this year to correct hazardous conditions; as of this 
writing all serious violations and most minor ones have been corrected. 
The question, of course, is why safety was so badly neglected for so 
long. One reason is Muni's own failure to emphasize occupational 
safety and to develop clear-cut guidelines for the sharing of respon- 
sibility by engineering and safety. Another problem has been the 
combined position of Director of Personnel and Safety; personnel is a 


full-time responsibility in itself, and in most other transit systems 
there is a separate person in charge of safety. This aspect of the 
problem should improve shortly when the Public Utilities Commission 
hires a Director of Safety, as provided for in the nev; budget. The 
safety director will ensure that Cal OCHA standards are met and will 
also develop training programs geared toward the reduction of acci- 
dents. It is also true that during the past two years Muni's budget 
requests for safety improvement have been denied. 

The costliest Muni accidents, in terms of personal injury 
and thus dollar volume of claims filed, are pedestrian accidents, 
followed by intersection collisions and boarding and alighting acci- 
dents. These accidents are most frequently a result of Muni's tight 
schedules which motivate drivers to speed, to run red lights, to pick 
up passengers from the street, and to start up before waiting for the 
elderly to be seated. The obvious solutions, it seems to us, are 
schedule revision and more frequent driver training. Muni is well 
aware of the fact that when training is increased accidents dcrease. 
At one point, it was decided to give in-service training to all 
drivers during the early spring slack period. Because all drivers were 
to be trained during a short period of time in limited facilities, the 
amount of training was only one-half the amount formerly given. The 
subsequent accident rate was increased 2-1/2 times for those drivers 
who received the reduced training. 

Given the necessary spare drivers, instructors, and facili- 
ties, Muni's ideal would be to give in-service training to all drivers 
every two years. The primary obstacle in achieving this goal is a 
shortage of drivers; they cannot be spared from driving in order to 
participate in training. Even when (and if) all authorized positions 
are filled, there will not be a sufficient number. Currently, training 
is given only as a disciplinary measure, a practice which must cer- 
tainly promote a poor attitude toward training on the part of the 
drivers. Another obstacle to good training is the Charter restriction 
that only 20$ per hour incentive can be paid to line trainers. The 
initial training for a new driver consists of five days of classroom 
instruction and sixteen days of road instruction (line training). 
Experienced drivers are reluctant to give road instruction for such a 
minimal financial reward. We recommend that Muni take steps to give 
recognition to drivers considered good enough to be selected for line- 
training, to give it honor status. An important ingredient in status 
is money, and we hope that the PUC will actively encourage a repeal 
of the Charter restriction. 

Despite the problems encountered, some improvement has been 
achieved and proposals now under consideration may lead to further 
improvement. The initial driver training course has been improved 
and the accident rate for the newer drivers is less than that for 
drivers overall.. The Bay Area Regional Transit Association is con- 
sidering conducting quality in-service training for the benefit of 



all Bay Area transit systems. 

Cable car accidents have been especially well-publicized 
during the last year. The majority of the accidents have involved 
running board passengers being hit, and boarding and alighting 
injuries. In January the PUC adopted new rules limiting the number of 
outside passengers, and requiring signs to be posted warning against 
leaning out and overcrowding on running boards. Muni has also recom- 
mended the prohibition of left-hand turns by automobiles on cable car 
streets, the posting of signs warning automobile drivers of cable car 
turns, and the proscription of running board passengers altogether. 
Muni's Transit Improvement Program is considering the development of 
a hydraulic braking system and improved night lights. 

The three well-publicized cable car accidents of last Fall 
were caused by faulty depression beams, which caused the cable cars 
to stop suddenly. Muni had previously requested $400,000 for a pro- 
gram of Reconstruction and Replacement, including $250,000 to repair 
the depression beams, but the entire request had been denied by the 
Public Utilities Commission. Following the accident, a supplemental 
appropriation was approved by the Board of Supervisors. It is inter- 
esting to note that claims arising out of the three accidents had 
amounted to more than $860,000 as of last January. The amount settled, 
if typical, will be only 8% or 9% of the amount claimed, but it is a 
sobering thought that the accidents could have been avoided altogether. 


We have demonstrated that the number one problem at Muni 
has been the lack of a preventive maintenance program. Poorly main- 
tained coaches, trolleys and streetcars break down frequently, creating 
a workload the understaffed shops cannot cope with. The effect on 
service is devastating when as many as 25$ of all runs are missed. 
Passengers are kept waiting, buses are crowded, and drivers are rude. 
Furthermore, State and Federal financing is jeopardized when fares 
drop and when equipment is not kept in good repair. 

The primary reason for inadequate maintenance has been 
inadequate funding. Muni caught on to the need for more maintenance 
three years ago; the Board of Supervisors is just now showing signs of 
reluctant agreement. Not only has the Board failed to recognize the 
critical need for better maintenance, they have attempted to place 
all blame on Muni management and are now presenting outside consulta- 
tion as the solution. When a preventive maintenance program is in- 
stalled and transit service is permanently improved, the Board will 
no doubt take credit. In reality, the Board has caused the problem, 
and their suggestion that they have discovered the cause and proposed 
the solution is a sham. 

We do not imply that Muni management enjoys a spotless record, 



A manual work order system should have been Installed long ago, 
despite the Impending automatic system and the shortage of clerical 
help. Disciplinary policy was unwise and deserved redesign before 
now. Occupational safety has not been accorded its proper importance. 
The most telling event of the year was the adoption of Alfred Eggen's 
proposal to combine the two cables used on the Powell-Mason cable car 
line. Mr. Eggen's ingenuity will save the residents of San Francisco 
nearly $100,000 annually. He first conceived his idea years ago, but 
could not convince Muni management to take responsibility for such a 
change. We congratulate Muni on the numerous improvements that are 
underway, but we hope that in the future they are not so ponderously 
slow to take action. 

We do not believe that Muni management can be fully evaluated 
at this time. Because of the overwhelming primacy of factors beyond 
their control, the current Muni administration has not been given a 
chance to show what they can do. The utter hopelessness of the situa- 
tion has probably aggravated any management shortcomings. But if 
the required personnel are funded and a preventive maintenance program 
is installed, we have every reason to believe that Muni will provide 
the City with good transit service. We were quite impressed with the 
dedication and resourcefulness we encountered during our many discus- 
sions with Muni officials; nearly every person had concrete ideas for 
improvement in his area of responsibility. 

Our primary recommendation to Muni is to be bold in tapping 
the ideas of its own employees, and to be firm and swift in the adop- 
tion of better ways of doing business. 

Irene G. O'Neil 
Suzanne E. Perry 

Leslie Evans, Chairman 



The Department of City Planning, under the City Planning 
Commission, has the responsibility of adopting and maintaining a 
comprehensive, long term general plan for the improvement and future 
development of the City, known as the Master Plan, including making 
any necessary changes and coping with numerous existing and future 
complex problems in the Neighborhood, Commerce and Industry, 
Transportation, Housing and Land Use planning. The Department 
maintains constant contact with the federal and state governments 
and agencies, many of the other city departments and agencies, and 
the public. The City Planning Department is assigned the task of 
processing approximately 600 building permits a month and providing 
city-wide liaison so that neighborhood groups are informed of 
planning matters, to ensure that neighborhood concerns are incorporated 
in the decision-making process. It also works closely with citizens 
advisory committees and other neighborhood groups. 

With such a broad and important assigned task, the staff of 
this department, has been coping with its assigned work-load under a 
minimal skeleton crew and in poorly located office quarters at 100 
Larkin and 1212 Market Streets. In spite of the severe handicapped 
condition in which they have been placed, Mr. Rai Okamoto, the 
Planning Director, and his administrative staff have (since the first 
of January, 1976, when Mr. Okamoto took charge of the Department) 
devoted themselves to their assigned task and have displayed their 
remarkable professional ability in all aspects of their duties. 

Past Grand Juries have recommended housing the Planning 
Department personnel together in one office building rather than in 
three separate ones. We are happy to see that some consideration has 
been given to these past recommendations and that the Department 
personnel are now housed in only two instead of three locations. 
However, it is noted that there is still much hinderance in the 
performance of their duties and inconvenience to the public because 
the Department is not located together in one building and also is 
located away from the other City departments, with which this 
department has close daily contact. 

With respect to the clearly noticeable shortage of working 
staff, Planning Director Okamoto has submitted excellently prepared 
Budget Explanations for the coming 1977-1978 fiscal year, supporting 
the conservative and well prepared 1977-1978 Budget for the City 
Planning Department. However, this Grand Jury deeply regrets to 
report that, the necessary budget requests have been drastically cut 
down or completely rejected by the Mayor and/or Board of Supervisors' 
Finance Committee. For instance, a budget request for 6 clerk typists 
had been submitted for the coming fiscal year. Seven clerical 
positions (3 ad valorem and 4 CETA) were lost in the past year, 



because people left the Department and their positions were not 
allowed to be refilled. After the Mayor's office had trimmed the 
request and approved 3 Clerk Typist positions, the Board of Supervisors' 
Finance Committee disapproved the entire request allowing no replace- 
ment of the badly needed clerical help. The submitted Budget Explana- 
tions clearly set forth the importance of having the few requested 
positions approved. The Work Program for the coming fiscal year was 
also excellently prepared and submitted by the Planning Department 
last February. When examination of both the Work Program and the 
Budget Explanations is thoroughly made, there should be no doubt how 
sincerely and in detail these two submitted documents were prepared 
by the department . 

Mr. Okamoto has been much concerned with the lowering of 
staff morale ever since he took office. Although he has been able to 
handle this potential problem very efficiently so far, this Grand 
Jury recommends the following in order to enable the department's 
work-load to be processed promptly and smoothly: 

1. If and when a supplemental budget is submitted by the department, 
that it be given prompt attention and a thorough review. 

2. It is also recommended that the Planning Department be placed in 
one centralized location, if at all possible, together with or 
close to the other City departments with which the department 
has frequent daily contact. It is urged that this recommendation 
be followed and realized within the next few months, instead of 
waiting for a building to be acquired in the future, since this 
also is tied in closely with the efficiency of the work-load 
processing and the morale of the department personnel, not to 
speak of the inconveniences placed on the public having business 
contact with this department. 


Under the five members of the Parking Authority, there are 
only three on the staff working in the Office, including the Director. 
In spite of this amall staff, unlike those prevailing throughout the 
City departments, there appears to be no morale problems existing in 
this office. Mr. Arthur Becker, until his retirement, effective 
January 31 > 1977, apparently had received good reciprocal cooperation 
and assistance from his staff, the Parking Authority members and 
other departments. In addition to having no morale problems, Mr. 
Becker indicated that his department had no budgetary fund shortage 
problem and no complaints on the number of staff. 

Succeeding Mr. Becker, Mrs. Margaret L. Brady was appointed 



and took over the directorship the first of February of 1977- As did 
Mr. Becker, Mrs. Brady has indicated that, despite the completion of 
BART the need for additional parking facilities in the City has not 
decreased. Except for the Performing Arts Center garage and the two 
decks being added to the Mission-Bartlett Oarage, there will be no 
more large parking facilities built for some time, unless construction 
of the Yerba Buena Center is begun in the very near future. 

As to the existing public parking garages, the new Director 
had submitted for approval a budget request of $0,000 to remodel the 
3 elevators in the Civic Center Garage, where only one is now in 
operation. Although this request was turned down by the Finance 
Committee in April 1977, two oil-hydraulic elevators are presently 
being installed with the contingency fund being used. This will 
enable the Civic Center Garage to have three elevators in working 
condition within a few months . 

The Neighborhood Parking Program, which has been in 
effect for over ten years, is working very smoothly with 22 Municipal 
parking lots, apart form the curbside parking, in existence at present. 
With a keen lively interest in her new position, Mrs. Brady has 
actively started to conduct a close study and survey of the neighbor- 
hood shopping district parking. 

In conclusion, it is found that this is one department of 
the City, where very few problems exist. Mr. Arthur Becker is to be 
commended for his Job well-done and it is very fortunate for the 
Parking Authority to have such an active and capable new Director, 
Mrs. Margaret Brady to succeed the position. 


The Recreation and Park Department has such a broad 
diversity of activities that it is almost impossible for us to 
investigate each of them thoroughly during this Grand Jury's term. 
Consequently, this report is a result of concentration on certain 
problems which were brought to our attention and investigated. This 
department, headed by Mr. John J. Spring as its Director and under 
the Recreation and Park Commission presided over by Mr. Eugene L. 
Friend, supervises and manages many facilities, which the City and 
County of San Francisco is famous for and can be proud of. However, 
in recent years, due to lack of funds for proper management and 
maintenance, some of the facilities have been left to run down and 
now have even gotten to the state of disgraceful disrepair. 



The Golf Courses 

Investigating the conditions of the five Municipal golf 
courses, there Is much to be Improved In the manner of management 
and the maintenance of the courses and the building facilities. For 
the above reason, concerned citizens organized the Citizens Golf 
Association of San Francisco in 1972. In spite of the efforts and 
volunteer contributions of this concerned citizens' group for the 
past five years, there still remained apparent deterioration in both 
the management and maintenance of the building facilities. In 
January of this year a "Citizens Advisory Committee for the Municipal 
Golf Courses" was appointed by the Board of Supervisors with its 
first meeting being held on the 22nd of February. This Grand Jury is 
happy to see these two groups working very closely. The new Advisory 
Committee is attemtlng to find some good solutions by starting to 
look into all aspects of the existing problems regarding the 
Municipal golf courses. Investigation has been conducted by this 
Grand Jury, including the studying of the Citizens Advisory Committee's 
unofficial interim report drafted with what it has been able to find 
out in the short time of only a few months since its formation. We 
understand that there is a proposal made and a public hearing is 
being planned on the feasibility of leasing out management and 
operation of the Municipal golf courses to private parties, which 
may be one good solution in the improvement of all aspects of the 
golf courses which once had a fine reputation. This Grand Jury has 
received and studied a copy of an interim report and recommendation 
proposed, in a rought draft form, by a sub-committee of the Citizens 
Advisory Committee. The Report is yet to be finalized and approved by 
the Advisory Committee as a whole. The proposed recommendations are 
detailed and thorough. It is, therefore, strongly urged that the 
Recreation and Park Commission, the General Manager, the Director 
and the Supervisors placed in charge of the golf courses and facilities, 
make every effort to carry out promptly the good and feasible recom- 
mendations the Advisory Committee may propose. In the meantime, with- 
out waiting for a permanent new policy on the management of these 
assets, the Grand Jury strongly recommends that all City officials 
involved see to it that the following is carried out: 

1. A fund be appropriated and approved to improve the 
restaurant facility of the Lincoln Park building which has been 
condemned and closed for the past several years, to have it restored 
to the standard required by the City Codes and ordinances, so that it 
will be easier to find a consessionaire to run a good restaurant to 
be utilized by golfers and possibly by the general public. 

2. Patrolling and marshalling of golf courses are prac- 
tically non-existent at present. It is strongly recommended that at 
least one marshal be assigned to each of the three 18 hole courses so 
that each of the golf course supervisors will be able to devote his 



time to all phases of his assigned duties efficiently. It is further 
recommended that the Recreation and Park Commission and the Department 
make a request for cooperation to the Police Department that a 
standing order be issued to have Officers from the Police Station, in 
whose geographical Jurisdiction the courses are located, to give full 
cooperation and assistance to the marshals of the golf courses as part 
of their assigned duties. This was done many years ago. Also, an 
inter-communication system is necessary between the Police patrol 
cars, the Golf Marshals and the starters' offices. A method is 
needed where citations may be issued to trespassers and vandals on 
the courses by police officers responding to the request of marshals 
or starters. This should decrease the number of so-called "free- 
loaders" on the courses, increase the revenue from the green-fees 
and minimize any unnecessary golf course repair and maintenance cost. 

West Sunset and Diamond Heights 

It is noted that at various recreational facilities, such 
as West Sunset and Diamond Heights area recreational parks and 
facilities, and on many other children's playgrounds much vandalism 
can be observed with the damages not repaired promptly. It is 
recommended that funds be appropriated to have such repairs made 
immediately or have measures taken so that such damages cannot be done 
so easily and enable children, senior citizens and others to utilize 
such facilities safely and without any fear. 

A vacant lot, left unused for many years, is existing 
adjacent to the West Sunset Recreation Center, where a recreational 
facility such as a soccer ground may be developed by the Recreation 
and Park Department. This Grand Jury investigation reveals that the 
land title to this vacant lot is in the name of the School Department/ 
Board of Education. It is recommended that this title, which was 
acquired by the School Department/Board of Education in the early 
1950s, approximately 25 years ago, be transferred, to the Recreation 
and Park Department for a recreational facility, which could be 
utilized in this area of the City. For this purpose, it is strongly 
recommended that the Controller's Office give full cooperation and 
assistance to the Recreation and Park Commission and Department and the 
Board of Education and that all parties concerned promptly work out 
the best possible way for this title transfer and materialization 
of such recreational facility. 

Golden Gate Park Closing 

This Grand Jury is happy to see that the Recreation and 
Park Commission and Department are very thorough and cautious in 
conducting their public hearings and coming up with fair and wise 
decisions thereafter. The public hearing on the additional 
holidays' closing of Golden Gate Park to auto traffic held on 
April 11th was most efficiently handled and the subsequent decision 



made by them was most appropriate against this additional closing. 

This Grand Jury wishes to thank all the Commissioners and 
the administrative staff members of the Recreation and Park 
Department and also the Director and staff of the Real Estate 
Department for rendering us their full cooperation and assistance 
during our study and investigation of the Recreation and Park 
Department . 

Mrs. Mary B. Donnelly 
George A. Kardum 

Seizo F. Oka, Chairman 



Mr. Edwin Sars field is General Manager of this department and 
controls a budget of $163 million of which approximately $20 million is 
medical aid to families with dependent children. The department 
contracts an additional $1.5 million in supervised home supportive 
services. This department has one of the three largest budgets in the 
City and County of San Francisco; the first of which is the Department 
of Public Health Budget, and second the Unified School District. The 
Department of Social Services employs 1,600 people and occupies five 
buildings in the City. The first three floors of the Flood Building 
at 870 Market Street are occupied by the Department of Social Services. 
Food stamps are distributed at 1360 Mission Street. A building is being 
constructed at 170 Otis Street. It will be completed around March 1978, 
and will house all of the Department of Social Services offices. 

The Department of Social Services also provides aid to the 
totally disabled, mentally retarded, aid to the blind, aid to people over 
65 years of age, and general welfare. 

The function of the Department of Social Services is to provide 
financial, medical and social services to all eligible people in the City 
and County of San Francisco. After one applies for these benefits and 
services, the Department of Social Services must investigate the need 
and approve eligibility. The investigatory processes have resulted in 
a great cut back of persons on general welfare assistance to those genu- 
inely in need. Mr. Sars field is to be congratulated in this vigorous 

A new training program has been instituted to enable staff 
members to receive time off from work to continue training in psychology 
and related fields. This should enable the department to retain highly 
skilled staff people. In addition, it is reported that many of the 
employees have received time from work to complete classes leading to a 
Master's Degree. This again should benefit the department provided the 
time off is not disproportionate to job requirements. 


San Francisco has a very large percentage of senior citizens. 
As a result, the Commission on the Aging was established in 1972 to 
provide a broad range of direct services and to act as a sounding board 
for increased awareness of the City government toward the unique prob- 
lems of the elderly. 

Mr. Patrick Magee, the Director of the Commission on the Aging, 
has his offices at 1095 Market Street. Despite a rather limited budget 
of only $88,000 the Commission seems to be singularly dedicated to their 



Housing problems of senior citizens constitute a major 
concern of the Commission. Although the Commission does not have direct 
Jurisdiction over nursing homes, it maintains a watchful eye over 
their operations and imparts that information through a housing referral 

Recent publicity concerning the State inspection of the Post 
Street Convalescent Home has made the public aware that abuses even 
do occur in licensed homes. We are informed that the Post Street 
Convalescent Home has been placed on 6 months probation by the State. 

Because many elderly citizens die within months of a transfer 
to a nursing home, the Commission is studying alternatives to that 
kind of sometimes abrupt displacement. One proposal is a home-sharing 
system where several senior citizens can combine their limited incomes 
to support an independent existence in a private residence. 

The Commission also maintains several unheralded but important 
programs. A senior citizens' information telephone line is open 24 hours 
a day, seven days a week. The service provides information on Jobs 
and housing, on City programs, benefits and even social and cultural 
opportunities. Additionally, the Commission publishes and distributes 
booklets of services for the elderly in several languages. 

This Commission under the direction of Mr. Patrick McGee, 
has a very limited budget of $88,000 and thus uses volunteers both young 
and old to accomplish the Commission's work. They seem to be very 
dedicated and enterprising people, truly concerned about the senior 
citizens of the City. 

We applaud their efforts. 


Ms. Susan Heller is Coordinator and Executive Director of 
the Commission with a modest budget of only $59,000. Of the eight 
people on the staff, six are CETA employees. Ms. Heller must thus 
accomplish her responsibilities with volunteers — approximately 
two hundred in number. 

This Commission is less than two years old, and one wonders, 
based on the above figures, whether the City is really committed to 
the work of increased awareness of women's abilities and rights. 



Despite these obstacles, this Commission has made great 
strides. Although not acting as a Job referral or Job placement 
agency, it has been concerned with opening non-traditional Jobs 
to women: firefighting, engineering, architecture, management 
and some craft trades. It monitors civil service job announcements 
and testing procedures. A major area of study is equality in pay 
for comparable work. 

With regard to childcare, the Commission participated in 
the Board of Supervisors ' Childcare Task Force and is currently 
attempting to make improvements in this area. 

Although reporting a decline in the number of credit 
complaints, the Commission does monitor credit problems and actively 
follows up on the few inquiries it receives. These usually relate 
to women being unable to obtain credit, or recently divorced women 
seeking to establish a good credit rating, this affects their lives 
in many ways, especially in the purchase of homes. 

In sum, despite a certain ambivalence to its functions by 
the City, this Commission is forthrightly addressing the problems 
of women in our society and patiently making progress in solving 
them. Much of their success comes in making City government and 
other employees sensitive to previously unperceived inequities. 

Earl L. Ellingson 

Mrs . Dagmar G . Meyer 

Mrs. Edith Perlman, Chairman 



This committee has made a survey of the Civil Service 
Commission, Health Service System and Retirement System. There is 
an inter-relation of these services and an interdependency on each 
other in the areas of the initial hiring, health and welfare coverage 
and retirement of the city employees. This committee has found minor 
recommendations for improvement of these agencies as the department 
heads have very efficiently managed the operation of their departments. 

The Civil Service Commission's role and personnel function is 
detailed in 16 Charter sections. Their responsibility is limited to 
adopting rules to carry out the intent of the various Charter sections. 

The resignation of Mr. Bernard Orsi, as General Manager, 
has been most untimely, since it was at the time when Mr. James F. 
Wurm, the Assistant General Manager, Personnel, was also retiring. 
Fortunately, The City will have Mr. John J. Walsh, who has seventeen 
years of experience with various government agencies, to take up the 
post . 

Hearing Officer 

About a year ago it was contemplated that a qualified hearing 
officer would conduct dismissal hearings instead of the department head. 
Only recently has this proposal been sufficiently supported so that an 
amendment of the rule has been proposed for adoption. When adopted, 
notification will be sent to: 

The State Conciliation Service 

The American Arbitration Association 

The San Francisco Bar Association and other agencies. 

The notification will indicate the method of application re- 
quirements for hearing officer and compensation for such services on a 
daily or per case basis. This committee recommends that a hearing 
officer be implemented soon to enable more executive time to be employed 
in managing the department and save precious tax dollars and hours spent 
by the department head. 


The Health Service System, under Mr. Philip J. Kearney, 
Executive Director, deals with the various employee health insurance 
plans. Mr. Kearney has administered the operation well and has carried 
out the System's mandated responsibility effectively. 



Previously there were three plans: 

1. City Administered, 

2. Kaiser Foundation, 

3. Blue Cross. 

The Blue Cross representative and the Board have mutually 
agreed to discontinue Plan 3 effective June 30, 1977. 

Blue Cross 

The rates presented for the fiscal year 1977-1973 included 
36. H% increase and a further stiDulation that at least 4620 members 
enroll in the plan. 

The Board determined that the rate will not be commensurate 
with the earning power of City employees and additionally that the 
required number for enrollment cannot be guaranteed. 


Mr. Daniel Matrocce, Secretary and General Manager of the 
Retirement System, and Mr. George B. Springman, Chief Investment 
Officer, were criticized after an investigation by the Board of 
Supervisors' Budget Analyst. The report made on the investment opera- 
tion by the Budget Analyst was dramatic, but was proven at least par- 
tially unwarranted. It must be borne in mind that such trust funds 
are absolutely restricted from being invested in speculative securities 
with high risks which are most likely attractive from the standpoint 
of being of high yield but which are of low quality. The funds in this 
System, which are for the future benefit of the City employees, must be 
invested in sound quality securities. Bearing this in mind as the most 
essential requirement, the able staff of the Retirement Board should 
make every effort to invest in those securities with the best possible 
yields and the lowest risk within the strictures of bond sale penalties, 
The analyst's investigation and report seem to have been centered on 
the yield, which should not have been the main criteria in looking into 
operation of this type of fund. 

The analyst also reported "excessive cash balance" being main- 
tained with the City Treasurer's Office which is restricted to invest- 
ment of low yield, rather than invested by the System itself. The 
System staff has concurred with this finding of the analyst and at pres- 
ent they are investing the excess cash for higher yield themselves. 



The disability awards payments made to police and fire 
personnel in San Francisco run five times higher than the awards 
bestowed on those in Los Angeles. With a view toward a more impartial 
and fair adjudication of such claims, it is recommended that the Board 
hire an independent professional hearing officer to handle the disabil- 
ity retirement claims. 

Stelios M. Andrew 
Lawrence M. DuVall 

Carlos E. Xavier, Chairman 



The Chief Administrative Officer of the City and County of 
San Francisco is a non-political position appointed by the Mayor and 
approved by the Board of Supervisors. His term runs until retirement 

The very able Mr. Thomas J. Mellon has retired and the Board 
of Supervisors approved the appointment of Mr. Roger Boas. This 
committee had various contacts with Mr. Mellon and he felt that his 
greatest achievements were the completion of the new San Francisco 
General Hospital and the beautification of Market Street. 

Mr. Boas, however, inherited many old and new problems, for 
example the Yerba Buena project which is now in the hands of the 
architects and engineers who are preparing the final plans. San 
Francisco will finally get its much needed Convention Center. 

The lack of middle management has remained with the depart- 
ment and this committee believes that a concentrated training program 
should be undertaken to improve the caliber of middle management 
throughout City departments and thus have better coordination between 
various City departments. 

Mr. Boas also had to tackle the proposed sewer contract to 
M.B.M. Certain irregularities were uncovered and Mr. Boas cancelled 
any further negotiations with this firm. This exposes a problem in 
the selection process of parties to consulting contracts. It is 
apparent that there is a need for uniform guidelines to be followed 
before the designation of the parties to such negotiated contracts 
which should include a credit check, criminal screening as well as 
determination of professional qualifications. 

The urgent need for better management has manifested itself 
by all these above mentioned cases and we feel that Mr. Boas should 
take the initiative and improve the level of middle management through- 
out City government and thus safeguard against unnecessary expenses 
for the taxpayers of the City and County of San Francisco. 


City government is not fully informed as to the extent of 
the duties of the Coroner's office according to Dr. Boyd G. Stephens, 
M.D. The Coroner and his staff carry the responsibility of determin- 
ing the cause of death in any unexplained death or any death case 
that was unattended by a physician for a period of 20 days prior to 


CORONER (continued) 

The Coroner is called into every homicide case, yet, his 
investigators are not compensated at the same level as compared to 
other investigators in other City departments. 

The office is known as one of the best in the country. 
Dr. Stephens fears that due to the lack of top modern equipment the 
Coroner's office is quickly losing this reputation. The sore point 
here seems to be that there is not enough funding for necessary lab 
equipment. Dr. Stephens told us that, if for instance, the deputies 
and the toxicologist would withdraw some of their personal equipment 
this office would have to close. 

The copying machine, which actually makes money for the 
City, is only on loan from a research project. The Coroner cannot 
get a copy machine of his own, the same with a computerized vital 
instrument in the toxicology room. Dr. Stephens does not feel this 
office would not pass an inspection by a national accreditation 
committee if it were inspected with only City furnished equipment. 

Dr. Stephens said that he should have at least two full- 
time pathologists. He has only one full time and one part-time 
pathologist at present. He also needs one more full-time technologist 
because the quality of the work suffers, considering that the part- 
time personnel has additional interests elsewhere. 

Any homicide in recent years requires a lot more detailed 
investigation and more technical testimony in court and is a lot 
more time-consuming compared to what it used to be. 

The present staff has to handle 2,500 cases a year and they 
do a commendable job. As to morale within the department, it is our 
opinion that aside from the fact that his staff feels that they are 
underpaid, the morale is good. Dr. Stephens said that he has very 
good relations with other City departments, although he mentioned 
that there were cases where the police did not act very prudently 
regarding homicide evidence. The coroner's working area is quite 
modern and very spacious. 


1. The Coroner should give lectures at the Police Academy 
concerning homicide procedures. He had not been invited for the last 
five years to lecture at the Academy although in other municipalities 
this is common procedure. 

2. Prom the standpoint of economy and efficiency equipment 
that is used both in the Police department Crime Lab and the Coroner's 
Lab should be purchased and used jointly wherever possible. The Police 
department and Coroner's office should coordinate in this regard. 


CORONER (continued) 

3. It appears to this Grand Jury that although there is no 
dishonesty in the Coroner's Department regarding claims of bodies from 
the morgue by private morticians, we do recommend that a better pro- 
cedure could be developed within the department. We feel that a more 
foolproof system is in order, perhaps requiring written confirmation 
of the authorization from the family to the mortician. 


This department is responsible for all inter-communications 
of the Police department and Fire department. The department which is 
headed by the able General Manager, Mr. Burton H. Dougherty, is also 
responsible for the upkeep of all parking meters and installation of 
stoplights throughout the City. Repairs and services are carried out 
by the department through work orders that are received by Mr. 
Dougherty. All new installations are approved by the Board of 
Supervisors . 

In a previous Grand Jury report, it was foreseen that the 
9-1-1 emergency telephone service would be available to the citizens 
of San Francisco by September 1975. It is now June 1977 and this 
system appears to be still headed for an indefinite delay. We were 
in contact with Mr. Dougherty on this and we were told that an ad hoc 
committee is studying the additional cost since AB 416 was passed by 
the State Legislature. Mr. Dougherty estimates this system would 
cost the City about $800,000 annually to operate. The State would 
contribute about $588,000 per year. A lot of valuable time in emergen- 
cy situations could be saved by implementation of the 9-1-1 system. 
This department also maintains the electrical board operated by and 
supported by a new computerized system used by the Fire Department 
which gives essential information as to how much equipment to send to 
any particular fire, the routes to take and the occupancy of the 

There are a lot of dedicated people in this department. Mr. 
Dougherty has to perform administrative as well as technical duties, 
because the vital position of work-crew foreman has been eliminated. 
Preventive maintenance on equipment cannot be performed because of 
this lack of personnel. 


1. The 9-1-1 system should be installed because we see it 
as an absolutely necessary system and vital time can be saved in 
individual emergency situations. 



2. The position of work-crew foremen should be reinstated 
to return Mr. Dougherty to his administrative duties. 

Frank L. Markey 

Miss Irene G. O'Neill 

Wolfgang Hellpap, Chairman 



The Director of the Department of Finance and Records, Mr. 
Virgil Elliott, subject to the approval of the Chief Administrative 
Officer, administers the services and activities of the Department 
of Finance and Records, Agriculture and Weights and Measures, County 
Clerk, Recorder, Registrar of Voters, Public Administrator - Public 
Guardian, Tax Collector, and Farmers Market. Mr. Elliott did have 
the Records Center under his supervision, but this Department has 
been disbanded, a private firm now handles the storage for the former 
Records Center. The five employees who worked in the Records Center 
have been placed in other duties in other departments . 

Even though Mr. Elliott has a great many responsibilities 
supervising several departments he seems to be very dedicated and 
capable in the performance of the duties of Director. 


The Department of Agriculture and Weights and Measures under 
the direction of Mr. Raymond L. Bozzini is composed of three units: 

1. Agriculture 

2 . Farmers ' Market 

3. Sealer of Weights and Measures 

The three principal responsibilities of this department are: 

1. To promote and protect the agricultural industry. 

2. To protect and benefit the grower and consumer and 
the environment by enforcing the provisions of the 
Agricultural Code. 

3. To promote and protect the health and welfare of our 
citizens within the parameter of his delegated authority 

The Department of Agriculture's personnel consists of one 
Commissioner, one Deputy Commissioner, five Inspectors and one clerk 



1. The Sealer has the primary function of inspection of 
scales : 

a. Railway track - for freight cars 

b. Wholesale and retail butcher scales 

c. Counter - spring, computing, and prescription 

d. Special scales - platform and dormant. Vehicle, 
Hopper and Tank. 

2. Independent weighmasters are inspected to make sure 
their scales are accurate. 

3. Petroleum equipment - This pertains to the inspection 
of equipment used by firms that sell petroleum products 
such as motor fuel, motor oils and lubricants. 

4. Package inspection - This function is the inspection of 
packages , containers or amounts of commodities sold or 
being delivered, in order to determine whether they have 
the exact quantity or amount, and if they are labeled 

5. Measuring devices inspected - retail gas pumps, Grease 
oil meters, Yardage meters, Vehicle meters, Taxi meters, 
Liquified gas meters, Liquid meters. 

Electric Sub-Meters 

The Sealer of Weights and Measure's has the duty of inspecting 
Electric Sub-meters. Due to an insufficient inspection staff, he 
has been unable to perform this duty. 

A survey conducted by the State Bureau of Weights and Measures 
in January 1970, revealed that San Francisco has more than 11,200 
apartment houses in addition to office buildings. It was found 
that some of these buildings have up to 500 sub-meters . There are 
a total in excess of 15,000 sub-meters. It was noted that many electric 
meters are undersized, wired wrong for accurate measurement, and installed 
on the wrong voltages. Many of the installations date as far back 
as 1910. State investigations showed many meters present significant 
safety hazards. This situation still exists today. 

The testing of electric sub-meters would require one 
Inspector full time. This department is required under Business and 
Professions Code Section<-3009 .2.1 to test electrical sub-meters at 
least once every ten years. 



This Grand Jury believes that the department of Weights and 
Measures should have a full time inspector and the equipment to carry 
on the inspection of these electric sub-meters. If no additional 
personnel are granted by the Mayor and The Board of Supervisors, 
we recommend that this function be given oriority with the existing 
personnel, even at the expense of some of their other functions. 

To neglect the inspection of these meters could cost the 
citizens of San Francisco thousands of dollars in wrong meter reading, 
as well as Jeopardize the safety of our citizens because of potential 


The principal functions of the County Clerk, Mr. Carl M. 
Olsen, are to receive, index, file and retrieve legal documents for the 
Superior Court of the City and County of San Francisco. These documents 
also serve the needs of litigants, attorneys, and the general public. 

Handwritten books of indexes are maintained with the excep- 
tion of the criminal index which has been computerized. 

After the various legal documents are received and stamped 
filed by a deputy clerk at each of the respective divisions, the 
documents are indexed; subsequently, they are filed permanently as 
official records. The file folders are physically stored on the 
premises for approximately nine years depending on the availability 
of storage space. Storage of some of the records is being contracted 
out to a storage company which solves a small part of their storage 
problem. In addition, Mr. Olsen has requested budget approval for 
microfilm facilities which will further alleviate the space problem. 

Mr. Olsen' s staff consists of 91 people including himself 
but he says he is short nine people. A new Civil Service list will 
be posted in the near future which may solve this personnel shortage. 
The revenue received through this department in filing fees is 
approximately half of what it takes to pay the salaries of his staff. 

The last Grand Jury found that the fee remittances were 
improperly processed, however, since that time Mr. Olsen states that 
he has corrected that problem. 

Criticism had also been directed at this department principally 
by Judges and attorneys in that file folders or specific documents 
not in the folders were unavailable upon request. Mr. Olsen is 
sensitive to the problem and states that progress has been made to 
correct it. 


COUNTY CLERK (continued) 

The investigation of the prior Grand Jury concluded that 
the individual Courtroom Clerks of the Civil Departments of the 
Superior Court are needed because of the personnel shortage to provide 
assistance to the County Clerk during the hours before their respective 
courts convene and after the Court is adjourned. It seems that the 
cooperation of the individual Superior Court Judges is one way the 
County Clerk can obtain more personnel to help clear up some of the 
heavy workload of this department. The Superior Court Judges should 
insist that their Clerks report to the County Clerk after their duties 
are completed in the courtroom. 

A class has been started for the learning of courtroom 
procedures for any person in this department who would like to expand 
their knowledge. These two hour weekly sessions have been well 
attended and Mr. Olsen was delighted with that fact because this 
knowledge will be of great assistance to the function of this department. 

Mr. Olsen stated that 3058 of his employees are due to retire 
in the next four years. He is striving to advance the younger people 
in his departmet to more responsible positions to balance the facts 
of retirement losses and to provide continuity of experience. 

In conclusion, Mr. Olsen is taking steps to solve the 
problems experienced in his department. 


The County Recorder, Mr. Thomas Kearney, is mandated by 
State law as well as by City and County ordinance to receive, record, 
index, and preserve papers such as property documents, tax liens, 
abstracts of Judgment, certificates of death, military discharges, and 
marriage licenses, and upon request to issue certified copies of them. 

A true copy of the original document is reproduced and filed 
permanently. The staff indexes these documents and maintains books 
of record in order to facilitate their retrieval by the user. Prior 
to 1973 all indexing was handwritten in several books of record; 
subsequent to that date nearly all of the indexing has been transferred 
on microfiche with two readers available for public use. This 
procedure has consolidated all the various books of record into a 
single index source which is listed alphabetically; the result is 
substantial saving in labor hours, storage space, and book binding 
costs, and also a more efficient retrieval of documents. 

Mr. Kearney states he needs an assistant bureau chief and 
a principal clerk. The department operates on a full staff of 18 
people. Of the 18 people, two have retired, and two are on extended 


RECORDER (continued) 

sick leave, leaving 11 people. The people on sick leave or the ones 
retiring were quite knowledgeable in the Recorder's duties, this 
seems to leave a lack of experience within the department. The 
department does need employees familiar with and trained in duties 
peculiar to the Recorder's office. 



The Public Administrator, Con S. Shea of the City and County 
of San Francisco must take immediate charge of the property within 
this county of those persons who have died when no executor or 
administrator has been appointed, and consequently the property, or 
any part thereof is being wasted, uncared for or lost. He is also 
responsible for estates ordered into his hands by the Court. He 
shall apply for letters of administration upon estates of decedents 
who have no known heirs when the Superior Court of this county has 
jurisdiction, and may apply for such letters in any other estates 
which he is entitled to administer. 

On June 30, 1976, there were 2,173 pending Public Administra- 
tor probate cases. He feels that the maximum number of open cases 
should be less than 800. The basic cause for this backlog problem is a 
shortage of personnel. An additional problem is the present supDorting 
staff is inexperienced in the details involved in probating estates. 
This, in turn, causes an additional workload for the administrator 
and attorneys assigned to this office. Until this department is 
adequately staffed, it seems it will be Impossible to clear up the case 
backlog and to process the current cases within a reasonable time. 

In the future, there will be an effort made in Civil Ser- 
vice Commission to more carefully evaluate employees for this kind 
of position which may solve some of these problems. 


The purpose of this office is to provide a public officer 
to serve, when needed, as guardian of the person and/or estate. He 
is appointed by the Court and he must appear for and represent the 
ward in all actions or proceedings. He must manage the ward's 
estate frugally and without waste and apply the income as far as 
necessary taking into consideration convenience, suitable support, 
and maintenance. Without the Public Guardian program some persons 
declared to be Incompetent would be unable to collect welfare assistance, 

-68- • 


social security, and other pensions or benefits to which they are 

The immediate problem in this office is the lack of adequate 
clerical staff to handle the current caseload and reduce the case 
backlog. The present clerical staff is inadequate for two reasons. 
1. It is generally untrained and inexperienced. (Retirement and 
turn-over are responsible for this situation.) 2. Due to sickness 
and absenteeism only S0% of budgeted clerical staff has been consistently 
available. Even some of the most knowledgeable personnel are 
absent from work occasionally which areates more problems. 

If present trends continue It is anticipated that the work- 
load will stabilize within three to five years so that intake of 
estates will balance with closed estates on a current basis. Over 
the last few years there have been changes in the California Probate 
Code which will affect both the volume of cases and the fees of the 
Public Guardian and his attorneys. 

There has been an on-gofiing program to revamp all procedures 
and all forms in the office. The major change effected during this 
year was a public record required by Probate Code Section 1151. This 
public record was formerly a bound book of cumbersome proportions 
requiring a budget expense of $500.00 per year. A more streamlined 
form on 11 x 12 ledger cards has been substituted and should require 
an expense of only $68.00 per year. 

Some portions of the dormant files are contracted out to an 
attorney who is very capable and has rendered great assistance in 
clearing up some of the backlog. 


The Registrar of Voters is Thomas Kearney. The funcitons 
of his department are as follows: 

1. Registration of voters - all citizens of the United 
States who have lived in the county for at least 
twenty-nine days and are at least 18 years old by 
election day . 

2. Dissemination of all sample ballots and handbooks to 
registered voters no less than ten days prior to the 

3. Hiring and training temporary precinct election 
officers to supervise polling places. 

^ . Renting premises for use as polling places. 
5. Storing, maintaining, programming, transporting and 
acquiring the voting machines and election materials. 



6. Registering candidates for public office. 

7. Conducting the election including counting and 
tabulating ballots. 

The Multilingual Election program presents problems to this 
department because of the additional materials to be distributed 
for the non-English speaking citizens of the City and County of 
San Francisco. 

This department has sufficient budget and personnel. 

Mr. Kearney's knowledge of procedures in this department 
was initially limited due to the fact that he had been its department 
head for a short period of time. Mr. Kearney has a sincere desire 
to improve many functions of the department in order to achieve a 
higher level of efficiency. 


The Tax Collector's office, under the direction of Mr. Thad 
Brown, is responsible for collecting all local taxes, license fees, 
and delinquent taxes, including statutory penalities and accrued 
interest. The department has seven divisions which are Real Estate, 
License, Business Taxes, Parking Meter, Delinquent Revenue, Investigations 
and Cashiers. 

One of the major problems of the department is in the 
Delinquent Revenue Division. All uncollectible accounts from the 
departments of Public Health and Public Works are transferred here 
for further collection action. Additionally, in the event duplicate 
checks have been issued to one person by the department of Social 
Services, this division must investigate. After all collection 
efforts are exhausted by this division the tax collector resorts 
to court action. 

There is one attorney for this division who handles an 
extremely heavy case load. A total of 9,855 accounts were referred 
from other departments during 197^-1975 and during 1975-1976 an 
additional 13,535 accounts were referred. Vigorous collection action 
disposed of approximately two-thirds of those accounts. On June 30, 1976 
7,891 delinquent accounts were still outstanding and as of April 30, 1977 
there were 8,680. 


TAX COLLECTOR (continued) 

Mr. Thad Brown had nothing but praise for his staff of 
135 people. The department did seem to run very smoothly. 

Mrs. Mary B. Donnelly 
Francis J. Murphy 

Earl L. Ellingson, Chairman 



Basic functions of the Department of Public Health are: 
1) overseeing medical services in an attempt to provide optimum 
levels of health for all residents of San Francisco and 2) quality 
medical care for those residents who are ill. The Department needs 
to develop additional services, especially for the elderly, includ- 
ing dental services. While these services would require additional 
expenditures, the Department lacks sufficient clerical help to 
efficiently provide for the collection of fees from those who are 
able to pay and obtain reimbursement from Medicare and Medi-Cal. 
Therefore, this Grand Jury recommends that the present procedures 
be improved before new medical programs are commenced. 

San Francisco General Hospital 

The San Francisco General Hospital encountered a multitude 
of difficulties when it moved into the new hospital facility 
including plumbing stoppages, doors that failed to close, etc. 
Many of these problems have been resolved and the General Contractor 
is continuing to provide for the necessary adjustments. Mr. Charles 
Windsor, who was selected as Administrator in May 1976, has 
initiated a system of charts which enables him to exercise close 
control over every-day performance. 

Dr. William Blaisdel, head of surgery at San Francisco 
General Hospital and Professor of Surgery at U. C. Hospital 
supervises the University of California, San Francisco, operates 
an undergraduate and postgraduate medical training program, 
conducts research and provides the senior medical staff at the 
General Hospital. In addition to teaching, the University of 
California physicians are responsible for supervising the care of 
all patients admitted to the hospital. Their trauma and emergency 
treatment center is fully staffed 24 hours a day. 

Dr. Blaisdell complained of the difficulties in having 
to apply through other departments for medical equipment instru- 
ments, etc., which are needed urgently, but that long periods of 
time are expended between requisition and acquisition. While that 
may be true at present, the Purchasing Department is sensitive to 
the problem and is combining with other Bay Area purchasers to 
gain a cost advantage in purchasing such specialized equipment. 

The lack of clerical personnel is so acute that at times 
nurses have to do clerical work. Their salaries are twice that of 
a clerical worker. This Grand Jury recommends that adequate 
clerical personnel be assigned to the Hospital to perform the work 



which should be done by them. We suggest that if there is adequate 
nursing staff to do their assigned work as well as clerical work, 
some thought be given to exchanging some of the nurse positions 
for clerical positions as nurse positions become vacant. 

Laguna Honda Hospital 

Responding to some safety deficiencies noted by the 
previous Grand Jury, the Department of Health, Education and Welfare 
has accepted a promise by the Board of Supervisors to correct 
certain deficiencies, including the power plant and fire and safety 
regulations. In order to bring the facilities up to Code, to 
conform to Medicare, Medi-Cal regulations an expenditure of m 
million dollars would be required, which Laguna Honda Hospital believes 
should be a bond issue next November. 

The prior Grand Jury also discussed theft of linens and 
blankets but the Hospital Administrator claims that the problem is 
comparable to that in other hospitals. 

Members of the Grand Jury found the premises and the 
facilities to be clean and in good order. The Hospital has installed 
dining areas in most wards. With regard to recent claims of 
excessive roach infestation at the Hospital, a pest control company 
now treats the problem on a weekly basis. The administration 
insists that the severity was exaggerated in the newspapers. 

Barbara A. Belling 
Edith Perlman 

George A. Kardum, Chairman 



The function of this department, which is under Mr. Joseph 
C. Gavin, is to obtain materials, supplies, equipment, insurance and 
contracts for services for all City and County departments, including 
City-owned utilities, the San Francisco Port Commission, and the 
San Francisco Community College. Its responsibility covers many 
fields, such as repairs and maintains automotive and other equipment 
for the various City departments and also the School District, but 
does not include the motor vehicles of the Public Utilities Commission. 
It operates a central reproduction bureau for printing, mimeographing, 
blue -printing, etc., for the City departments which require these 
services. The Inventory Division is charged with the equipment inven- 
tory of all City departments. 

The Bureau of Stores and Equipment, under this department, 
operates and maintains a central warehouse and storerooms in various 
City Departments. It receives and issues materials, supplies and 
equipment for all departments of the City and County of San Francisco. 
It handles approximately 90,000 items in common use on a daily basis 
and an additional 100,000 more items that are purchased more routinely 
for the Airport, Railway, College, etc. 

This department would have a much more effective program if 
it had one more buyer and one more assistant buyer. Central Ware- 
house, which was closed for a time, has reopened and still has only 
eight employees and was fortunate to have an increase of one store- 
keeper recently. To improve the efficiency of this department store- 
keepers are now taking Certificate Course at Community College. A 
much needed supervisor's position was finally filled and the supervi- 
sor was due on the job on July 1, 1977. The Bureau of Stores and 
Equipment are staffed and operated in these locations: 

1. Central Warehouse - 15th & Harrison Street (Stationery 

& Janitorial Supplies) 

2. Department Public Works - 2323 Army Street 

3. Water Department - 1990 Newcomb Ave. 

4. Hetch Hetchy - Moccasin, California 

5. San Francisco Int'l. Airport - South San Francisco 

6. Municipal Railway - 24th & Utah Streets and branch locations 

7. Health Department, San Francisco General Hospital and 
Laguna Honda Hospital 



8. Recreation & Park - Golden Gate Park 

9. Department of Electricity - 901 Rankin Street 

10. Sheriff's Department - City Hall 

11. Central Shop - 800 Quint Street 

There have been recommendations from various specialized 
departments who would prefer doing their own purchasing because of 
the red tape involved and lack of savings because of low volume of 
purchases and the uniqueness of items in the specialized fields. We 
do not recommend this course of action because of the difficulty 
in defining specialized items. In any event this department has 
plans to participate in a joint procurement program with other Bay 
Area counties which will realize a greater volume and thus a lower 
cost. This will further diminish the likelihood of accurately defining 
specialized items. This Grand Jury can see the merits of this plan 
and recommends early participation in this program. 

In the Auto Shop (Light Truck Shop) there has been no in- 
crease in staff and no replacements. There is much more repair and 
maintenance of an automotive fleet that is, on the average, 8 years 
old. All old cars are sent to the Auto and Light Truck Shop for 
appraisal. Special forms must be completed and have to go through 
channels before any request for new autos are taken into consideration. 
At present fifty new cars have been requested and many more are des- 
perately needed. Private industry has recognized that automotive 
equipment has a predicted economic life span. According to the 1975- 
1976 Purchasing Department Annual Report: "Many cities are coordinat- 
ing the responsibility for their essential in-service transportation 
operation within a single bureau or department. That division 
acquires the vehicles and then 'leases' them to the operating depart- 
ments for a flat-periodic fee that would include operating expenses 
and a depreciation factor. At the end of the predetermined useful 
life a reserve fund has been accumulated for replacement." 

This Grand Jury recommends budget authorities develop and 
put into force a reasonable and timely replacement program for City 
automotive equipment. Both the above plans should be investigated 
thoroughly. There is also a need for an up-dated system to enable 
this department to utilize the capabilities of the computer to 
properly control repair and maintenance expenses. 

Budget appropriation is needed to bring in an outside 
expert to discover a way to stop the undisciplined, extravagant 
multiplication of paperwork done by the City departments. There is 
much waste. Much reduction could be made on traditional reams of 



interoffice memos, correspondence, forms, reports and multi -copies. 
There is no end to the request for more letterheads, stationery, 
envelopes, forms and many other miscellaneous office papers. Volumes 
of paper are being used by all City departments and agencies; by 
avoiding waste and extravagance thousands of dollars would be saved. 
Out-of-date forms should be eliminated, materials could be combined. 
Strict requirements should be set up on a firm or permanent basis. 
To correct all this unnecessary waste of funds, time, materials, and 
the use of unnecessary man hours this Grand Jury recommends bringing 
an outside expert (Forms Analysis and Control Consultant) to recommend 
methods to control this problem. 

A previous Grand Jury noted that there has been no physical 
inventory of equipment in the city for over six years. We note this 
is a big assignment which is complicated with budget cuts and lack of 
personnel replacement. This task has still not been accomplished. 
This Grand Jury recommends that a complete physical inventory count 
of all City equipment be required of each City department and there- 
after that a regular and periodic physical inventory count be done 
by the Purchasing Department through its Inventory Control Division. 


The Bureaus under the Department of Public Works include 
Architecture, Engineering, Building Repair, Street Repair, Street 
Cleaning and Planting, Water Pollution Control and Wastewater Manage- 
ment. All private construction within the City is controlled by the 
Bureau of Building Inspection. There are such a large number of 
projects and improvements presently in planning and construction 
stages that this Grand Jury has, in its limited tenure, been able to 
look into only a few of the functions of the department. Mr. 
S. Myron Tatarian, Director of Public Works, and his staff, have been 
most cooperative and have provided valuable assistance to this Grand 

The Public Works Department needs more funds for maintenance 
and improvement of the City's capital plant each year. There has been 
a lack of funds for improvements and maintenance during the past few 
years which has resulted in massive deterioration of the City's facil- 
ities including its streets and buildings. We note that, currently, 
insufficient maintenance funds are being provided to maintain the 
almost three hundred public buildings under the Department of Public 
Works' jurisdiction. In 1977-78, a budget of $1,063,350 was appro- 
priated. This is somewhat less than the amount approved in 1961-62, 
some sixteen years ago. Just to maintain the 1961-62 level of main- 
tenance with today's inflated costs, this Department would require 



about $2.2 million annually instead of the $1.1 million approved. 
This deficiency is temporarily being offset by the infusion of Federal 
funds in the amount of $1.5 million. This grant, however, will expire 
in March of 1978. 

We found that all City streets are rated as to condition 
and this information is computerized. Those streets which are most 
in need of work and repair are completed first. Therefore, all com- 
plaints cannot be acted upon promptly, which results in a dissatisfied 
public. There is a severe lack of funding for normal preventative 
street maintenance. More funds are needed for personnel services, 
contractual services and equipment replacement. The budgeted funds 
for the 1977-78 fiscal year probably will be insufficient to prevent 
the increased deterioration of our City streets. A previous Grand 
Jury noted that there was a severe gap in communication between this 
department and the citizens of the City. Many complaints about streets 
and sidewalks are received daily by the department. About one-half 
of these complaints are related to contractor operations, utility 
ditches, sewer failures and private sidewalks. These complaints are 
referred immediately to the proper City departments. At present, the 
Bureau of Street Repair is up to date on grievances relating to repairs, 
If a repair cannot be made promptly, the complaining person is notified 
when the repair will be made. It appears to this Grand Jury that this 
department has been very cooperative with the public and has done 
much, within its present level of funding, toward the improvement and 
repair of City streets. In addition, street furniture (benches), new 
pedestrian lanes and handicapped ramps have been installed which assist 
our citizens as well as add to the beauty of the City. 

At present, our streets are being cleaned at night, par- 
tially through the Federally funded CETA program. It was determined 
by the D.P.W., after several months' experience, that night manual 
street cleaning is not sufficiently productive, efficient or safe 
compared to daytime operations because of lack of direct supervision. 
Due to the problems involved with our present system, the City's 
future policy is to use mechanical sweeping in all areas of the City 
where it is feasible to do so. This program should be fully imple- 
mented by December of 1978. The mechanical street sweeping program 
will be similar to the Richmond District program which has been in 
effect for three years and will involve controlled parking. There 
have been some complaints from residents in the Richmond District, 
but there has been, in general, a favorable response to the program. 
This new system should realize a tremendous savings as well as provide 
for cleaner streets. In the Richmond District, for instance, the use 
of mechanized street sweepers is providing substantial savings to 
taxpayers annually over the prior costs. Since there will be some 
areas of the City that cannot be cleaned by this system, a certain 
number of street cleaners will necessarily be used for hand work. 



This Grand Jury commends the recent implementation of the 
Citation Policy for littering which has been developed by the Depart- 
ment in further aid of the clean City campaign. The program will 
involve a progressive systems of fines, starting at $10 for the first 
offense. We feel that a citation system will increase public aware- 
ness and help retain the beauty of the City. We suggest intensive 
media coverage be provided as a further deterrent to those who litter. 

The most controversial project of the Department of Public 
Works is the Wastewater Management Program. This is the largest 
Public Works project that the City of San Francisco has ever under- 
taken. It is a very expensive program which will cost over $1.5 
billion. Construction activities will affect major sections of the 
City for at least the next eight years. Well informed residents are 
of great importance and it is up to our public to voice their ques- 
tions and opinions to make this project successful. The Wastewater 
Management Program has had several meetings with residents of the 
areas involved and has sent newsletters to all interested public or- 
ganizations. A preliminary Environmental Impact Report has been 
completed on the west-side transportation line. Many additional 
questions regarding the problems that will arise remain unanswered. 
The EIR reveals that traffic diverted from the upper Great Highway 
during the construction will probably use Sunset Boulevard and 19th 
Avenue. These traffic changes will continue unless the upper Great 
Highway is replaced with another four lane road. According to this 
report, the construction will adversely affect air quality and odors 
are expected to come from the proposed pumping station. According 
to the report, beach erosion may be a problem in this area and the 
pipeline could eventually be undermined by waves or damaged by earth- 
quake-induced ground shaking and liquefaction of sand. This Grand 
Jury recommends that all interested parties cooperate and answer all 
questions on this project. The project planning must include the 
residents and must provide sincere and honest answers to all of their 

To date, study on the controversial Upper Market Street 
Beautification Plan has not been conclusive. The Mayor's Advisory 
Committee for the Upper Market Street Project favors a bicycle lane 
and two lanes for moving traffic for each side of the street. The 
Department of Public Works, at the request of the Streets and Trans- 
portation Committee of the Board of Supervisors, developed a plan 
for three lanes of traffic in each direction. The Department has 
been directed by the Federal Highway Administration, through the 
California State Department of Transportation, to: 

1. Make a final traffic analysis of the various 
alternatives that are being suggested; 

2. Conduct tests in the field; 



3. Review the findings with them to determine 

if an environmental impact report is necessary. 

This Grand Jury recommends the deletion of bicycle lanes on 
Market Street due to the questionable safety of bicyclists. We 
further recommend the three lane concept as there appears to be a 
definite need for traffic lanes especially during evening rush hours. 

According to this department, several changes are necessary 
to make the department more effective and more workable: 

1. Institution of program- type budgeting to permit the 
management of the Department through the effective use of personnel, 
materials and equipment where the needs and priorities exist. This 
program will be implemented by 1982. 

2. Additional funds are needed for routine and major 
maintenance to reverse the present trend in the deterioration of the 
City's physical plant. 

3. The department also requests more leeway in retaining 
top management assistants. They feel that higher salaries and fringe 
benefits are necessary to solicit well -qualified middle management. 

The Department of Public Works has well-performed its duties 
in this City. The citizens now must look at the future and realize 
that this department, perhaps more so than any other City department, 
can only accomplish its projects successfully through the participa- 
tion of concerned residents. 


The services of the Real Estate Department, which is staffed 
with many specialists in this field, are required by almost all 
departments of the City in all appraisals and negotiation work. Its 
services include: acquisition of property for street widenings and 
extensions, school expansions and parks, special study and appraisal 
projects; disposal of surplus property, management of City-owned 
facilities (such as Civic Auditorium and Brooks Hall, parking garages, 
etc.); leasing of additional quarters for all departments, advice 
pertaining to real estate matters, lease and rental of properties as 
both lessor and lessee as required by all City departments; furnish- 
ing of loans and finance services to the Department of Public Works 
in connection with the Federally Assisted Code Enforcement (FACE) 
Program and the Rehabilitation Assistance Program (RAP), Admin- 
istration of the Home Ownership Assistance Program; Maintenance of 
records relating to City, School District and Community College 



District property; and acting as an Advisor to the City Attorney in 
all matters pertaining to real estate. 

This is a very well -managed department and to date it has 
accomplished its goals without requesting additional personnel in 
the budgeted departments. This Department has only five budgeted 
positions. The rest of the positions are Interdepartmental and are 
funded through work orders from departments requiring real estate 

Several major programs are now in progress. These are: 

1. Land acquisition for Wastewater Treatment Facilities 
which now has the go ahead for construction under 
the Great Highway, but which still is a matter of 
dissension among the residents of that area. 

2. Land acquisition for Proposition "j" Open Space 
and Recreation. 

3. Ongoing leasing program for City departments requir- 
ing space not available in City-owned buildings. 

Since revenues are obtained mainly from rentals of City- 
owned properties, increasing department revenues from other than tax 
sources would be hard to accomplish. These properties include sur- 
plus from public works, school, or other project; properties improved 
and leased out for public purposes such as major off-street parking 
facilities; properties held in trust for specific purposes such as 
the Puhrman Bequest, the income from which is designated for Library 
and Park purposes; and rental fees from use of Brooks Hall and Civic 

There will be a request for a Supervisory Loan Office when 
the RAP Program expands to more than three districts. RAP, which is 
getting underway in the Inner Richmond, is a mandatory code enforce- 
ment and voluntary home improvement loan program. Persons who own 
property in RAP areas may take out loans from the City at a 6% in- 
terest rate to bring their buildings up to code and to make improve- 
ments. The opponents in RAP in the Upper Haight Ashbury were concern- 
ed that this program would work a hardship on the neighborhood's low 
income residents by forcing up housing and rentals costs. After much 
controversy between homeowners, the Mayor and the Board of Supervisors, 
the RAP program for Upper Haight Ashbury has been approved. 

This Grand Jury feels that RAP (Rehabilitation Assistance 
Program) is an excellent program. Not only will it bring back some 
of the old historical beauty of the City and restore the unique 
Victorian structures, but it will also up-grade the quality of our 
City's deteriorated residential neighborhoods. 



City officials are concerned about the decision by the 
Foundation of San Francisco Architectural Heritage to nominate the 
Civic Center for inclusion in the National Register of Historic 
Places. If the nomination is approved, it will mean that any major 
changes in the properties in this designated area would be under 
strict governmental controls. The Architectural Heritage is request- 
ing area designation, thus its nomination includes all buildings and 
developments within neighborhood boundaries including private and 
public parcels. Included in the Civic Center nomination are mon- 
umental and important public buildings, including the City Hall and 
Opera House, and smaller private structures such as small shops and 
a gas station. 

According to one report, for the first time in many years, 
the demand for new office space in San Francisco may be on the verge 
of outstripping supply. Thus, due to the shortage and expense involv- 
ed in obtaining rentals In the Civic Center area, this Grand Jury 
recommends that this plan be thoroughly investigated before dedication 
is supported. We further recommend that, before dedication can be 
accomplished, the City make a thorough review of potential future 
requirements of City offices and that required space be obtained. 

Stelios M. Andrew 
Lawrence M. DuVall 
Seizo F. Oka 

Mrs. Dagmar G. Meyer, Chairman 



The Board of Supervisors is generally charged with all 
powers not specifically delegated to other officials , such as the 
Mayor and the apolitical Chief Administrative Officer arm of the 
government, and the departments, boards and commissions under their 
jurisdictions. The members of the Board of Supervisors, each chairing 
one of the eleven standing committees, are prohibited from interfer- 
ence in the affairs of any department except for inquiry through the 
department's board, commission or department head. Although the 
Board's principal responsibility lies in its exclusive jurisdiction 
of legislation, it controls other City departments with its final 
adjudication over all financial matters. 

During the past fiscal year, this Grand Jury has been 
overwhelmed by the dissension among certain of the Board of Super- 
visors and other officials of the City. There has been a pronounced 
tendency to engage in personal attacks rather than to evaluate 
objectively legislative proposals and City administration. We, as 
well as other citizens in this City, have witnessed an unsurpassed 
degree of inter-personal disputes — particularly since these vociferous 
attacks have been presented daily in the press. We are supported in 
our observation by a local newspaper poll, the results of which were 
published on January 3, 1977. According to this report, only twelve 
percent of the respondents indicated a vote of confidence in the 
Board. Most of the responses were framed in a feeling that the Board 
was interested only in big business and themselves and not in the 
economically deprived. This may or may not be true, however, it 
does point out the destructive effects of the wars waged through the 
media. We submit that, if our elected officials and governmental 
department heads would combine their efforts in the common goal of 
finding solutions to the numerous City problems, they could be 
infinitely more effective. 

This Grand Jury has been aware of the problems inherent in 
the operation of San Francisco on a very limited budget. We feel 
that the Board has done a commendable Job in controlling department 
expenditures, in most cases, within this stricture. We do suggest, 
however, that the Board, in the upcoming year, further explore 
alternative forms of government funding. In other reports, we have 
suggested the implementation of increased payroll taxes on business, 
the increase in general fares on MUNI as well as an increase in 
parking taxes. The population of this City is decreasing and the 
ever-increasing property taxes (and resulting rental increases) can 
only encourage the exodus from the City. Tax relief for the home- 
owner, who now carries a disproportionate responsibility for 
government support, must be sought. 

Although many problems have beset this Board of Supervisors, 



we cannot fail to comment upon the ability and dedication of certain 
of our Supervisors. The City has benefited from their commitment to 
their responsibilities. 


Founded in 1953 by a group of physicians and businessmen, 
the California Academy of Sciences is the oldest scientific 
organization in the Western United States. After the establishment 
of the first natural history museum on the Pacific Coast some 20 
years later, it has served as a center of research and display of 
the life and earth sciences, as a repository for and guardian of its 
vast collection of specimens, and as a publisher of scientific papers. 
As a non-profit corporation its Board of 25 Trustees can exercise 
considerable discretion in executing the purposes of its Constitution. 

The culmination of the endeavors of the trustees, the 
director, and his dedicated professional staff was the opening of the 
Meyer Fish Roundabout on May 13, 1977. This $1,000,000 privately 
financed addition to the Steinhart Aquarium (which houses 750 species of 
fish from all parts of the world) is a unique contribution as its "merry- 
go-round" tank accomodates "pelagic" or ocean-going fish. According to 
Steinhart 1 s superintendent, Dr. John E. McCosker, these sea-going 
fish don't tolerate an ordinary aquarium tank, but have oriented 
themselves to this doughnut-shaped tank by swimming upstream in its 
continuous 3 knot current. Its distinction as the only one in the 
United States and largest in the world allows viewing hundreds of 
fish flashing past at speeds of 20 knots or more. This exhibition 
was welcomed by an increase of 35? in visitors to the Academy. 

The California Academy's national cultural focus is 
recognized by both our local community and throngs of visitors to 
our City each year. As an example of its worldwide recognition, 
Dr. William N. Eschmeyer, its Chairman, informed us it will receive 
the gift of a "Megamouth" from the Waikiki Museum. This is an 
unidentified new genus of shark with a 1,500 pound smile. 

The opening of the Wattis Hall of Man on June 30, 1976, was 
the highlight of that year as this $4,000, 000 private contribution 
was not only the largest gift to the City of San Francisco but 
returned the Academy to the field of Anthropology, which was destroyed 
at its downtown location by the Earthquake of 1906. The foresight 
of the Board of Trustees at that time to relocate to the pastural 
green groves of the Golden Gate Park is certainly appreciated. 
Particularly suitable to its functions is the spaciousness of a high 
ceilinged interior of the Wattis Hall of Man, suspended under a 
rustic roof, set in well foliaged landscaping. Besides two adjoining 



galleries for visiting exhibits, there are two more floors occupied 
by the Department of Entomology and Botany. The Botany department 
recently acquired a "compactor" - an automatic system for moving 
rows of filing cabinets terally to eliminate excessive corridor 
congestion. This maximizes the amount of filing space available. 

With these additional facilities, the Academy now houses 
over 8 acres of floor space. But for the present closure of 
automobile access on Sundays, the Academy's attendance could reason- 
ably be expected to surpass 2,000,000 visitors annually. 

It is the Board of Trustees, with Paul L. Davies, Jr., as 
current Chairman, which deserve the credit for acquiring most of 
the benefactors' funds necessary to create such unique capital 
improvements which now comprise some dozen attractive structures to 
accomodate the spectra of their scientific purposes. 

Although the taxpayers ' contribution to the operating costs 
is modest by comparison, the City continues to recognize the impor- 
tance of its share by an increase of about 105? in each of the last 
three fiscal years so that it will total about $1,000,000 for 1977-78. 
Present ad valorem tax restrictions have prevented the City from 
providing all the funds deemed desireable for maintaining the 
Academy's buildings, particularly the Steinhart Aquarium. This year 
it was able to add one painter to the 2k permanent personnel who are 
assisted by 8 CETA employees. As additional Academy facilities in 
Golden Gate Park are acquired, title is transferred to the City and 
County of San Francisco under terms of the Charter. 

Undoubtedly the most crucial crisis occuring this year was 
a proposal to the Recreation and Park Department to add six holidays 
to the present Sunday ban on automobile access to this cultural 
center at the eastern end of Golden Gate Park. Mr. Christian E. 
Beattie, Administrative Assistant to the Director, Dr. George E. 
Lindsay, estimates that the present Sunday ban reduces their largest 
daily attendance by almost 25$, or 100,000 per year. This closure 
also eliminates 6k% of the parking areas within one-half mile of the 
Academy of Sciences Museums, Planetarium and Steinhart Aquarium, and 
also those of the renowned de Young Museum, Asian Art Museum and 
Japanese Tea Garden. There are other areas that could well be set 
aside on Sundays for bicyclists and pedestrians to enjoy the sylvan 
setting of Golden Gate Park, as has been the recommendation of the 
Grand Jury for many years . 

There seems to be no end to this Academy's display and 
dedication to its chosen life and land, sea and sky spectrum of the 
sciences . 



A few years ago, the M. H. de Young Memorial Museum in 
Golden Gate Park and the Palace of the Legion of Honor in Lincoln 
Park were consolidated under a distinguished Director, Ian McKibbin 
White. He has the total responsibility of administering the opera- 
tions and growth of two museums. The Fine Arts Museum Society seeks 
patrons of the arts, who provide the capital required to expand and 
modernize both facilities and solicit the continued acquisitions for 
its curatorial exhibits on a united basis. In addition, the City of 
San Francisco appropriated $2.3 million for 1977-78 fiscal year. 
This represents a 10!? increase over last year in general administra- 
tion funds but does not reflect an appropriate appreciation by the 
Board of Supervisors; it does however, acknowledge a lack of available 
City revenues. 

The addition of 3 positions to the present staff of 10^4 
permanent employees was supplemented by some *J dozen federally 
funded CETA employees. With the dedicated assistance of over 500 
volunteers, the Fine Arts available staff totals over 600. 

Probably most dramatic in the de Young's expansion and 
improvement program has been the renovating of a wing to accomodate 
the New American Galleries, the addition of modern restaurant 
facilities and revamping of the present Conservatory Laboratory and 
Art Storage areas. This privately funded construction is projected 
for completion in July, 1977. The addition of air conditioming has 
been continually deleted over the past few years for lack of funds. 
Because of the age and condition of the many masterpieces — valued 
at approximately $1 billion — air conditioning including humidity 
control is necessary. 

The most outstanding exhibit of the year — October 9, 1976 
through January 30, 1977 — was our Bicentenial 's celebration 
entitled — "As We Were As We Are". This vividly presented a 
pictorial representation of a century of San Francisco life in 
architecture and was well acclaimed by its attendance. 


This Museum located in Lincoln Park was not handicapped as 
was the de Young Museum with the ban of auto traffic on Sundays to 
its cultural center in Golden Gate Park. This is discussed further 
in the California Academy of Science and the Recreation and Park 



reports. Under the common board and directorship with the de Young 
Museum described above, the budget is consolidated and the policies 
and operations combined. Of slgnifcant note however, an exhibit of 
American Master Drawings and Water Colors drew an attendance from 
Bay Area art classes and those of Southern California far surpassing 
expectations. Another highlight was a Five Centuries of Tapestry 
exhibit, which was made possible by the undaunted assistance of 
volunteers in restoring the condition of these treasures under 
professional guidance. The spirit is strong but the budget is weak 
could aptly apply to both Fine Art Museums. 


The Animal Control Center is more than a city pound. It 
is also a reception and rehabilitation center, it is a traveler's 
aide station for lost pets. The San Francisco SPCA has a facility 
unsurpassed for the safety and well-being of animals, and it has 
trained, experienced, compassionate personnel who know animals and 
the problems of San Francisco. 

A visit to the shelter at 2500-l6th Street will impress 
you with the humanity displayed by the staff. You would also be 
impressed by an examination of the cost figures on their financial 
front. The San Francisco SPCA will accept stray or owner-surrendered 
animals at the Shelter, whether Injured or not, 7 days a week, 2*1 
hours a day. In custody cases at the request of the owner, or the 
police, the only charge Is minimal kennel fee. These monies are 
deposited with the City, as are redemption fees. 

Experts estimate that of the 1,000 puppies and kittens 
that are born every hour in California only 1055 find a home. About 
25,000 animals were received in the Shelter in 1976. Almost 30/5 
of the strays - mostly dogs - were either reunited with their owners 
or found a new home. These facts should be widely disseminated. The 
public must also become more aware of the new low cost spay-neuter 
clinic operated by the Society. Of the strays some 800-900 were 
treated at the Shelter's infirmary at no charge. 

In addition to the Shelter, with its staff of 31, the 
Society operates a hospital, with its own staff of 26, including 
several well qualified veterinarians. Twenty-seven thousand cases 
were treated last year. The Shelter's staff conducted 1700 inspec- 
tions and investigations in 1976 and hosted over 200 Humane Education 
visits and tours. These services are made possible by the San 
Francisco Society for the Prevention of Cruelty to Animals — a 
non-profit charitable corporation with whom the City contracts to 
operate the control center. The Society has acted as the Animal 



Control Officer in the City and County of San Francisco for the last 
86 years. Last summer the renewal of this contract came into 
question, but the Board of Supervisors believed that continued 
contracting with the Society was in the best interests of the 
animals and the City. 

In its operation of the center, the Society obtains the 
principal portion of its funds for both capital and operating 
expenses from private sources and endowments . Pursuant to its 
contract ($492,593 for the 1976-77 Fiscal Year) the Control Center 
attends to all animal care, citations, house to house license 
solicitation and leash law enforcement on behalf of the City. The 
City in turn anticipates receipts of $40,000 in fees and $200,000 
from the sale of licenses to offset the ad valorem tax allocation. 
As no records are available to the SPCA regarding the disposition 
of citations by the Municipal Court, these fines inuring to the City 
can only be estimated at about $5,000 per year. Thus the net cost 
to the City would be approximately $250,000 this year. 

Initiated in 1976 was a new volunteer program and a new 
lost and found telephone service. Mr. Austin Hills, President of 
the Board of Trustees, states the community response to these programs 
have been most enthusiastic. About a year ago the Board of Supervisors 
set up the Animal Control and Welfare Committee as an advisory group of 
such community responsiveness. 


From November 16, 1976 and running through March 1, 1977, 
the Asian Art Museum of San Francisco showed a special exhibit of 
objects aca.uired since 1966 entitled "A Decade of Collecting". 
Speaking not merely of the past decade but of the one to come, 
Director Rene-Yvon D* Argence summed up that that exhihit "will measure 
the growth of our Chinese, Japanese, Korean, Indian, Lamaist, South- 
east Asian and Iranian collections". The entire second floor of the 
Museum was devoted to objects donated by the late Avery Brundage , 
Asian Art Commission members, the Asian Art Foundation, members of the 
Society for Asian Art and other generous patrons . 

Mr. D'Argence has been the Museum's Director and Chief 
Curator from 1959 when Mr. Avery Brundage donated the first 4,000 
pieces of his fabulous collection to the City and County of San Francisco, 
In 1969 the Asian Art Museum attained independence when he donated 
a second collection to increase its total present value in excess of 
$300 million, including 10,000 volumes on Asian Art and Civilization 
to the Library over the last 10 years. Today, the Museum's holdings 
are worth in excess of $400 million. 


ASIAN ART MUSEUM (continued) 

Sophisticated techniques are required to protect these 
treasures. Almost everything is under glass. The machinery required 
for the appropriate temperature and humidity control is kept going 
24 hours a day. 

The Museum's biggest problem is space because it was designed 
for the original 1959 collection. At present a viewer can see no 
more than 10—15/5 of the Museum's treasures, the rest being kept in 
storage in the basement. 

Avery Brundage's goal that San Francisco become one of the 
world's great centers of Oriental culture was reached in June of 1975 
by the selection as host to an extraordinary exhibit of the Archaeo- 
logical Finds of the People's Republic of China. In 9 weeks over 
835,000 visitors viewed this magnificent collection which spanned a 
period of time from about 600,000 years ago through the 14th century 
A.D. We compliment the Board of Trustees and the Director of the 
Museum for their success In this achievement. 

Also part of Mr. Brundage's goal as originally contracted 
by Ordinance with the City was that this center would "be furnished 
with an independent staff and budget adequate to perform its 
functions". In 1969 the Board of Supervisors complied by creating 
an independent Committee of 27 members appointed by the Mayor to 
take charge of the Brundage and other Asian Art contributions. 

Due to the restrictions on ad valorem taxes, the Board of 
Supervisors was only able to add one permanent employee — a 
Librarian Technical Assistant — to its permanent employee staff of 
15 this year. The use of CETA employees is seriously handicapped by 
the technical curatorial qualifications required by this Museum. 

We suggest that the Asian Art Museum, despite its laudable 
contributions, receives very little recognition of its own. In 
fact, there is almost no notice to the public at the entrance that 
the de Young Building houses other than its own exhibits. As of this 
writing a satisfactory separate identity of the Asian Art Museum 
from the de Young Museum has not been found. 

It is only through the continued efforts exemplified above 
by the Asian Art Commission and by the generosity of the many other 
benefactors of the City and County of San Francisco that these capital 
prerequisites of Avery Brundage's goals can be more fully realized. 

Miss Barbara A. Belling 
Miss Kathleen M. Calkin 
Wolfgang Hellpap 

Frank L. Markey, Chairman 



The Office of the District Attorney, under the direction of 
Joseph Freitas, Jr., is divided into several teams. Those upon which 
we will comment are Family Support and Consumer Fraud. 


The Family Support Unit was established in January of 1976 
under both State and Federal mandates. These new requirements pro- 
vided for the mandatory recovery of support obligations owed to both 
welfare and non-welfare families by absent parents. Since December 
1976, the Division has been under the able Directorship of Nancy 
Keane. At its inception 135 employees were requested for this unit, 
but only OQ were authorized. This included attorneys, investigators 
and clerical help. 

The Family Support Unit is supported for the most part 
through Federal funding. Approximately 75$ of the operating overhead 
is from Federal sources. Under the State Incentive Program, for every 
dollar recovered on behalf of those individuals receiving funds from 
the Department of Social Services, the State and Federal governments 
pay 27 cents to San Francisco. Additional funds are obtained through 
responding to requests from other states to collect support on behalf 
of families in their particular jurisdictions where the person respon- 
sible for support has re-located in San Francisco. Through responses 
to Petitioners under the Uniform Reciprocal Enforcement of Support 
Act (URESA), San Francisco retains 25 cents of each dollar it recovers, 
Obviously, this Division not only supports itself, but also provides 
additional funds to the City General Fund. An extremely important 
aspect of this Division is that without the receipt of support by 
responsible parents, some families would be forced to turn to public 
assistance. In December of 1976, 918 of the cases being handled by 
the Division were non-welfare families; 5,26l were receiving public 
assistance . 


At the request of the Department of Health, Education and 
Welfare, the District Attorney's office set up a Consumer Fraud Divi- 
sion under the able direction of Mr. Ray Bonner. This staff is well 
supported by volunteers and law students who are active in processing 
the Consumer Fraud complaints, thus providing a valuable service at 
minimal cost to the City. 

Investigations of this Division have been successful in 
bringing to court a number of consumer actions against businesses, 
including a convalescent hospital, a mortuary, a mail order company 
and a major bank. 



In January, 1977, a settlement of the lawsuit against the 
Bank of America recovered $250,000 for the City and County of 
San Francisco. This was the largest consumer settlement in California 

In fiscal year 1976-77 this Division recovered $300,000 on 
behalf of San Francisco citizens. We feel that with an operating 
budget of $268,000 for that year the Division has provided a valuable 
service to the City. 


The Office of the District Attorney has applied for four Law 
Enforcement Assistance Administration (LEAA) grants. 

1. Corruption Control Unit: 

This unit would investigate and prosecute corruption in 
government, labor and business, as well as organized crime. The total 
amount to be received is $329*616 over a period of 18 months. A small 
portion of this sum would be matched by the City. The grant would 
provide for an attorney, clerical employee(s) and criminal investigators. 

2. Career Criminal Grant: 

This discretionary grant, funded directly through L.E.A.A. 
would permit an intensive prosecution of major offenders who repeatedly 
commit serious crimes. This program has proved to be very successful 
in other jurisdictions in identifying and zealously prosecuting persons 
who derive their livelihood from violent and serious crime. The total 
amount to be received is $362,426 and would provide for several attor- 
neys, several investigators and clerical personnel. This grant would 
be for one year and, again, the City would fund, in small portion, 
this program. 

3. Victim/Witness Assistance Project: 

This project is designed to familiarize witnesses and 
victims with the Criminal Justice System. It also seeks to aid the 
victims and witnesses of violent and serious crimes in obtaining the 
medical assistance, rehabilitation aid, State Compensation Insurance 
Benefits, psychiatric counseling and welfare benefits to which they 
may be entitled as a result of their injuries. Also, it would strive 
to alleviate many problems involving transportation, language diffi- 
culties, child-care and schedule conflicts caused by their partici- 
pation in court proceedings. This project was proposed because of a 
recognition that the manner in which victims and witnesses had been 
treated by the Criminal Justice System in the past had not been such 
to encourage their subsequent cooperation in reporting crimes to law 
enforcement officials. Claims have been made that the criminal has 



often received better treatment than the victim. Because citizen 
participation is essential if crime is to be detected and eventually 
prosecuted, the project has value over and above its obvious humani- 
tarian assistance to the specific individual beneficiaries of its 

An L.E.A.A. victimization study indicated that of major 
cities in the United States, this City had one of the lowest percent- 
ages of reported crime. It is the hope of the District Attorney's 
Office that the project will engender more public trust and respect 
for law enforcement and the judicial process. 

The amount appropriated is $98,890 with the City matching 
5# and the State matching 5%* The project has been approved by the 
Mayor's Criminal Justice Council and the California Council on Criminal 
Justice. For a period of one year, the program will have an executive 
director, three staff assistants and two clerical personnel. Addi- 
tionally, it is proposed that volunteers be used extensively. 

4. Consumer Complaint Mobile: 

This $36,000 grant will provide consumer complaint resolu- 
tion for underprivleged neighborhoods. The project goal is to make 
more accessible the District Attorney's Office with regard to persons 
who have complaints concerning improper business practices. Chinese 
and Spanish speaking assistants will be available, and TV and radio 
will announce daily locations of the Consumer Complaint Mobile. This 
grant, also, is for one year, and again, the City will match this sum 
in small portion. 


Under a recent law affecting juvenile prosecutions, minors 
16 years of age or more can be prosecuted in adult courts for certain 
violent offenses. The authority to investigate and file charges against 
juveniles was removed from the Juvenile Probation Department and assign- 
ed to the Office of the District Attorney. The D.A.'s office has 
requested funds from the State to hire three additional attorneys and 
two investigators due to these added responsibilities. 

The effective reorganization of the office and the increased 
emphasis on prosecution of crimes are worthy of praise. We commend 
the District Attorney and his staff. 


This department represents the various City departments in 
litigation, i.e., Workmen's Compensation, anti -trust, eminent domain, 


CITY ATTORNEY (continued) 

violations of building, health, housing codes and ordinances. 

This office handles all code enforcement; also handles 
abatement proceedings for the Departments of Public Works, Fire and 
Public Health. Personal injury actions against the City and County 
of San Francisco are defended by the City Attorney. This office also 
represents the Planning Commission concerning planning disputes. All 
bond issues are prepared by outside firms as is the defense of some 
Anti -trust suits. Workmen's Compensation cases have increased steadily. 
The City Attorney's office has approximately 3*000 such cases pending 
against the Municipal Railway which represents the greater part of its 

Attorneys in this department are not permitted to have private 

The department definitely needs more office space. In City 
Hall two or more attorneys are assigned to each office. No additional 
staff was requested in 1975-76 due to this lack of working space. This 
space condition is aggravated by many cartons of closed files stacked 
in hallways awaiting transfer to the City storage center. 

Mr. O'Connor stated that closed records could be microfilmed 
to consolidate space. If funds could be obtained for microfilming 
this space could be made into office space for the stenographic area, 
and the space currently occupied by the clerks could be made available 
for office space for attorneys. 

It was the opinion of this committee that this department 
was very well supervised, trained and managed. Because of the complex 
and varied types of cases handled by this department it is felt that 
the legal staff has to be highly specialized. Mr. O'Connor and his 
staff are to be commended for their diligence and dedication. 


The San Francisco Public Defender's Office, under the direc- 
tion of Mr. Robert Nicco, operates pursuant to the Charter of the City 
and County of San Francisco and is governed by Section 27706, and 
related Sections of the Government Code of the State of California. 
In recent years the mandated services required by the Public Defender 
have been and are continuing to increase as a result of local, State 
and Federal Statutory Laws and as a result of State and Federal 
Appellate Decisions. 


PUBLIC DEFENDER (continued) 


This Division handles felonies, misdemeanors and mental 
health cases, and is staffed by permanent and CETA attorneys. One 
permanent attorney is assigned to the Mental Health Division. 


I ■ M ■ ■■■■ I I ■ I 1 ■ i ■- I. 

The Public Defender's Office staffs four courts at Youth 
Guidance Center. Each attorney assigned there, including the head 
attorney, Mr. Gregory Bonfilio, handles a caseload. Presently, all 
but the head attorney are rotated every six months between Youth 
Guidance Center and the Hall of Justice. With the increased workload 
created by AB 3121, we recommend that the attorneys assigned to Youth 
Guidance Center be permanent as they are with other Divisions of the 
Public Defender's Office. This is a specialized area of the law and 
demands the same expertise as other Public Defender functions. Knowl- 
edge of unique legal problems involved in out of home placements and 
other areas of juvenile representation can only be acquired through 
long term exposure. 


In order to make the attorneys as efficient and productive 
as possible the Public Defender has used the services of volunteers, 
interns and para-legals. These services have relieved the attorney 
staff of many time consuming activities and increased the quality of 
the services rendered to the clients. Part of the Volunteer Program 
has been under the auspices of Northern California Service League and 
student-interns from various Bay Area Colleges and Universities and, 
also, some who volunteer on an individual basis. One law firm in 
San Francisco provides a full time attorney, as it has for some years, 
from their litigation team with a change-over every three months. 
During the summer of 1976, the San Francisco Foundation, in conjunction 
with Law Students Civil Rights Research Council, funded twenty law 
students for 6400 hours. Also, during the year many attorneys rendered 
services on a volunteer basis. This additional help aided the Public 
Defender and his staff who were operating on a very limited budget. 


The Lanterman, Petris, Short Act imposed added duties on the 
Public Defender's office. Individuals currently confined to State 
Hospitals and Mental Hygiene Homes require visitation and representa- 
tion. These institutions are located throughout the State. Those 
under Conservatorship must have their case reviewed every six months. 
The investigators see approximately 700 to 800 individuals per year. 
Inadequate provisions are made for automobile mileage reimbursement 
to the people assigned to this function. Especially for this State 
required responsibility, since long distance travels to the hospitals 


PUBLIC DEFENDER (continued) 

are required, it is recommended that sufficient automobile mileage 
reimbursement be granted. 

Since San Francisco has many transients, it is often required 
to provide mental hospital facilities for people who are not legal 
residents. The Public Defender and his staff are now making consider- 
able effort to determine the legal residence for these individuals and 
have the responsible jurisdictional authority assume the cost of care 
and support. 


Last year a pilot program, which involved the opening of a 
statelite office at Potrero Hill, was initiated in response to commu- 
nity demands to make the Public Defender's Office more accessible to 
the public. After a few months, this program was discontinued because 
so few individuals availed themselves of this service. 


The Public Defender intended to apply for Federal Funds for 
an unmarked mobile van. Recently, a used van was donated to this 
department. This will enable the staff to obtain interviews with 
people in areas away from the Hall of Justice, which some find forebod- 
ing. It also aids those witnesses who are unable to travel. The van 
provides 24 hour service. 


Recently the Municipal Court proposed the creation of a new 
special defense panel in the furtherance of its efforts to maintain 
the high quality of service of the Public Defender's Office, and the 
legal representation of defendants before the court in criminal cases. 
The purpose of this panel would be to provide legal services to those 
persons who cannot pay a lump sum retainer or the entire fee in advance 
of the handling of their case, but who are regularly employed and have 
the ability to make a modest initial payment, and regular periodic 
payments to a private attorney. At the present time it is felt this 
category of "borderline" cases is causing unnecessary and added work- 
load on the Public Defender's Office. 

This Department is badly in need of additional office space. 
Through the ingenious acquisition by the Public Defender of unused 
open hallway space he has been able to install a Word Processing Center 
which will alleviate some of the backlog. With the addition of this 
Center, and two additional stenographers, the time required to process 
documents for Public Defender Attorneys has been reduced from twenty- 
four hours to eight hours. 


PUBLIC DEFENDER (continued) 

This Grand Jury feels that Mr. Robert Nicco and his staff 
have provided a very high quality of defense to those in need, despite 
working under the adverse conditions of insufficient personnel, equip- 
ment, lack of office space, and a very limited budget. 


This Civil Grand Jury recognizes that the Sheriff's Depart- 
ment has been involved in a number of political altercations during 
the past year about which we will not direct comment. We also rec- 
ognize, however, that this department has a responsibility to the 
citizens of this City and County to enforce the law. We believe that 
the Sheriff did not perform these duties of his office when he refused 
to carry out the Court order to evict the tenants of the International 
Hotel. We do not object to his differing in personal opinion with the 
Court but, in our opinion, his oath of office does not permit him the 
privilege of the public action he took in his capacity as Sheriff. 
Despite the fact that it apparently was motivated by the Sheriff's 
stated concern for public safety and to avoid threatening riots, we 
are critical of his performance in this specific situation. 


There were 18 incidents of escape involving 20 prisoners in 
the ten months prior to August 1976. The breakdown is as follows: 5 
from temporary security wards used by the department, 5 from the 
Courts, 3 from County Jail No. 2, two from County Jail No. 4, and 4 
from County Jail No. 6. Three of the escapees were minimum security 
immates who were trustees. Fifteen of the twenty inmates had been 
apprehended. The numerous escapes were attributed to staff shortages, 
poor physical facilities, employee negligence and their lack of exper- 
ience, and lack of any written policies and procedures. As a result 
of the escapes, the Sheriff implemented a fugitive detail which has 
been fairly successful in apprehension of escapees. Memoranda and 
directives have been sent to administrative staff and employees and 
there have been more inspections by the Under sheriff. Additionally, 
Manual of Policies and Procedures which defines in detail procedures 
to be used in the handling of prisoners has been completed. During 
the first half of 1977 » there have been no escapes. 


County Jail No. 1, the men's facility located at 850 Bryant 
Street, was found to be in very clean order. Food was properly stored, 
premises in a very sanitary condition. Recently, portable telephones 
were installed through a grant from the Federal Achievement Fund. 


SHERIFF (continued) 

Inmates are permitted to make a limited number of telephone calls. 
Food being served appeared to provide a well-balanced diet, and the 
menu for the week appeared adequate. Because there are no central 
dining areas in any of the men's facilities, serving of the food does 
present problems in keeping the food warm by the time all prisoners 
are served from wheel carts. 

The institutions located at the Hall of Justice have no 
facilities for exercise or recreation. County Jail #1 reportedly has 
the lowest suicide rate in the United States for any correctional 
institution. This has been attributed mainly to the system used in 
placement of prisoners, and the rotating of them between the cells 
alleviating boredom. 


This facility was found to be very clean. The storage area 
for food was in very good condition and well organized. We were ad- 
vised that, through a Federal Grant, the gun storage area has been 
relocated. Laundry facilities were adequate. Food preparation was 
done under the best of sanitary conditions. Plans have been discussed 
for a new visitors room, but funds were not appropriated. 


This facility was found to be very clean and orderly. A 
work and education furlough program for the Women's County Jail Pris- 
oners at 850 Bryant Street was started. This is similar to the men's 
Furlough Program. The women in the program are being given freedom 
by day to look for employment, to work at their present jobs or to 
receive further eduction in order to prepare themselves for the time 
when they are released. They spend nights at the Hall of Justice 
facility. The Women's Work Furlough Program is a segregated part of 
the regular women's section. One tank" is now a living room. The 
floor is carpeted, has a TV set, sofa, chairs, library, and draperies 
hang on a window. This has been accomplished through the efforts of 
volunteers. Another "tank" is a homey dining room. A former large 
cell has been transformed into a comfortable dormitory with bunk beds 
covered with colorful bedspreads. Inmates selected for this program 
are very carefully screened by the Rehabilitation Director. Inmates 
who have a history of violent crime, drug abuse, history of escapes 
or assault are banned from participating in this program. Six deputies 
supervise this furlough program with the assistance of additional 
civilian personnel. 


This institution is badly in need of at least four showers. 
The showers are now located on the ground floor and cannot be adequately 


SHERIFF (continued) 

supervised because of their distance from other facilities. There is 
presently no communication system between the shower area and the main 
areas of the jail. In order to accomplish relocation it would mean 
forfeiting two cells on each tier, but this would provide greater 
supervision and safety for the inmates. The facility is immaculate, 
and the cells are artfully decorated with curtains and bedspreads 
which were made by the inmates. 


On July 1, 1976, the Sheriff's Department assumed respon- 
sibility for the operation of the City Prison formerly under the 
supervision of the San Francisco Police Department. The facility was 
turned over in a most deplorable condition. Because of the build up 
of grime the floors looked like asphalt; only after much scraping, 
scrubbing and cleaning by volunteers did the painted floor show through, 
Walls, lighting and plumbing were in dreadful condition. New lighting 
should be installed. Upon assuming responsibility for this facility, 
the Sheriff's Department was not allocated needed additional personnel. 
The members of the Grand Jury had an opportunity to view slides of the 
City Prison which verify the conditions existing prior to July, 1976. 
Also badly needed are bedding, mattresses and clothing. Prisoners 
must wear their own clothes and often have to remain in them for a 
long period of time. If funds cannot be appropriated for clothing 
for this facility, perhaps some appeal should be made to the public 
for donations of used clothing. 

A new system of booking slips was implemented in order to 
avoid costly repetition when inmates are transferred to the County 
Jail. Despite progress made many changes are still required in 
processing prisoners which often takes up to 12 hours. Those people 
arrested by the Police Department but who have not made a court appear- 
ance are placed in a holding cell with only a concrete form bench for 
their comfort. We found this facility appalling. Now that the 
Sheriff's Department has assumed responsibility for this function we 
hope that Intake will be handled with greater efficiency and that some 
provision will be made for the comfort and safety of those individuals 
who have been arrested but not brought to trial. 


The relatively low salary schedule of the Sheriff's Depart- 
ment compared to other counties encourages deputies to look elsewhere 
for employment after training by this department. Many people with 
advanced degrees are now applying for positions as Deputies. This 
Grand Jury feels that improvement in prisoner care during the past 
several years has contributed to the interest of more highly educated 
persons in the department. We cannot attract these qualified people. 
The department has recruited a number of minorities and women. 


SHERIFF (continued) 


The City Health Department earlier reported that jail food 
quality had fallen below minimum State custodial standards causing 
dietary deficiencies. The Health Director has implemented an in- 
service training course for cooks and the Food Manager. Certain in- 
mates require special diets which are prescribed for them by the Jail 
Physician. Servings of milk and milk products, and meat and meat 
substitutes were not available in the necessary amounts. A recent 
decision by the City Attorney Thomas O'Connor rules that the Sheriff 
can legally transfer food services in San Francisco's jails to a private 
management firm. The Sheriff contends the proposal could be accom- 
plished at no extra cost and would lead to better menus and management. 
The next step would be to obtain approval from the Board of Supervisors. 
In recent months food services have improved. 


The Work Furlough Program has been funded through Federal 
Grants which enables non-violent offenders to be employed in the 
community and assisted in rehabilitation outside the environment of 
the jail. The Sheriff states this has been a successful program. 


Due to a cut by the Supervisors' Finance Committee, it was 
necessary for the Sheriff to request supplemental funds for pest 
control. The Committee's rationale in slashing the funds was that, 
instead of having a commercial firm do the exterminating as in the 
past, it could be done by the regular Stationary Engineers in the 
various facilities. The Stationary Engineers did not have the nec- 
essary spraying machines and it was discovered that they would require 
a certificate from the State Pest Control Board. Originally the depart- 
ment had requested $1100 for cockroach abatement at San Bruno Jail, 
but this was slashed to $200 by the Finance Committee. Thereafter, 
at San Bruno Jail, cockroaches were found in the cell tiers and on the 
ceilings, would crawl over the inmates when they were asleep, and, 
occasionally would be found in the inmates' food. The Sheriff requested, 
an additional $2000 in emergency funds because the cockroaches had 
reached epidemic proportions and the Board of Supervisors Finance Commit- 
ee recommended the Sheriff's Department receive $1400. 


The Department of Public Health was assigned the responsibility 
for the medical care of prisoners in March 1975* Medical services to 
prisoners are provided by three separate but related units: the Jail 
Medical Service, the Criminal Justice Unit, and San Francisco General 
Hospital. The Jail Medical Service provides medical, nursing, pharmacy 


SHERIFF (continued) 

and routine medical services to prisoners at the Hall of Justice jails 
and the San Francisco County Jail at San Bruno. The Criminal Justice 
Unit responds to court-ordered psychiatric evaluations and provides 
psychiatric services to prisoners. San Francisco General Hospital 
provides backup emergency, outpatient services and inpatient services 
for prisoners. Dr. William Mandel, Director of Health Services at the 
Jails, reports the attitude and cooperation of the Jail staff as 

Facilities for medical care are poorly equipped. The infir- 
mary at San Bruno needs remodeling and funds have been approved for 
this. Requests for funds for a psychiatric infirmary at the Hall of 
Justice and remodeling the present infirmary at the Hall of Justice 
were deleted by the Mayor's Office. 


Recently a Print Shop was established at San Bruno Jail #2. 
With instructors from the Community College District, many forms used 
in the department are now being printed there. This project provides 
training for the inmates so that when they are released they have a 
better chance of employment. While assignments to this project are 
limited because of space and equipment, we were advised that ten men 
had found employment through the training received at this facility. 


There is a total lack of recreational equipment at the mens ' 
facilities in the County Jails. This is a deplorable situation which 
must be remedied. Funds for some of this equipment are available and 
come from the Inmate's Welfare Fund rather than tax monies. This fund 
is generated by profits from a small sundries store in the Jail. 

There is also an inadequate number of library books. A 
possible solution may be donations from interested community groups 
of paperback books. 

Miss Suzanne E. Perry 
Carlos E. Xavier 

Miss Irene G. O'Neill, Chairman 



A substantial amount of criticism regarding real property 
assessment procedure has been directed by the news media, or by 
individuals representing the media, at the Assessor's Office. In 
our opinion this criticism, and oftentimes abuse, is unwarranted 
or at the very least misdirected. Properties are assessed by 
methods generally accepted by professional appraisers. State law 
requires that assessed value of property be placed at 25? of 
reasonable market value. This is done. The activities of this 
office appear, from our investigation, to be carried out in a 
professional manner and in reasonable compliance with State law. 

It is obvious that residential properties, particularly single 
family dwellings that have a reasonably high turn-over rate, can easily 
be appraised at a ratio to their current market value since that 
value is established frequently. In general, this is done in the 
Assessor's Office by review of sales or property on a continuing 
basis. As a practical matter the review affects assessed value 
several years after direct sales. In theory the process is 
reasonable and equitable and lags sales for two reasons. It is 
impossible to maintain the pace of review of market values and 
adjustment of assessed values in all areas of the City equivalent 
to skyrocketing transfer of property. It is also more equitable 
to follow general neighborhood trends than to establish market 
values in proportion to isolated individual sales. This reasoning 
appears equitable to this Grand Jury and does provide some protec- 
tion to the homeowner. 

In the case of commercial and industrial properties, the 
method of appraisal is somewhat more complex. Equivalent or even 
similar property sales are not available for comparison. The 
Assessor's staff became dependent — as was noted in a series of 
newspaper articles — on the capital gain received by the operation 
of the facility, and more importantly on the expertise of the 
appraiser. The method Is a professionally acceptable one and has 
provided resulting values close to, but usually slightly above, 
sales prices of equivalent property. 

Questions have been raised concerning the valuation of 
vacant commercial property. In fact, a minimum value Is placed on 
this type of property, by separately assessing the value of land 
for which comparable market values can be obtained. 

There Is continuing concern that the budgeting process 
and the Civil Service does not allow for adjustment of inequities 
in salary structure for employees on the Assessor's professional 


ASSESSOR (continued) 

staff. There is equal concern for adequate training for appraisers. 
The Department management feels that salary limitations make it 
difficult to recruit trained appraisers. It has become necessary, 
therefore, to establish a Real Property Appraisal Trainee Class, 
a combination of formal appraisal education and on-the-job training, 
to produce a competent staff. 

This Grand Jury finds that the Assessor is conducting his 
responsibility in accordance with his charge and up to the potential 
of his staff. It is worthy to note that if criticism is necessary, 
it should be directed to the State law that requires that single 
family residences be assessed at the same rate as commercial or 
industrial property, or to those that control the local spending 
that is dependent upon property taxes. This Civil Grand Jury 
encourages the City administration to work with State legislators 
to modify existing laws in order that some property tax relief be 
provided to all residential property owners. 


Treasurer Thomas C. Scanlon, is accountable for the 
safe custody of all money and securities belonging to the City and 
County of San Francisco. His staff handles all daily receipts 
and disbursements of City money and is responsible for deposit 
and investment of public funds. Mr. Scanlon, Mr. Gin L. So, the 
Chief Assistant Treasurer, and Mr. Gerald P. Richardson, the 
Investment Specialist, were very courteous and helpful in the 
investigation of this department by the Grand Jury. 

We have viewed the operation of the computerized 
Moneymax System and Telerate System. These systems offer, either 
on video terminals or on typewritten output, up-to-date price 
information from a current computerized data bank. They rank 
alternative investments by rate of return and have the capability 
to account for and report on investments. These systems are 
considered as advanced as any cash management programs available 
to City and County treasuries. 

The Moneymax System has been in use since early 1976, and 
under the able operation of Mr. Richardson, has produced excellent 
results, reflected in increased earnings on investments from about 
5. 3 % to about 5.8*. The Telerate System is a new addition, 
donated for a free six month trial period by a Los Angeles brokerage 
firm. It is now on rental at a rate of $350 per month for those 


TREASURER (continued) 

months in which a specified minimum of transactions is not 
recorded with that brokerage firm. The rental has not been a 
determining factor in the business dealings with that firm. 

As a result of our investigation, this Grand Jury believes 
that this office is operated in a well organized and efficient 
manner. There has been the suggestion made that an additional 
teller-clerk might assist in reducing the long lines waiting to 
cash checks and warrants, thereby increasing efficiency. Given 
the current fiscal situation of the City, we cannot recommend the 
additional position solely for the purpose of reducing waiting 
lines for the recipient's convenience. 

Stelios M. Andrew 
Francis J. Murphy 

Mary B. Donnelly, Chairman 



For a number of years, problems have arisen due to the lack 
of adequate courtroom space in San Francisco. In 1971 > a part of the 
California Hall on Polk Street was leased by the City, on a temporary 
basis only, to house two additional courtrooms. This was necessary 
because of the appointment of two Superior Court Judges whose services 
were required due to the magnitude of criminal matters before the 
Superior Court. This arrangement has proven to be less than desirable 
for a number of reasons including the difficulty of coordinating poten- 
tial jurors between the three buildings where trials are held. Four 
courtrooms at City Hall were necessarily devoted to the hearing of 
criminal matters. This has resulted in severe security problems. The 
shortage of space has also required potential Jurors to wait, sometimes 
for a full day, in hallways in the Hall of Justice and City Hall. Dur- 
ing these delays, the only attempt toward making their wait comfortable 
has consisted of the sparse placement of chairs through the halls. The 
potential of harassment of those Jurors who, for lack of a Jury holding 
room, were required to wait outside courtrooms, during recesses of 
trials, was ever present. This situation has been a cause for concern 
of several past Grand Juries. However, since several initiatives which 
would have provided funds to build adequate courtroom facilities were 
defeated at the polls, there has seemed to be no viable answer for the 

In June of 1977, through the indefatigable efforts of Supe- 
rior Court Judge Henry Rolph, Presiding Judge at the time, a grant was 
finally obtained through the Public Works Act. The $4.8 million will 
be used to build an additional two floors above one section of the Hall 
of Justice building. This addition to the building was proposed when 
the Hall of Justice building was originally designed and built and the 
building will readily lend itself to the construction. The new section 
of the building will house six courtrooms- four for the hearing of 
criminal matters by the Superior Court and two for Municipal Court. 
One section of the building will be devoted to the comfort and protec- 
tion of those San Francisco citizens who are called for Jury duty. The 
two Superior Courts presently in California Hall will be housed in City 
Hall along with other civil courts; the four criminal courts now in 
City Hall will return to the Hall of Justice where security can be main- 
tained. The many problems which have existed for so long with regard 
to courtroom facilities will be resolved. 



During the latter part of 1976, a new system for the 
selection of potential Jurors was instituted under the direction of 
Frederick Whisman, Superior Court Executive Officer. Traditionally, 
San Francisco Jurors have been selected entirely from the rolls of 


SUPERIOR COURT (continued) 

registered voters. Although many citizens were more than willing 
to serve in this important position, there were a few who felt that 
jury service was a penalty which was given upon their voting regis- 
tration. In order to broaden the selection base, Mr. Whisman began 
a new policy of combining lists of registered voters with lists 
obtained through the Department of Motor Vehicles of drivers' 
license holders. It appears to this Grand Jury that the selection 
process is a much more equitable procedure. 

Court Calendar 

During the early 1970* s criminal cases awaiting trial had 
risen to an all-time high. In 1971, for instance, there were up to 
750 cases waiting for assignment to the criminal courtrooms. In 
criminal cases, the time for trial is statutorily imposed. Defen- 
dants, being aware of the calendar problems, were demanding 
immediate trial with the expectation that, if no courts were available, 
their cases would necessarily be dismissed. It was as a result of 
this congestion in the courts that two additional Superior Court 
Judges were appointed. Presently, San Francisco has between one 
hundred forty and one hundred sixty cases at any given time awaiting 
criminal trials. It is now ranked among the best in California for 
its smooth-running criminal calendar. 

With regard to civil trials, there is a fifteen to 
eighteen month waiting period after the filing of an At Issue Memo- 
randum by either of the contesting parties. This waiting time has 
remained constant for five or six years. Although this time seems 
somewhat exorbitant, the Courts indicate that many attorneys file 
their At Issue Memoranda substantially in advance of the time they 
are actually ready for trial and then depend upon this long wait 
to conduct discovery. In the case of personal injury cases, which 
comprise fifty-five percent of civil cases heard in this County, the 
attorneys require at least this amount of time for the injured 
party's condition to stabilize so that the final effects can be 
more realistically determined. 

San Francisco's mandatory settlement conference assists 
to a large degree in the disposition of cases. Presently, approxi- 
mately ninety percent of those cases which are filed are settled 
before trial. This provides substantial savings in court costs to 
San Francisco taxpayers as well as to the litigants themselves. 

Bailiffs in the Courtrooms 

The l°75-76 Grand Jury pointed out some of the problems 
inherent in the assignment of Bailiffs to the individual courtrooms. 
Bailiffs were found to working extraordinary schedules — leaving 
early if the particular Judge to whom they were assigned no longer 
required their assistance, falling to report for other duties 


SUPERIOR COURT (continued) 

if their courtroom was closed for a particular day — and, in all, 
were not available for service during those hours required of other 
Deputies in the Sheriff's Department or, for that matter, during 
those hours required of City employees as a whole. Additionally, 
there was some concern over the fact that the Bailiffs were perform- 
ing clerical functions and other assignments not a part of the pro- 
tection aspect of their Jobs which was the total reason for their 
placement in the courtrooms. 

Following criticism by the citizens, the Sheriff's 
Department began to withdraw Bailiffs from some of the Courtrooms. 
Under State Law, the attendance of a Sheriff's Deputy in all court- 
rooms is mandated. A number of Superior Court Judges, upon finding 
that their courtroom Bailiffs had been withdrawn, felt compelled 
to close their courts. 

It is the opinion of this Grand Jury that, until the 
State Legislature sees fit to amend this law, it is the Sheriff's 
duty to provide adequate Deputies to staff each courtroom. We feel 
that the recent decision by the Sheriff's Department in response to 
this dilemma is highly acceptable. The present system entails the 
assignment of Deputies to the courtrooms on a rotating basis so that 
the Deputies retain original responsibility for protection of the 
Court, and those persons in the courtrooms, in their capacities as 
Deputies of the Sheriff's Department. Then, if a courtroom is 
closed early, or opens late, the Bailiff should have the responsi- 
bility to assist with other functions in the Sheriff's Department. 


Traffic Fines Bureau 

During the past fiscal year, the number of parking 
citations issued by the Police Department was reduced to an average 
of 110,000 per month. This reduction was due to the reassignment 
of those Officers formerly performing solo motorcycle detail. This 
has not, however, had great impact on the revenue produced by 
traffic citations. In 1975, it was determined that fines for park- 
ing meter violations should be increased from $3 to $5. Other 
parking violation fines were also increased. These increases were, 
among other things, due to the number of people who found it less 
expensive to park at a meter for the day rather than pay the parking 
fees charged by private parking lots, especially in the downtown 
area. This was really not the intention behind the provision of 
street parking and, with the limited number of spaces available, we 
feel that the increase in fines was Justified. Because of the 
increases, San Francisco Municipal Court recovered $9,800,000 through 
traffic violation fines during fiscal year 1976-77. 

In 1973 a computerized system for the recovery of traffic 


MUNICIPAL COURT (continued) 

fines was instituted. Prior to that time, the Municipal Court Clerk's 
office was simply not able to process the citations and receipts 
therefrom in a timely manner. A severe backlog resulted in the 
delayed processing of fine receipts , the duplicate billing of persons 
who had previously remitted the amounts required and a multitude of 
other problems. The Electronic Data Processing center has alleviated 
a number of the problems. 

This year the Municipal Court was budgeted $25,000 to 
retain an independent consultant to review its procedures, both in 
its general office work and computer services. The consultant 
retained has submitted a preliminary report suggesting, among other 
things, radical changes and streamlining of the computer system. 
For instance, it has been the procedure to enter all information 
regarding each traffic citation. Since sixty percent of the 
citations are paid within thirty days, the consultant suggested that 
only a minimum of information need be entered into the computer 
immediately. If the citation is not paid timely, information required 
for collection activities could then be entered. Daniel Donahue, 
Municipal Court Clerk, is quite enthused about the proposed organi- 
zational changes suggested by the consultant and is working closely 
with the company toward implementing them. Mr. Donahue estimates 
that savings in the magnitude of several hundred thousand dollars 
may- accrue to the City each year due to the new operations. 

We feel that comment should be made on the superb organi- 
zational and administrative talents displayed by former Presiding 
Judge Albert C. Wollenberg, Jr. Judge Wollenberg served as 
Presiding Judge for a short period of nine months, however, during 
his term, a number of noteworthy changes were accomplished. Among 
these was a revision with regard to those funds allocated annually 
to the design and programming firm retained to set up and improve 
upon the EDP system. Each year a blanket amount was designated for 
its use in setting up new programs which were scheduled. There was 
very little, it any, follow-through after that time to see that 
programs were installed timely or that they were installed at all. 
Judge Wollenberg instituted a program whereby, instead of the lump 
sum being transferred immediately, only a portion would be delivered 
at the beginning of the fiscal year. The remaining amounts would 
be transferred only upon the submission of work orders setting forth 
the modifications and changes. The Court then verifies that the 
work has been done. During the last fiscal year, £35»000 was returned 
to the City coffers for work scheduled to be performed but which 
was not accomplished during the year. 

Beginning in January of 1978, the EDP system will 
coordinate with the Department of Motor Vehicles in Sacramento with 
regard to unpaid traffic citations. It has traditionally been the 
procedure of the Municipal Court to issue warrants for the arrest 
of those citizens who had, for any number of reasons, failed to pay 


MUNICIPAL COURT (continued) 

the citations issued. Under SB 192, the DMV will, after January 1, 
1Q78, refuse to register any automobile to a person who has citations 
which remain unpaid. In addition to the positive humanitarian aspects 
of this procedure, this will also eliminate a large number of false 
arrest suits which have previously been filed. Perhaps the State 
should consider expanding this program to include withholding of 
drivers' licenses, for people who don't own automobiles. 

Small Claims 

On January 1, 1977, the claim limit for the Small Claims 
Division was increased from $500 to $750. Based upon the prior 
response of citizens in filing claims when the amount was increased 
from $350 to $500 (an increase of 205? to 25% in filings), the Small 
Claims Division was relocated on the first floor of City Hall in 
substantially larger quarters. Response to the 1977 increase, 
however, has not been as significant. Small claims' complaints have, 
thus far, increased only by 135? to lb% . 

Some criticism has been made toward the implementation of 
a small claims calendar for the hearing only of the complaints filed 
by large corporations one afternoon a week. We feel, however, that 
it is in the best interests of those citizens who wish to file small 
claims to have their claims heard each morning, as is presently 
done, without the delay imposed by the concurrent hearing of the 
numerous complaints filed by some of the large corporations. We 
suggest that this procedure is in the best interests of all concerned 
as well as an effective organizational procedure. 

Beginning in July of 1977, the Municipal Court will launch 
its Saturday afternoon Small Claims hearing at the Hall of Justice. 
Each of the Judges will rotate in hearing the matters presented. 
This new calendar will be for the use of individual citizens and 
small neighborhood businesses only and corporations will be excluded 
initially. The Municipal Court is hopeful Saturday hearings will 
open the Small Claims Court to many individuals who, because of work 
or other weekday commitments, are presently excluded from presenting 
their claims. 

Numerous advances have been made by each of the Superior 
and Municipal Courts during the last year and we commend the efforts 
of those involved for their valuable contributions to the City of 
San Francisco. 




The juvenile Justice system has been charged with one of 
the most challenging and rewarding responsibilities in San Francisco 
government. Between forty-five and fifty percent of the major crimes 
committed in San Francisco are committed by Juveniles. Considering 
the relatively small number of residents under the age of eighteen 
and the even smaller number of those who become Involved in major 
crimes, this figure is alarmingly disproportionate. One disquieting 
aspect of this problem is that the children, as adults, may continue 
to perpetrate criminal activity unless, in their formative years, 
someone can get through to them. Giving acknowledgment and support 
to those who might be able to influence the youth of this City should 
go hand-in-hand with other law enforcement efforts. This, then, 
would appear to be one way of attacking a major problem, that of 
crime, at Its source. 

Many of those working in the San Francisco Youth Guidance 
Center are extremely dedicated, well-qualified individuals. A 
majority of those in child probation have worked for years under the 
demoralization of temporary employment status. (See details 
regarding the history of the Probation Officers' Civil Service 
Examinations in the report on the Adult Probation Department.) 
Because of this series of events which has continued for so long, 
overwhelming insecurity is felt in all levels of the Probation 
Department. Much beneficial training has been postponed awaiting 
the ever imminent appointment of permanent staff. Reorganizations 
and innovative procedures have also been delayed. Those Probation 
Officers who have been promoted by seniority only cannot feel security 
in performing effective supervision when, within a short time, they 
may find their supervisees their supervisors . We recommend that a 
serious review of Civil Service testing and active listing be made 
by the Executive, Legislative and Judicial branches of San Francisco 
government toward an early resolution of this problem. 

Automobile Crisis 

The City's failure to respond adequately to numerous pleas 
from Youth Guidance Center for a resolution of the automobile 
problem seems to evidence a lack of necessary support from City Hall. 
Substantial documentation has been presented to the Mayor and the 
Board of Supervisors substantiating the desperate condition of the 
vehicles. The Juvenile Justice Commission has pleaded for a review 
of the problem. The Juvenile Court Car Crisis Committee has prepared 
and submitted extensive reports. The defective automobiles are used 
not only by City employees; they are used as well for transporting 
youth - to out-of-home placement, to the airport, to hospitals, for 



home visits and for other necessary movement in and out of the City. 

Some of the mechanical defects of which we have been 
advised include bald tires resulting in blowouts on the freeway; 
defective steering mechanisms; defective brakes, resulting from 
lack of preventive maintenance , damaging the brake drums (a very 
costly repair, indeed); and disc brakes wearing to the point of 
rupturing the brake cylinders. One of the many reports came from a 
Juvenile Court employee who experienced a mechanical difficulty which 
could have resulted in a disaster while transporting six boys to 
Youth Guidance Center from Log Cabin Ranch. Fortunately, one of the 
boys noticed a rattling sound coming from one of the wheels. Upon 
examination, the driver found that three of the wheel studs and nuts 
were sheared off. The wheel was being held on by only two studs. 
This particular automobile must often carry up to seven passengers 
on winding country roads. It really makes very little sense to 
supply equipment and not provide adequate funds for its maintenance. 

We recommend the following: 

1. That, if the City does not intend to supply the Youth 
Guidance Center with newer automobiles, it conduct periodic safety 
checks including the brakes, tires, lights, signals, steering and 
other potential hazards. Such checks are performed routinely in 
other cities and could, in the long run, provide substantial savings. 
Claims by injured individuals against the City could be devastating. 
The entire automobile budget could be depleted by this negligence. 
The Citv must, of course, insure against those accidents. 

2. That action be taken to provide safe, dependable 
vehicles through either lease or purchase arrangements. We under- 
stand that, quite recently, some support has been given by the Mayor 
toward obtaining State funds for the purpose of purchasing automobiles 
If this request is not granted, the City must take the initiative. 

Those of us serving on this Grand Jury are not unaware of 
the plight of City government's finances. However, when it comes to 
transporting minors, local government must accept the responsibility. 
We are not talking about causing inconvenience, we are talking about 
endangering lives. 

Log Cabin Ranch 

Turning now to another matter, we feel a duty to address 
the charges made by the 1975-76 Civil Grand Jury with regard to the 
Teledyne program at Log Cabin Ranch during 197^ and 1975. The 
Juvenile Justice Commission, after having conducted an in-depth study 
of the LEAA funded program, published its report charging poor 
fiscal responsibility and mismanagement of funds. Having conducted 
an independent investigation, we concur in that finding. 



We do feel that new, innovative approaches to working with 
Juveniles must be tried. Progress is often attained only through 
trial and error. However, we have found that when funds are supplied 
by sources outside the City, there is a tendency among management 
to continue even unworkable programs. We do not see this as an 
isolated case. We acknowledge that outside funding is often difficult 
to obtain and that, once a grant has been finally obtained, manage- 
ment may be reluctant to acknowledge that its efforts have been for 
naught . 

In this particular case, if the Youth Guidance Center 
administration were not able to achieve any cooperation from the 
Log Cabin personnel through whatever actions were necessary, we feel 
that the program should have discontinued after the first year of 
funding. However, it was not and we can only hope that the adverse 
publicity given to this program will serve as a deterrent to others 
embarking on the same road. 

Jim Licavoli became the Director of Log Cabin Ranch on 
October 1, 1976. Since that time, the Ranch has been operating in 
a very successful manner. Of the youth committed to Log Cabin Ranch, 
ninety-nine percent are eligible for commitment to the California 
Youth Authority. This, then, is their one last chance prior to 
referral to the Youth Authority. 

The program at Log Cabin Ranch currently ranges from ninety 
days to one year. During that time, the youth are counseled exten- 
sively and intensive academic study is provided. When the youth 
enter the Ranch, they are given scholastic achievement tests. They 
are tested again at the end of their commitment. Of those detained 
at the Ranch for the full period, many are able to improve their 
scholastic standings by more that two school grades. Although both 
Log Cabin Ranch and Hidden Valley Ranch (under the direction of 
Don Carlson) are understaffed (compared with a 5 to 1 ratio in most 
large counties, Log Cabin operates on an 8 to 1 ratio and Hidden 
Valley at a 9 to 1 ratio), they are providing a very valuable service. 
According to some of the boys at the Ranches with whom we spoke, the 
quiet country setting gives them a chance to think about the dis- 
advantages and potential hazards of a life of crime. It is a much 
more positive approach to the problem than commitment to the Youth 
Authority facilities. 

Immediately upon commitment to the Ranches, a team con- 
sisting of the child's Probation Officer, his Ranch counsellor, 
the Assistant Director of the Ranch, a member of the school depart- 
ment and, most importantly, the child himself, begin working on a 
plan which envisages his release from the Ranch. Some of the boys 
return to school after release, some opt to go into the armed forces 
and some are provided with the opportunity of placement in a voca- 
tional skill oriented program sponsored by the LEAA. Presently, 



there are forty-five slots in four month basic programs for graduates 
from the Log Cabin Ranch. There are three community organizations in 
San Francisco which provide the graduates with Jobs and training 
during that four month period. 

Medical Care At The Ranches 

One serious problem which has been brought to our attention 
is the lack of adequate medical services at the Ranches and especially 
the lack of emergency medical care. One doctor, located in San 
Francisco, is presently under contract to provide medical services. 
It is his responsibility to visit the Ranches once a week. On his 
visits, he examines all new referrals, which is a duplication of the 
examination given before placement. Those funds that are presently 
allocated for the services of the doctor could be used to retain a 
registered nurse who would spend several hours each day at each of the 
two Ranches. The Directors of the Ranches feel insecure about having 
to make medical decisions with regard to their charges and the avail- 
ability of a nurse would alleviate this responsibility. When emergen- 
cies arise (as they do with youth), someone with substantial medical 
training should be immediately available. This matter has been brought 
to the attention of the Youth Guidance Center administration and we 
feel that they must rectify this situation. 

Community Resources 

Commenting on another point made by the 1975-76 Grand Jury 
with regard to "The Battle Between Public Agency Resources and 
Community Based Resources," we find that a much greater degree of 
cooperation is being achieved presently. We have not been led to 
believe that all differences have been resolved. There are numerous 
community groups vying for positions working with, and concomitant 
public funding of, youth services. Some of these groups have achieved 
a high degree of expertise and ability and there is active competition. 
We encourage the administration to continue with their efforts to 
solicit the cooperation and assistance of those community organiza- 
tions which are providing valuable services. 

For some years, San Francisco has placed delinquents in 
agencies throughout the State. A small number of children have been 
sent to the Los Angeles area. Under a recent policy of Juvenile 
Court, all youth will now be placed within a sixty-five mile radius. 
There are several aspects of this policy which have been brought to 
our attention and which we would like to summarize here. 

1. Certain community organizations operating child 
detention facilities in Los Angeles have proven themselves to be 
extremely effective in their treatment of youthful offenders. Some 
facilities outside this sixty-five mile radius have, in fact, 
displayed much greater successes with certain types of children than 


those nearby. 

2. There is also some argument for removing certain 
children for a time from those peers and adverse conditions that 
have contributed to their present activities. 

3. We suggest that the incorporation of the parents in 
the decision-making process regarding their children's placement 

is advisable. It is the parents who will be ultimately responsible 
when the child is returned. If the parents were invited to confer 
with the Placement Officer involved with the placement and were 
informed of the alternatives, diminished dissatisfaction where 
distant placements were advisable might be the result. Parents' 
involvement in their children's futures, where practicable, should 
be encouraged. The final determination for placement, however, must 
rest with the Probation Officer and with the Court. 

We do not advocate the wholesale shipment of our youth to 
other vicinities. But we do feel that each child's future and 
possibility of rehabilitation must be the ultimate consideration. 
Therefore, we suggest that there remain some flexibility in the new 


In talking with numerous individuals at Youth Guidance 
Center, one recurring theme was the present organization regarding 
the general assignemnts of Probation Officers. We have been presented 
with many Justified grounds for a revised approach. 

The present system involves the three separate functions 
of Intake, Court Officer and Supervisory probation caseloads. 
Initially, a Supervisor in Intake reviews each new case and assigns 
it to an Intake Probation Officer. That Officer reviews the case, 
prepares a report and submits it to a Court Officer. The Court 
Officer presents the case to the Court. After a Judicial decision 
has been rendered, if the child is put on probation, the file is 
turned over to the Supervision unit. A Supervisor there reviews 
the case and refers it to the Supervision Officer. That Officer 
reviews the file and begins his/her supervision of the child. During 
the entire process, the child has had three Probation Officers. 

We recommend that serious study be given to a reorganization 
of the department so that a single Probation Officer follow each 
youth through the entire process with the exception of the duties of 
Court Officer. Some of the bases for our recommendation of a review 
and possible reorganization are as follows: 

1. The Probation Officer who investigates the case and 
prepares the initial report becomes somewhat familiar with a 



particular child. He has interviewed parents and, perhaps, the 
ward's peers and has certain impressions, as well as information, 
which cannot always be accurately passed on in writing. 

2. The retention of the case after Judicial determination 
would eliminate the review of the case by one Supervising Probation 
Officer and one Probation Officer in the Supervision Unit. 

3. The child would feel a more stable relationship with 
his Probation Officer. He would have one Probation Officer through 
the entire procedure (and a Court Officer at the hearings only) 
and could begin to develop a working rapport almost immediately. 

*J. The Probation Officer who follows the case from Intake 
through the end of the probation period would be more accountable to 
both his client and to the department . 

5. It is our information that Intake caseloads vary more 
than do those of Supervision. This proposed revision would provide 
a better balance. 

Some at Youth Guidance Center have suggested that each 
Probation Officer should perform the duties of Intake, Court Officer 
and Supervision. There are some Justifications for this approach, 
although we feel that there may be more organizational arguments in 
favor of having the Intake and Supervision activities combined and 
retaining the separate function of Court Officer. We might suggest, 
however, that some thought be given to assigning the Court Officers 
to each of the four units rather than having them isolated in a 
separate department. 

Those arguments which have been most persuasive with 
regard to an independent function of Court Officer are the following: 

1. With an independent Court Officer, there is less 
anxiety between the child and that person who will ultimately be his/ 
her Supervising Officer. Having the Supervising Officer present the 
evidence against a child in court, we feel, would result in unnec- 
essary animosity. 

2. Formerly, before Judge Mayer reassigned the types of 
cases heard by each of the Referees and the Judge, there were problems 
with predicting the times of the particular hearings and having the 
Probation Officers available when their cases were to be heard. We 
understand that the new system facilitates a smoother running calendar, 
We do not, however, feel that having each Probation Officer function 

as a Court Officer would provide the same efficiency as is presently 
achieved. We can foresee problems with having Probation Officers 
waste valuable time in the event that the preceding case were to 
extend beyond its estimated time or being unavailable when his/her 



case was called. 

3. Court Officers should be trained specifically with 
regard to Court procedure. Not all Probation Officers presently 
have the same degree of training and expertise in this area and we 
feel that their time may be better spent in other types of training 
programs . 

We recommend that, since this one aspect of the organiza- 
tion of Youth Guidance Center was presented to us by so many, a 
serious study be made of it with a view toward the change suggested. 

The Grand Jury would like to commend the efforts and 
assistance presently being provided by the Volunteer Auxiliary of 
the Youth Guidance Center. As the first of its kind in the United 
States, this organization has been operating for twenty-seven years. 
Through grants, fund raising activities and dues, it is able to 
provide approximately $20,000 annually to augment the budget of the 
YGC. This fund provides the salary of a night coordinator for the 
cottages, provides recreation and crafts, crisis needs, small 
salaries for some of the youth who perform gardening duties at Youth 
Guidance Center and numerous other forms of assistance. Additionally, 
the auxiliary has been able to obtain volunteers from San Francisco 
State Psychology Department to work on a one-to-one basis with the 
status offenders at the cottages. The citizens of San Francisco 
should be truly grateful that there are people such as these who so 
willing give to help the youth of the City. 

We do not feel that we should let this opportunity pass 
without commending the dedication of the Juvenile Justice Commission- 
ers. Time and time again, we have been impressed with the scope and 
direction of their activities. Whenever the need arises for research, 
long and short term planning or the general administration of Youth 
Guidance Center and the Ranches, the Juvenile Justice Commission 
rises to the cause. We laud their conscientious efforts in perfor- 
mance of their duties. 

During our year of service on the Civil Grand Jury, we 
have received and reviewed reports from other Jurisdictions 
nationally on innovative programs which are being implemented. 
Among the most impressive of those was the report on a Mew Jersey 
approach to Juvenile delinquency. The New Jersey Juvenile Court 
ordered fourteen youthful repeat offenders to participate in a 
program at the State Prison. The children were left alone with the 
hardened adult offenders and were told about what to expect from 
the adult prisons. Certain statements were made about the lack of 
females in prisons and very blunt threats toward the boys, them- 
selves, were made. Stories of violence and intimidation were 
related. According to the report, of the fourteen boys who par- 
ticipated in the initial program, not one had in the year following, 



been re-referred to the Juvenile Court for further offenses. We 
understand that some of the inmates at the San Quentin adult 
facility, with the approval of the administration, have initiated 
a similar pilot program for selected youth. 

San Francisco has, for many years, been viewed as one 
of the more progressive cities in the United States. Perhaps 
by the very nature of the beast, San Francisco can also become a 
leader in child rehabilitation. Programs such as the one in New 
Jersey mentioned above, while obviously of minimal cost might 
serve a very useful purpose. While this is only one of several 
experimental programs which have been brought to our attention, 
we feel that it is significant. The administration of the Juvenile 
Probation Department is undoubtedly aware of many others. The use 
of volunteers in this regard could be of great assistance. We 
would strongly urge San Francisco to try to implement some of the 
more promising new programs in aid of our ongoing fight against 
the juvenile crime in this City. 



The San Francisco Adult Probation Department has a primary 
responsibility for overseeing the activities of those persons who 
have been found quilty of committing crimes in this City and who 
have been referred to the Department by the Municipal or Superior 
Courts. In addition to this surveillance activity, it is involved 
in crisis intervention for its charges and their families where 
the crises might have an effect on the rehabilitation of the probationer! 
It also oversees the collection of fines imposed by the Courts and 
any restitution which may have been ordered. In those cases where 
alcohol or substance abuse counselling is required by the Court, 
or where the Probation Officer sees the need, the Department works 
as a resource referral agency. Counselling is provided to those 
individuals who are receptive to, or in need of, that service. One 
additional responsibility lies in the preparation of "pre-sentence" 
reports for the use of the Courts. 

Temporary Status Of Probation Officers 

Perhaps the most significant factor affecting the activities 
of the Probation Department has been the lack of a resolution of 
the temporary employee problem. In May of 1977, of the 40 Probation 
Officers, 29 were temporary; 16 of the 29 Senior Probation Officers 
were temporary to that position and 6 of the 9 Supervisors were 
serving under a temporary status. The threat of loss of employment 
or demotion was further compounded by the extraordinary number of 
individuals competing for the available positions: 422 competing for 
29 Probation Officer slots; 54 testing for 16 Senior Probation 
Officer positions and 60 applying for the Supervising Probation 
Officers' 7 positions. Having vested up to seven years as temporaries 
awaiting results of Civil Service tests, none of these people have 
known if they would still have Jobs when Civil Service lists were 
finally posted. It is not surprising that among some, morale was 
low. Such position insecurity could not have been conducive to active 
and effective supervision by Supervising Probation Officers who, 
at any time, might be replaced by their subordinates. Perhaps a 
brief history of the Civil Service examinations for the various 
classifications of Probation Officers in both Adult and Juvenile 
Probation departments is appropriate. 

Beginning in 1970, certain jobs became available on a 
temporary basis only, because of temporary leaves or temporary promotions i 
within the departments. There was a Civil Service list at this time. 
Under Civil Service rules, if no one on the list wishes to fill a 
temporary vacancy, the Department itself can fill the position with 
whomever it chooses. Inadequate attention was given during this 
time to the hiring of minority personnel which later prompted the 
filing of affirmative action lawsuits. By September of 1973, the list 



had been exhausted. At that time, announcements were sent out for the 
positions of Probation Officer, Senior Probation Officers (promotive) 
and Supervising Probation Officers (promotive). There were protests 
filed with Civil Service regarding the terms of each of these 
announcements. The protests and appeals were acted upon by the Civil 
Service Commission and, by May 197^, necessary announcements were 
reissued. On July 3, 197^, three Probation Officers, Scarlet Gordon, 
Santiago Rodriguez and Calvin Booth, filed a class action suit delaying 
action on all Probation Officer examinations. That litigation 
continued for one and one-half years and, finally, in January of 1976, 
the case was settled by Consent Decree. In April of lojf, , all 
examination announcements were reissued. From April until the first 
of August, protests were received and hearings conducted. Shortly 
thereafter, in October, 1976, the written examinations were held and 
protests and counter-protests to these examinations were filed. The 
Civil Service eliminated a relatively large number of questions 
from the tests because of their ambiguity and other problems and accepted 
multiple answers on others. Also during this time, two additional 
suits were filed - one by the promotive Probation Officers at Juvenile 
Court and one by the temporary Probation Officers also at Juvenile 
Court. During the period from January 31 through March 17 , 1977, 
oral examinations were given. On February 1, a suit was filed by 
the Human Rights Commission contesting the passing point require- 
ments in the promotive examinations. We understand that, in order 
to facilitate the affirmative action program for the Departments, 
an adjustment was made. Additional protests were filed by the 
participants in the oral examinations which were ruled on by Civil 
Service . 

In the latter part of May, 1977, Civil Service was ordered 
by the Superior Court to advise all Black and Spanish surnamed 
applicants that they were entitled to retake the oral examinations. 
This Order was made on the basis of a serious oversight by the 
Civil Servie Commission in its failure to provide the Plaintiffs 
in the Scarlet Gordon case with lists of oral board examiners as 
previously ordered by the Court. This defect in the testing procedure 
has again extended the time which will lapse before permanent staff 
in this one category can be selected. However, with regard to the 
other job descriptions, the morass has been brought to an end. 

Because of the time involved in the resolution of the 
temporary employment problem, a majority of San Francisco's Probation 
Officers had a vested interest in retaining positions they had assumed 
thereby resulting in the numerous appeals. Another contributing factor 
was the appointment of temporary employees without adequate regard 
to affirmative action policies. This situation was necessarily corrected 
in the Civil Service examinations, however it left a number of well- 
qualified minority Probation Officers, who had long worked as 
temporaries, without jobs. 



This long-term battle toward the appointment of permanent 
Probation Officers for each of Adult and Child Probation Departments 
suggests to us that some revision in employment practices for the 
City should be adopted. In this regard, we advance the following: 

1. It is imperative that testing for a new eligibility 
list be conducted before Civil Service lists expire 
or are depleted. 

2. The City's policy of allowing employees to take 
unnecessary extended sick leave at the end of their 
City employment tenure requires the hiring of 
temporary personnel. If positions are required, as 
in this case, they should not be left vacant. Perhaps 
the City should look toward the example set by other 
cities which pay a percentage of the sick leave accrued 
prior to retirement or, as is done in the private 
sector, the City should regard sick leave as Just 
that - not as additional vacation leave or a bonus. 

3. We would also note that an extraordinary amount of 
time has been spent by the administrations of Juvenile 
and Adult Probation as well as by other departments - 
Civil Service, City Attorney and the Courts - toward 
a resolution of the problem. This was a further 
waste of funds and talent. 

4. San Francisco's Civil Service must look at the City 
appeals provisions with a view toward revision more 
in line with those other cities. San Francisco has 
among the most liberal of appeals policies and some 
revision in this regard is necessary. 

Clerical Personnel 

In the Adult Probation Department , there remains a dearth 
of supporting clerical personnel. Probation Officers continue 
to type some of their reports - a very poor use of their time, 
indeed. The situation has improved somewhat due to an infusion of 
CETA personnel into the Department. However, clerical assistance 
continues to be lacking. We would suggest that, based upon the 
repetition inherent in preparing pre-sentence reports and petitions 
to the Courts, thought be given to leasing word processing typewriters 
on an experimental basis. We suggest that use of these systems 
may result in substantial savings in additional personnel requirements 
and increased quality in their work product. 

In May of 1977 a new position of Senior Stenographer was 
acquired through the forfeiture of one line Probation Officer position. 



The Senior Steno assigned to this position has responsibility for 
overseeing the work product and performance of a majority of the 
clerks and typists in the Department. We feel that this position 
will be a great asset to the clerical functions of Adult Probation. 

Pre-Sentence Reports 

One of the responsibilities of the Probation Department 
is the preparation and submission to the Courts of pre-sentence 
reports. These reports integrate information regarding the prior 
offenses of the defendant, his/her legal status (whether currently 
on probation, parole or under the Jurisdicition of another State), 
family and employment status and other data required by the Courts 
for use in properly sentencing the defendant. Because of the past 
poor quality of some of the reports, and varying requirements of 
each of the Judges, the Courts' former lack of reliance upon the 
reports may have been Justified. A number of changes are being made 
which we believe will encourage the greater use of pre-sentence reports 
by the Courts . 

1. Under new State laws, the pre-sentence report format 
will require substantiation for every statement. The 
reports will no longer be based on hearsay (any second-hand 
information will necessarily be attributed to its 

source) and more factual reports will be produced. 

2. Under the reorganization recently accomplished in 
the Adult Probation Department, one division has 
responsibility for compiling the information and preparing 
all reports . Those Probation Officers who have formerly 
had difficulties in formulating lucid, accurate reports 
will work in other divisions where their particular 
talents may be better utilized. 

3. Better systems for accumulating necessary data 

are being formulated. Among these is a new procedure 
wherein requests for information and the preparation 
of basic pre-sentence reports are begun on all defendants 
upon their placement on the arraignment calendar. 
This new system provides an additional three to five 
weeks to accumulate information. Since sentencing 
will occur in many of those cases in which arraignment 
takes place, this is an excellent way to improve the 
quality and validity of the reports . 

^4. A new short form has been devised for use in the Superior 
Court where prison sentences will not be considered 
or ordered because of the nature of the offense or the 
status of the defendant. 



5. Chief Adult Probation Officer Walter Morse recently 

served on a committee of the State Chief Adult Probation 
Officers' organization. A pre-sentence report format 
was prepared. It has been accepted and recommended 
by the State Judicial Council. Once Probation Officers 
have been adequately trained in its use, content validity 
and efficiency will result. 

The Department's Future 

Under the able leadership of Walter Morse, the Department 
has begun its reorganization and refocus on the responsibilities 
assigned to it. In his relatively short time as Chief Adult 
Probation Officer, a number of new programs and revisions to old 
procedures have been adopted. A few of these, we feel, deserve 

1. Department reorganization. The major component 

of the Department's reorganization was the reassignment 
of caseloads. As mentioned earlier, a separate pre- 
sentence report division was created. Additionally, 
cases are now assigned through a geographic district 
format. Although some problems exist with this type 
of assignment with regard to those very transient 
individuals , this program has validity . Community 
input can be better utilized with a specific view 
toward problems which are prevalant in each district. 
Specialized caseloads, according to the needs of the 
area, become more manageable and individual Probation 
Officers can become more familiar with the community 
resources in their particular areas. 

2. Training. The 1975-76 Grand Jury recommended 

that training be instituted. Now that new personnel will 
be hired and existing personnel reassigned, we feel 
that training is not only advisable - it is imperative. 
The Probation Department recently requested 5% in matching 
funds from the City in order to receive a $15,000 LEAA 
training grant. The Board of Supervisors originally 
refused to grant the $750 required to obtain the 
training money but later conceded. This new program 
will provide training for the new Probation Officers, 
new techniques and procedural training for journeymen 
and supervision and management training. Each of 
these functions is absolutely necessary to the 
operation of the Department. 



3. Probation Officers in Court Capacities. Probation 
Officers have traditionally been assigned to each of 
the Superior and Municipal courtrooms where criminal 
cases are heard to advise the Probation Department of 
the judicial orders. This procedure became necessary 
because of the inaccuracy and sporadic reporting to 
the Department of orders involving their services. 

The Probation Department has now removed its Officers from 

most of the courtrooms and reassigned them to caseloads. 

It is working with the Courts to improve the quality 

and accuracy of the reports submitted to the Department 

by the Court Clerks. We recommend that a simple form 

be utilized specifying the length of probation, conditions 

required for the granting of probation, i.e., substance 

abuse or alcohol counselling, orders of fines, resititution, 

etc. If it is determined that incorrect or inadequate 

information is derived by this method, we suggest 

that Probation Department clerks research Court records 

or that CMS be used to verify the information. 

Defendants, themselves, should no longer be responsible 

for reporting the fact of their ordered probation to 

the Department , nor should Probation Officers' valuable 

time be spent in duplicating the efforts of the Courts 


4. Resource Unit. There has traditionally been a 
mistrust of the Probation Department by community 
agencies. The Probation Department has recently assigned 
two Officers to develop a liaison with agencies which 
may be of assistance to their charges. The Officers' 
assignments include the assessment of the strengths 

and weaknesses of community agencies and the relaying 
of this information to the Probation Officers. Probation 
Officers will make use of this information in matching 
their clients' needs with available services and in 
making recommendations to the Courts in pre-sentence 
reports. A resource manual will be prepared with annual 
reviews and updates incorporated. 

The 1976-77 Civil Grand Jury feels that this Department has 
made great strides in the last year toward resolving a multitude 
of problems. We trust that, through its continued efforts, the 
Department will achieve the efficiency required to provide those 
services required of it. 



The Law Library has been operating in San Francisco since 
1870. It has a self-electing, self-perpetuating Board of Trustees, 
which Board appoints the Librarian. Operating costs are provided for 
the most part (80*) by a Law Library fee which is added to the 
Municipal and Superior Court filing fees. The remaining twenty percent 
is provided from the City General Fund. This twenty percent amounts 
to $70,000 to $80,000 and pays for three salaries with the remaining 
amount being allocated to the lease of copying equipment. The City 
also furnishes space at two locations for the Library. 

Through the years, the Law Library has been increasingly 
used by the general public which now makes up approximately fifty 
percent of its clientele. For both attorneys and non-attorneys, it 
provides an invaluable source of legal materials including volumes 
of case law and statutory law as well as copies of all briefs submitted 
to the Supreme Court. Despite its general population use, there is 
very little problem with book loss. In fact, less than ten volumes 
per year require replacement due to their non-return. 

Presently, the Law Library is operating efficiently at its 
present level of funding. If, however, additional funds become 
necessary, we concur with the Librarian's suggestion that a minimal 
Law Library fee should be added to the San Francisco Bar Association 
dues. We feel that this would provide an equitable source of funds 
since the general public already pays $6.50 through court filing fees. 

Leslie Evans 
Aileen McCarty 
Carlos Xavier 

Suzanne Perry , Chairman 



One overriding difficulty which concerned this Grand Jury 
was the civil service personnel system as presently constituted. 
V.'hile the Jury feels that the Civil Service Commission is dclng a 
creditable job within the confines of the Charter imposed restric- 
tions, we would recommend a thorough study of the Civil Service 
system as it presently functions in the City and County of San 

The Civil Service Commission reported receiving few 
complaints from the City departments and accordingly the Commission 
feels the City departments are satisfied with the oresent system. 
In contrast, City department heads have experienced great difficulty 
in Civil Service and yet have failed to report those shortcomings 
to the Commission. That breakdown in communication is striking. 

Even more alarming is the breadth of the Civil Service 
problem. One City department is almost completely staffed with 
temporary personnel. In the event permanent personnel are ever 
designated for that department it is apparent that the present 
supervisor-worker hierarchy may not exist, but rather workers may 
become supervisors and vice-versa. Thus there is and can be no 
innovation; the lack of stability is unnerving to the employees. 

Another department underwent a wholesale reorganization 
with a new department head and new or transferred employees. The 
final result was that not one person in the department had prior 
experience or training in the proper operation of the r'enartment ' s 
functions . 

Accumulated sick leave remains a major obstacle for 
effective management. A retiring individual can apparently take 
sick leave with pay immediately prior to retirement based on a 
formula which can produce up to 6 months time off. During this 
period this position Is deemed filled until retirement Dut the desk 
is empty. In one case an heir was paid for accumulated benefits 
and the position had to remain vacant for nearly 8 months. 
Frequently the position itself is eliminated in the next budget thus 
leaving a department with a heavy lower echelon of clerks and a 
rapidly diminishing upper end of the pyramid of experienced and 
presumably higher paid individuals. 

Another problem frequently experienced is the 6 month 
probationary period. This is felt to be much too short for any but 
the most rudimentary positions. Many City Jobs require more than 
6 months experience and training Just to learn the basics. It is 
unfair to both the employee and employer to expect an accurate 
performance evaluation before being fully trained. 



There is no uniform system in the City for department heads 
to reward outstanding performance, to provide more rapid increases 
in salary progression or to have any genuine degree of flexibility 
in hiring, firing or promoting. From a management point of view 
it is frustrating. From the viewpoint of the typical City employee 
there is no incentive to perform their tasks in other than a cursory 
manner. That some City employees do make outstanding contributions 
to their departments and to the public is a product of their 
individual nature; it is not something the City fosters. 

These same comments apply to the middle management deficit. 
There is currently no uniform mechanism to routinely measure the 
nerformance of the managers. Department heads are chagrined at the 
experience level of middle management; middle managers honestly 
evaluate their recent promotion as an overwhelming challenge because 
of their necessary training; Civil Service stands ready to prepare 
a training and education program for departments which request such 
programs; department heads are reluctant to seek Civil Service 
assistance in establishing such programs. Again, department heads 
request added flexibility in hiring, firing and promotion of 
management . 

In sum, a thorough study is recommended of the personnel 
and management systems including the underlying Charter provisions 
with a view towards simplification, management flexibility and the 
rewarding of a job well done. 

For and on Behalf of the 1976-77 San Francisco County Civil Grand Jury 











V Foreman's Letter to the Presiding Judge 

VI Introduction 

102 Adult Probation Department 

45 Aging, Commission on the 

55 Agriculture and Weights and Measures, Department of 

31 Airport 

86 Animal Control Center 

25 Art Commission 

84 Asian Art Museum 

100 Assessor 

81 California Academy of Sciences 

48 Chief Administrative Officer 

88 City Attorney 

42 City Planning, Department of 

1 Civil Service Commission 

28 Community College District 

17 Controller 

51 Coroner 

63 County Clerk 

90 District Attorney 

53 Electricity, Department of 

21 Electronic Data Processing 


TABLE OF CONTENTS (continued) 

32 Emergency Services 
83 Fine Arts Museums 

33 Fire Department 
2 Health Service System 

39 Hetch Hetchy Water and Power Department 

45 Human Rights Commission 

109 Law Library 

10 Mayor 

12 Mayor's Office of Employment Training 

105 Municipal Court 

37 Municipal Railway 

43 Parking Authority 

6 Permit Appeals, Board of 

35 Police Department 

6 Port Commission 

56 Public Administrator - Public Guardian 
92 Public Defender 
64 Public Health, Department of 

7 Public Library 

76 Public Works, Department of 
78 Purchasing Department 

77 Real Estate Department 

57 Recorder 
42 Recreation and Park Department 

58 Registrar of Voters 


TABLE OF CONTENTS (continued) 

3 Retirement System 

93 Sheriff 

M Social Services, Department of 

103 Superior Court 

80 Supervisors, Board of 

59 Tax Collector 

101 Treasurer 

27 Unified School District 

8 War Memorial 

38 Water Department 

1*6 Women, Commission on the Status of 

107 Youth Guidance Center and Juvenile Court 



Mrs. Helen I. Abbett 
Robert D. Au 
James K. Broderick 
Thomas J. Cook 
Willie J. Crosby 
Joseph McKinley 
Michael J. O'Brien 
Miss Jane P. Reeve 

Reynold T. Rey 

Mrs. Lucinda M. Romaneck 

Steven H. Rosen 

Howard L. Ross 

Ronald P. Rubia 

Robert G. Smith 

Edward J. Sosa 

Miss Margarita V. Tallerico 

Mrs. Naomi Hansen, Secretary 

Gordon A. Caswell, Foreman 

Impaneled, July 27, 1977 

Discharged, June 30, 1978 


City and County of San Francisco 


Room 163 City Hall 
telephone: 558-5010 

Honorable Lawrence S. Mana 
Presiding Judge, Superior Court 
City and County of San Francisco 
Room 1*35, City Hall 
San Francisco, California 9*1102 

Dear Judge Mana: 

On behalf of the members of the 1977-78 Civil Grand Jury, 
the reports of Grand Jury are enclosed. 

I would like to thank you for your counsel and guidance 
throughout the Year, and the assurance that you were available 
if needed. 

The Jury's particular thanks are due Mr. Michael Tamony , 
Grand Jury Consultant, for his constant support and encourage- 
ment. We would like to thank also members of his staff for their 
willing clerical assistance. 

My special commendation and thanks goes to all the members 
of the Grand Jury who worked so well and so faithfully during 
the past twelve months. Our Jury was a cross section of the 
City comprising many ethnic backgrounds and age groups, from 
students to retired persons. Most of the Jurors had full time 
Jobs, and it was not easy for them to put in the countless hours 
necessary to perform these investigative duties. I am most grate- 
ful to them for their devotion to duty, their cooperative spirit, 
and the support given to me . 

We have tried to take a positive approach in our reports, 
and hope that our findings and recommendations will be of benefit. 

Sincerely , 

Gordon A. Caswell, Foreman 
1977-78 Civil Grand Jury 



The Investigative phase of the Grand Jury was nearly 
complete prior to the passage of Proposition 13 on June 6, 1978. 
Most of our reports were written and many were approved while 
revisions to the 1978-79 Budget were being made. During that 
period it was not possible to determine from one day to the 
next what cuts were coming. We regret that some of the reports 
will not reflect the latest situation with regard to funding. 

During the past year, the Grand Jury met almost 
weekly to discuss the findings of various sub-committees. On 
these occasions certain problems that are common to many 
departments repeatedly came to our attention. We would like 
to include here our conclusions and recommendations in these 

Supervision and Personnel 

The largest item in all budgets is for salaries. 
In Public Works it is 85* , in the Fire Department it is about 
9755. Any reduction in the cost of running the City can only be 
made by reducing salary costs. The Mayor and the Board of 
Supervisors should show the strongest possible leadership in 
developing an efficient and productive work force. They should 
ascertain that every employee is necessary and productive. All 
employees should have in their possession a description of 
their Job and of the performances required. They should be 
evaluated on a regular basis and counselled as to their 
performance . 

There is laxity in basic supervision. Members of the 
Grand Jury were told by the Chief Administrative Officer sub- 
sequent to the parking meter scandal that time keeping was 
known to be lax in many areas , and it was not unusual for 
employees to leave their Jobs early. This situation is 
intolerable. The least to be expected of a supervisor is that 
he knows where his employees are. Supervisors at all levels 
from top to bottom should check to see that their employees 
work a full day. Graveyard and week-end shifts should not be 
overlooked. The practice of submitting "anticipated" time 
rolls should be ended. 

Civil Service 

The Civil Service Regulations should be reviewed and 
revised. The problems created by these antiquated rules are 
well known to all. The Mayor should lean on the Civil Service 


INTRODUCTION (continued) 

Commission to get prompt action for a complete overhaul. 

Although mentioned elsewhere, the City and County 
is out of line in the number of disability retirements. All 
possible measures should be taken to reduce this abuse. City 
officials should encourage the passage of the Lanterman Bill. 

Charter Revision 

Everyone knows that the City Charter needs revision. 
It fragments the responsibility and authority of the Mayor and 
the Board of Supervisors, and grants powers to boards and 
commissions that are not responsible to the voters. This 
results in inefficient and expensive government. Responsi- 
bilities should be clearly defined, with sufficient authority 
given to the responsible elected official. 

Everywhere the Grand Jury went complaints were heard 
of the problems caused by the Charter. We recommend that the 
Mayor and Board of Supervisors actively support the efforts 
which will soon be started to rewrite the Charter. 


Serious consideration should be given to consolida- 
tions of departments, thereby increasing efficiency and 
eliminating duplication of effort. For example, the tax 
collecting function could be combined with the Treasurer with 
many obvious advantages. The Grand Jury Report of 1975-76 
stated that $500,000 yearly was lost in interest at tax 
collection time because it took three weeks to get the tax 
receipts from the Tax Collector to the Treasurer. Fifty-two 
counties in California have already combined these functions. 

Another example would be placing the County Clerk 
under the Superior Court for which most of his work is performed. 
The Court' 8 interest in the efficient operation of the County 
Clerk's office would be much greater than that of the Director 
of Finance and Records, and it would have the authority to 
make changes . 

It appears quite feasible to eliminate the Job of 
Director of Finance and Records. With the position vacant, 
this is a painless time to do it. 

The 1975-76 Grand Jury recommended a consolidation 
of fiscal officers: the Controller, the Budget Analyst to the 
Mayor and the Budget Director of the Board of Supervisors. We 
believe the central fiscal office would be most effective 


INTRODUCTION (continued) 

reporting both to the Board of Supervisors and the Mayor. In 
the light of the emergency created by Proposition 13 » and the 
unfounded predictions of disaster, we recommend careful con- 
sideration of the creation of a Central Fiscal Office. 

Implementation of Reports 

Each year the City and County spends hundreds of 
thousands for audits by private experts, surveys by Mr. Harvey 
Rose, audits by the Controller, and audits by the Civil Grand 
Jury. In all too many cases, the advice is challenged, refuted 
or ignored. There is little or no follow-up to insure imple- 
mentation of that part of the advice that was accepted. The 
Bcandal in the Tax Collector's office could have been prevented 
with better folow-up of an audit report, and there are many 
other examples. We recommend that procedures be established 
for better follow-up. A lot of money is being wasted if 
we buy advice and don't use it. 

Budget - Proposition 13 

Long before Mayor Moscone declared the emergency, the 
Grand Jury was concerned about the annual increases in the 
Budget. As a result of the passage of Proposition 13, next 
year's Budget has been reduced $M.5 million, from $868.9 
million to $824.4 million. This is about $6 million less than 
for the current year. During this difficult revision period, 
considering all the pressures, the Mayor and the Board have 
worked well together, and did a commendable Job. 

As mentioned elsewhere in this Report, we would have 
favored an increase in the MUNI fares to assure that the City 
will be eligible for State aid. However, if MUNI can qualify 
without a fare increase, and still give acceptable service, 
so much the better. 

With the expectation of less money to work with in 
the future, the Mayor and the Board will now need to establish 
priorities and eliminate waste and duplication at all levels. 
We hope that some of the recommendations contained in the 
following Report will be helpful. 



By far the largest single Item In the City and 
County Budget is the cost of salaries. Overall, it is about 
70J over $600,000,000. For such a major expense, the most up 
to date personnel management methods should be sought out and 
practiced. According to Mr. John Walsh, General Manager of 
Personnel, he is trying hard to bring the procedures of the 
Civil Service Commission into the twentieth century. 

The following are some of his goals: 

1. Changes in the Charter that will give him flexibility to 
meet current situations. 

2. Updating of Civil Service rules. 

3. Extend the probationary period for new employees. 
5. Speed up the process of filling vacant positions. 

5. Fuller Implementation of the performance evaluation system. 

6. A reward system for outstanding Job performance. 

7. Conversion of time roll audit and certification to electronic 
data processing. 

8. A training unit which can provide training to all depart- 
ments of the City. 

9. End the practice of "anticipated" time rolls. 

10. Pre-employment physicals for all new employees, including 
temporary and CETA employees . 

Several of these goals are within sight. There is 
a good chance that several Charter revisions will be on the 
November ballot. The Health Department is slated to take over 
pre-employment physicals. A training program across depart- 
mental lines is being worked out with the Community College. 

The Jury feels that the practice of "anticipated" 
time rolls should be stopped. Most departments are paid so 
shortly after their payroll cycle that it is the common 
practice to anticipate the hours worked In the last few days 
of the cycle. If an employee does not work as "anticipated", 
then corrections are sent in to adjust the time roll. This 
situation could be solved simply by moving pay day back a 
few days. This one-time inconvenience to the employee is 
minor as compared to all the problems created, as well as the 
possibilities of overpayment, under the present system. 
Certainly no official should be expected to certify that an 
employee will work at some future date. Particularly in the 
aftermath of the recent time roll problems in the Tax 
Collector's office, the need to end this practice should 
escape no one. 


There should be a centrally located personnel file 
containing all the essential records of an employee. If 
records are Incomplete or missing, it can be very expensive 
for the City in certain situations of legal action by an 

Although this is not directly a responsibility of 
the Civil Service Commission, it is most important that the 
number of employees be kept at the lowest possible level. 
Close supervision and productivity standards are essential in 
achieving this. 

The yearly cost to the City for the Civil Service 
Commission is now $2,500,000, with a staff of Just under 100 
employees. For this expenditure, it is reasonable to expect 
up to date personnel programs which will result in efficient 
and productive employees. 

Mr. Walsh spoke to the entire Grand Jury, and we 
were favorably impressed with his plans for improving the 


The Health Service System, under the direction of 
Mr. Philip J. Kearney, is designed to facilitate the health 
program of San Francisco city employees. 

The staff appeared well coordinated and performed 
their duties efficiently. Mr. Kearney pointed out that his 
staff is well integrated racially. The operation of the pro- 
gram places considerable stress on upgrading the system. 

There are three major plans under the system. They 

are : 

Plan 1 - City Administered 
Plan 2 - Kaiser Foundation 
Plan 3 - Children's Hospital 

Blue Cross priced itself out of the system and it was replaced 
by the Children's Hospital Plan. 

Mr. Kearney stated that there was need for more 
space which was quite evident as boxes of records were stacked 
on top of the file cabinets. 



In conclusion, we felt much progress had been made 
in the past year, but the optimum has not yet been reached. 


The Retirement System is administered by a Board 
consisting of seven members : the President of the Board of 
Supervisors, three City employees, and three members appointed 
by the Mayor. For the past twenty years, Mr. Dan Mattrocce 
has served as its General Manager and Secretary. 

Although the Fund, which totalled $785,^00,065 at 
the end of FY 1977, is sound and well managed, the yield has 
not been outstanding. The yield was 3.2* from stocks which 
is nearly 25% of the investment portfolio. The yield from 
bonds was 8.93* • In February 1977, Budget Director Harvey M. 
Rose made a study of the Retirement System and made several 
recommendations for increasing the revenue. Some of these 
have been adopted. 

In FY 1977, the Fund Income was $153,000,000, of 
which $9^,000,000 was contributed by the City, $22,000,000 
was from the employees, and $37,000,000 was from earnings of 
the Fund. The amount paid out in retirement benefits was 
about $77,000,000. 

The retirement payments continue to increase 
annually and this will be a concern, particularly if there 
is a sharp increase in the number of employees who take early 

In December 1977, the San Francisco Chamber of 
Commerce published a twenty month study of the Retirement 
System. Their report should receive attention from the Mayor, 
the Civil Service Commission and the Board of Supervisors. 
Many administrative and clerical errors, oversights and loop- 
holes were noted in that report. 

The following are some examples: 

1. Proposition L, as passed in November 1976, will not attain 
the projected $21,000,000 savings until the year 2000, and 
none until at least 1986. However, changes could be made 
which would bring immediate cost savings to the City. 

2. By working a great deal of overtime in one year, an 
employee can greatly increase his retirement pay, which is 
based on his highest salary for one year. For example, 


one MUNI employee with base pay of $11,585, with overtime 
made $23,330 in 1973, or 101* over his base pay. The 
estimated increased cost to the Fund in lifetime benefit 
payments is $70,470. 

3. There is a high number of "late career promotions" which 
result in higher salaries and higher annuities. There were 
67 in a group of 564 employees, statistically many more 
than would happen by chance . 

4. A Charter provision calls for paying uniformed employees 
who are given temporary promotions at the higher wage rate 
even though they are not qualified or appointed to the 
position. One policeman was promoted temporarily for two 
days, resulting in an estimated extra $3,900 in retirement 

5. Inadequate pre-employment physicals which overlook abnor- 
malities can cost thousands. In the cited report, an 
example is given that is expected to cost the Retirement 
Fund in excess of $150,000. 

6. CETA employees and temporary employees are not given pre- 
employment physicals. In the Street Cleaning Bureau, CETA 
employees were 12? of the work force, and had 42* of the 
disabling injuries in FY 1975-76. 

7. The Administrative Code permits "presumptions" that certain 
diseases are job related if the employee has been on the 

job for five years. These can be very costly "presumptions", 
An attempt should be made to change this law to require the 
employee to provide proof of his claim. 

There is much more in this Report that will bear 
careful reading. The Jury is grateful to the Chamber of 
Commerce for making it available to us. 

Another report which we would suggest for review by 
the Board of Supervisors is the Grand Jury Report of 1975-76 
(see page 223), which contains recommendations of a similar 
nature . 

The Workers Compensation Division paid out $5,968,796 
in benefits in 1976, which is 11% more than paid in 1975, and 
39% more than in 1974. Obviously, all departments of the City 
must work to keep these claims as low as possible. 

Departments with the highest claims in 1976 were: 

Police $1,355,446 

PUC (MUNI, etc.) $1,049,013 

Fire Dept. $ 862,909 

Dept. of Pub. Health $ 740,315 

School District $ 644,631 



The Jury concludes that the Retirement System Is In 
sound condition. Its Investment Income will not Improve until 
the Stock Market Improves, and until It can convert to higher 
paying bonds. The City and County will have to continue to 
Increase their contribution, particularly If the number of 
retirements Increase, and possibly the number of employees 
decreases. Outlined above are several suggestions that could 
greatly reduce costly and unnecessary payments out of the Fund. 

Steven H. Rosen 
Edward J. Sosa 

Willie J. Crosby, Chairman 



The Board of Permit Appeals, Philip Siggins , 
Executive Director, is an administrative hearing board. Its 
work brings contact with various city departments, for example, 
Public Works, Health, City Planning and Fire. It has a staff 
of three and a 1977-78 budget of $58,352. 

As mentioned in a prior Grand Jury Report, Philip 
Siggins has taken great pains to assist the appellants in the 
administrative process dealt with by this Board. Additionally, 
Mr. Siggins' efforts to streamline the administrative process and 
consolidate files on San Francisco housing merit commendation. 

Considering the large number (approximately ^50) of 
cases the Board hears yearly, the Board should receive one 
additional employee. Specifically, this should be a clerical 
employee with court reporting skills to assist the Board during 
official hearings. 

Lastly, the offices of this Board are deplorable. 
As another Grand Jury recognized, that while staff performance 
outweighs the condition of facilities, this committee found no 
improvement in the shabby and poorly kept offices. 


The Port of San Francisco Is at a crossroad. Acting 
Port Director Edward L. David manages an important service 
agency which provides the entire San Francisco region with a 
maritime transportation center. 

Technological innovations such as containerization, 
have left the San Francisco Port with a small number of up-to- 
date piers. At the same time, the Port is developing non-maritime 
facilities which are economically beneficial to San Francisco. 

Newly developed Pier 96 (LASH facilities) provides 
$2 million annual revenue, according to Deputy Director 
Anthony J. Taormina. Pier 9^> with one berth and two cranes, 
together with Pier 96 will be established as the San Francisco 
Public Container facility. Pier 80 (at Army Street) is the 
only grain terminal In the Bay region. Together, these up-to- 
date facilities enhance the future of the Port. 



The financial situation of the Port is a complex one. 
A report (for years 1976 and 1977) entitled Examinations of 
Financial Statements of the Port prepared by Touche Ross and 
Company shows that current assets have increased compared to 
liabilities. This is a favorable development and hopefully the 
trend will continue. 

Complicating the financial situation is the matter of 
Bond debts. Since 1969 the Port assumed the responsibility of 
retiring the debt on State of California Bonds. Currently, 
the Bond debt payments are almost half of the Port budget. 
These future payments hamper the Port staff's current programs 
and future development. 

The Port budget currently includes the fireboat 
Phoenix. The 70 foot vessel has an assigned crew of 21*. 
During fiscal year 1977-78, the San Francisco Fire Department 
and the Port have Jointly maintained the fireboat. If the 
Port's share of $1 million were borne by the Fire Department, 
that sum of money could be devoted to future development of 
Port facilities. 

The Port management must maintain two sets of 
personnel records dating from the agency's years as a state 
agency. Investigation of ways to eliminate this double duty 
should be made. 

Finally, the problem of a permanent port director 
must be solved. The Port Commission and management should 
rectify this as soon as possible. Then the Port staff could 
focus its attention on the development of maritime facilities 
for the Port. 


The San Francisco Public Library, including 27 
branches, provides services to a cross section of San 
Franciscans. Headed by City Librarian John Frantz, who has 
three major subordinates (Chief of Branches, Chief of Tech- 
nical Services, and the Chief of the Main Library), the 
system had a 1977-73 budget of $3.^ million. 

This committee found the Library relying heavily 
on CETA employees, who form 20* of the staff. Additionally, 
the Civic Center facility is strained; it is overaged, 
overflowing and inadequate for the level of current operations 


The City Librarian has initiated a master plan with 
the draft to be completed in mid-1978. Hopefully, this master 
plan will attack the problems of over-reliance on CETA employees 
and the antiquated and overburdened facilities. 

The staff is instituting an Automated Circulation 
System (supplied by Computer Library Systems, Inc.) at the 
Business Branch. The same system is to be installed in the 
near future at the Main Library. Not only saving time and 
being more efficient, the new check out system should cut 
book losses due to theft. 

The services of two watchmen at the Main Library 
are inadequate. The City should examine the idea of outside 
contracting for guard services. 

Within existing financial limits, the Library should 
expand its foreign language collection catering to the diverse 
language group of this City. 

During the past year the study Library Services in 
San Francisco was conducted by the Friends of San Francisco 
Public Library. The report's findings should play a role in 
future staff planning for future library services in San 


The War Memorial, located in the Civic Center, 
consists of the Opera House and the Veteran's Building which 
contains the Museum of Modern Art. 

Upon inspection the plant was found well kept. 
Despite construction and remodeling, performances and programs 
were presented throughout the year. The major construction 
project is a 38,000 square foot addition to the Opera House 
facing Franklin Street. Costing $5 million, it will enlarge 
the stage and provide additional office space. The Managing 
Director, Donald Michalske, informed us that the project is 
to be completed by mid-1979. 

The major remodeling effort is the Herbst Theater 
to be reopened in mid-1978. Here the staff has taken great 
care to provide access for wheelchair patrons. 

The Performing Arts Center, currently under con- 
struction, is the focus of the Managing Director's staff. 


WAR MEMORIAL (continued) 

Hopefully, the Center's garage will serve as a catalyst for 
discussion by all departments regarding an overall parking 
plan in the Civic Center district. 

The snack bar, currently a Greyhound concession, is 
a profit-making enterprise. This venture might serve as an 
example for other City and County managed enterprises to be 
contracted to the private sector. 

In sum, the War Memorial staff is to be praised for 
successfully managing both current operations and the 
construction of the Performing Arts Center. 

James K. Br ode rick 
Willie J. Crosby 

Steven H. Rosen, Chairman 



Mayor Koscone waded through this fiscal year in politi- 
cal waters that tested his effectiveness as Chief Executive of 
the City. In addition to his continuing efforts in lowering the 
crime rate, curbing unemployment, promoting economic development, 
etc., Mayor Moscone was given two major challenges. On January 
9, 1978, eleven new supervisors elected by district were sworn 
into service. This changed the political complexion of the City 
because the supervisors come from districts of differing and com- 
peting interest. The threat of the Jarvis-Gann Initiative and 
the subsequent passage of Proposition 13 was yet another challenge 
for the Mayor. 

The Mayor and his budget executives have become aware 
that their skill and knowledge in finance management and account- 
ability is a major concern of the people in the City. In order 
to manage the distribution of revenue in a more meaningful and 
rational way than that of the past, a system has been developed 
and implemented by Mayor Moscone. The system is FIRM (Financial 
Information and Resource Management ), a multi beneficial performance 
budgeting system, enabling a better understanding of a particular 
department's fiscal needs. FIRM is covered in detail in the re- 
ports on the Controller and EDP. 

By request of the Mayor's Office, San Francisco Plan- 
ning and Urban Renewal (SPUR) was asked to study City department 
fiscal statements and to offer any suggestions as a result of 
their findings. SPUR found that accounting for all departments 
was handled differently, resulting in confusion. The Controller's 
audits of City functions by his office and by private CPA firms 
were combined separately in his annual report , and there was no 
one place where a person could find a total of revenues with a 
listing of total expenditures. The Mayor's Office with the help 
of SPUR, the accounting firm of Arthur Young & Co., and invest- 
ment bankers White, Weld & Co., developed a proposed redesign of 
the Annual Report. The new report will contain the City's income 
statement, balance sheet matching assets against liabilities, and 
a ten year tracking system of various revenue and expenditure 
items. This annual financial report together with detail infor- 
mation through FIRM should keep the Mayor and his fiscal team 
aware of the economic condition of the City and eliminate the 
embarassment of "not knowing". 

During this fiscal year two major issues of concern by 
Mayor Moscone are underway after being in suspension. The Yerba 
Buena Project, its completion a definite goal of the Moscone 
administration, will finally begin construction. The Simmons 


MAYOR (continued) 

Project received final approval and will also get underway. 

A policy position by the Mayor was made this year con- 
cerning privacy of an individual. In the form of a veto, the 
Mayor disallowed the authority to check for criminal records of 
Job applicants in the State Attorney General's files, excepting 
peace officer Jobs. He feels that "once a person has been con- 
victed of a crime and has paid a debt to society, he should be 
free to apply for a Job and to become a useful member of society 
once again." 

Through the Mayor's Office of Employment and Training 
6,600 persons were placed in a regular unsubsidized Job, con- 
tributing to a reduction in unemployment. The Comprehensive 
Employment and Training Act (CETA) funded program received much 
criticism as a result of monitoring a report by the Budget Analyst 
of the Board of Supervisors, Harvey Rose. Oddly enough, his moni- 
toring staff were CETA employees . It is stated as a fact, that 
retention rates of those in the CETA Program who after training 
remained on the Job, are close to 90%. A separate report on the 
Mayor's Office of Employment and Training (MOET) follows this re- 

In light of the probable passage of the Jarvis-Gann In- 
itiative, Mayor Moscone on March 16, 1978, declared a hiring 
freeze on filling vacant City positions. We believe he exercised 
"good Judgment" at a crucial time. But we criticize his lack of 
good Judgment during his European jaunt, with the purpose being 
to promote San Francisco, at a time when wasteful government 
spending was the issue. 

There is no doubt in anybody k mind that the passing of 
Proposition 13 put our City into a funding crisis. During the 
budget revision, the Mayor and his finance team worked very well 
with the Board of Supervisors in order to meet the deadline. The 
crisis situation proved again that people can work together. It 
is said that the Mayor shall coordinate and enforce cooperation 
between all departments of the City and County of San Francisco. 
We hope that Mayor Moscone will establish a meaningful and pro- 
ductive relationship with the new Board of Supervisors. 

Proposition 13 has benefited big business in San Fran- 
cisco. Their savings in property tax, as reported, runs in the 
millions. This has opened the door for the Mayor to persuade 
businesses to establish and expand in the City. 

With the expected $100,000,000 from the state and the 
"miraculous" discovery of hidden City money, it seems as if the 
massive budget cuts and personnel layoffs will not occur. It is 
obvious that the state cannot be expected to help us again with 
$100,000,000, nor is it probable that we'll find misplaced 
millions again next fiscal year. Very serious consideration to 


MAYOR (continued) 

executive staff cuts must be made. Working under the rules of 
Jarvis-Gann, Mayor Moscone's Job as Chief Executive of the City 
assumes greater importance than ever. 

In conclusion we commend Mayor Moscone in his show of 
leadership during this crisis year, and we hope that he exercises 
"good Judgment" on the overall needs of the City operating on a 
constricted budget. 


The Mayor's Office of Employment and Training adminis- 
ters the CETA program under the direction of Ms. Eunice Elton. 
Ms. Elton indicated that this Grand Jury was the first to visit 
her office. Rather than explaining CETA, she provided us with 
the following program description, after which we conducted our 




The Comprehensive Employment and Training Act (CETA) 
was passed by Congress in 1973 and became effective 
in July, 197 1 *. CETA provides federal money to create 
training and employment opportunities for unemployed, 
underemployed and economically disadvantaged people. 
The Act requires that these programs be planned and 
managed on a local level by 'Prime Sponsors' desig- 
nated by the U. S. Department of Labor. The City 
and County of San Francisco is one of these prime 
sponsors. In San Francisco, the CETA Program is ad- 
ministered by the Mayor's Office of Employment and 
Training (MOET). 

CETA is aimed at helping different groups with differ- 
ing employment problems. Titles I and III are the 
'employability programs' with emphasis on training 
people to prepare them to move into Jobs not sub- 
sidized by CETA monies: 



Title I - provides training programs and ser- 
vice s — for — pe op le unemployed, underemployed, econo- 
mically disadvantaged or who have limited English 
speaking abilities. Some of the kinds of training 
currently being offered in San Francisco include: 
entry level clerical, advanced secretarial, Journey- 
men chefs, home health aides, licensed vocational 
nurses, draftsmen, psychiatric technicians, welding 
and others. In addition, Title I also provides for 
work experience and affirmative action programs. 
Other programs serve the elderly, the handicapped, 
and other special groups . 

TITLE III - serves special groups such as youths, 
Native-American Indians, etc. MOET presently conducts 
these programs under Title III: 

Skills Training Improvement Program (STIP) - 
a new program which began in January and is 
intended to provide long-term training in 
highly-skilled professions leading to high- 
paying Jobs. In San Francisco, STIP is pro- 
viding training for jobs such as medical 
clerks, paramedics and engineering technicians. 

Youth Employment and Training Program (YETP) - 
another new program as of January, 1978, pro- 
viding a flexible range of training and employ- 
ment services to in-school and out-of-school 
youths ages 16-21. 

Youth Community Conservation Improvement 
Program (YCCIP) - also new as of the first of 
the year - provides community improvement and 
conservation work for youths ages 16-19, with 
the provision that they must return to school 
(half time work; half time school). 

Summer Youth Employment Program - provides 
summer Jobs (and some remedial education and 
training) for economically disadvantaged youths, 
ages 14-21. 

Titles II and VI are the 'employment programs'; they pro- 
vide for the creation of subsidized jobs (Public Service 
Employment) where none previously existed: 

Title II - provides funds for employment primarily 
in government agencies, with preference given to persons 
from the various training programs, the economically dis- 
advantaged, and veterans. Provides a means of access to 
jobs to persons who might otherwise not be eligible for 
them, as well as interim transition between manpower 



training programs and employment in private industry. 

Title VI - much the same as Title II, except 
that it is basically aimed at the long-term cycli- 
cally employed and the program is intended to create 
Jobs to stimulate the economy. Some of the Title VI 
funding is for "projects" (lasting only 12 months). 
Some public service Jobs are with government agencies; 
others are with private non-profit agencies. 

Examples of some kinds of Public Service Employment Jobs 
in both titles: various clerical and secretarial posi- 
tions, various positions in the health fields, account- 
ants, attorneys, security guards, field conservation 
aides, positions in the performing and graphic arts 
and many others . 

The total budget for this fiscal year was $5^,000,000. 
CETA is funded through the federal government including two 
grants , one from the State and another from the Department of 
Labor. An allocation of $600,000 from Community Development was 
also given in order to provide 250 Jobs in the private sector 
with hopes for permanence. In addition, CETA received $122,910 
from the Community Service Program for the recreational activi- 
ties of 8-13 year olds. This money is used to provide for 
special events, transportation for the children to such activi- 
ties and to purchase supplies for recreation. 

Since CETA began, and up to February 1978, more than 
6,600 persons were placed in regular unsubsidized Jobs. Reten- 
tion rates on these Jobs, six months after termination of CETA 
funding, are close to 90 J. Presently, CETA operates through 
five different locations: 

1. Employment and Training 
17^8 Market Street 

2. CETA - Public Service Employment Center 
45 Hyde Street 

3. CETA - Public Service Employment Center 
1182 Market Street 

4. Training 

1276 Market Street 

5. Youth Service Center 
762 Fulton Street 



There is a possible new location at 1453 Mission Street under 
consideration by the Board of Supervisors. This would house all 
five offices in one building. The building would be leased with 
the lease renewable every 3 or 4 years, and paid for with CETA 
money . 

Administrative staff for CETA numbers 35 persons. The 
staff is CETA funded, acquired through EDD. It is under con- 
tractual services, in essence, state employees working for the 
City. Because of this situation, this department's administrative 
accountant may make the same salary as a City accountant but is 
not entitled to raises or fringe benefits. 

The use of CETA employees in public service Jobs by 
government agencies or private non-profit agencies is 35% of 
the total number of CETA workers. Salaries for these employees 
have a ceiling of $10,000 a year, and the balance is picked up by 
the employer. The skill level of the Job determines the length 
of subsidization, which can be a minimum of 6 months to the maxi- 
mum of one year. After 12 months the employer cannot use CETA 
funds . 

On February 6, 1978, the Board of Supervisors* Budget 
Director and Analyst, Harvey M. Rose, released his monitoring 
report of the CETA Title VI Public Service Employment Projects, 
operated by private non-profit organizations (subcontractors). 
The report states that of 202 monitored subcontractors , the pro- 
gram failed to reach those it was intended to reach, including 
the hard-core unemployed and Vietnam veterans and also failed to 

keep proper records. The report concluded "the management 

control exercised by MOET and the private non-profit subcontrac- 
tors has been insufficient, relative to the amount of funds ex- 
pended and the number of persons served." (Board of Supervisors 
Bureau of the Budget, Monitoring Report of the Comprehensive 
Employment Act (CETA) Title VI). This was followed by a list of 
recommendations . 

In a letter dated March 28, 1978, Ms. Elton wrote a re- 
sponse addressed to Supervisor Quentin L. Kopp, Chairman of the 
Finance Committee of the Board of Supervisors. In this response 
were numerous references to errors in the Bureau of the Budget 
Report, supported by new figures from an EDD study. 

The report closes thus: 

Concluding Statement 

MOET staff has worked very hard in setting up and de- 
veloping the Special Projects, and management within 
MOET wants to recognize that to be the case. It has 



been a difficult Job, and, since issuance of the BOB 
report, a thankless one. It is, further, management's 
position that we can learn from the BOB report, and 
should do so. 

We do not feel that the recommendations made by Mr. 
Rose at this time need be followed implicitly; some 
problems have been identified and are being resolved, 
but none that requires punitive action against more 
than a very small handful of subcontractors. Those 
few that cannot be brought to reasonable performance 
will be defunded. 

We would like to get on with the Job, preferably in 
conjunction with the work of the BOB monitors; we 
cannot afford to spend time engaging in hostility 
and name-calling. And surely the present adversary 
relationship must be ended, for the benefit of both 

If program changes are to be made, they must start at 
the policy-setting level; the new Manpower Planning 
Council will have its opportunity for in-put. 

Ms. Elton said that Mr. Rose's initial response to her 
letter stated that he continued to stand by his original find- 
ings and that the information was correct. 

On March 30, 1978, Mr. Rose, in a letter addressed to 
the members of the Board, listed corrections to his CETA Moni- 
toring Report. Mr. Rose stated, however, that the "report's 
conclusions and recommendations are not affected by these correc- 

Ms. Elton still maintains that the report, despite 
corrections, is not entirely valid. Therefore, she stands by her 
concluding statement, as noted above. 

Originally, the CETA Monitoring was intended to deter- 
mine whether MOET had mishandled CETA jobs for political patron- 
age, a violation of the Hatch Act. With this intent, MOET gave 
Mr. Rose 10 CETA personnel to conduct the monitoring. 

MOET, benefitting from the BOB report, now has its own 
monitoring staff. They use a 5 page checklist, which includes 
entries such as: separate bank accounts for CETA funds and Jobs 
filled by veterans. In addition to the staff, two accountants 
are assigned to assist in the monitoring. Quarterly reports are 
sent to the Department of Labor. 



MOET, as of June, 1978, will be using computers in all 
of its operations on a time-sharing basis. This should enhance 
its goal for up-to-date records, keeping and retrieval of neces- 
sary information for better administration. 

It must be noted that MOET is under political pressure 
not only from the Board but also from the federal level. 

Legislation signed by President Carter, funding more 
CETA Jobs for San Francisco, is part of his economic stimulus 

MOET has been under heavy pressure from the Department 
of Labor to hire more quickly. For example, between February 2nd 
and February 28th, 1978, MOET had to meet a quota of U36 persons, 
an increase of 10J, in order to meet the hiring schedule set 
forth by the department. This deadline was not met until March 
30, 1978. 

The result of this push to hire people quickly, within 
a given time period, is that other work falls by the wayside. 

We feel that Ms. Elton is a dedicated, extremely com- 
petent administrator who has been the victim of some unwarranted 

Recommendation ; 

If the desired new location of MOET at 1^53 Mission 
Street is not approved by the Board of Supervisors , MOET should 
persist in seeking approval. 


The purpose of the Controller is to financially plan, 
control and manage the City and County of San Francisco. 

The Controller's Office is under the direction of Mr. 
John C. Farrell, Controller, and his executive assistant Mr. 
Frank Byrne. Operating on a budget this year of $19, 258, M6, this 
office has a personnel compliment of 129 persons covering seven 
divisions. A breakdown of divisions and their staff are: 


CONTROLLER (continued) 




Accounting * Records 






General Office 








Payroll 25 6 

Legal 1 1 

The above figures were obtained through the budget 
division of the Controller on June 16, 1978. Part time employees 
for the most part are CETA, and a number of the permanent staff 
are working outside of the office in conjunction with FIRM 
(Financial Information and Management System). 

The General Office Division, under the management of 
Mr. Tom Nerney, handles dispersements and receipts. Mr. Nerney 
stated that two years ago this division had a very high turnover 
rate but in this fiscal year the rate is low. An approximate 
percentage of turnover is stated to be 20J. 

Turnover is generally the result of low salary. In 
this division, as in many others in the City, salary levels for 
clerical personnel as compared to equivalent positions in private 
industry are quite low. The decrease or increase in turnover is 
also relative to the economy and job availability. A low Job 
availability market seems to be the indicating factor for this 
department's reduction in turnover because the salary level is 
still quite low. 

The Grants Division, under the management of Mr. Bob 
Mast, now handles $600,000,000 in grants procured by the City 
through various departments. Grants, now a separate division, 
has enabled the combined Audits Division to eliminate its back- 

The Audits Division, under the ranagement of Mr. Jim 
Porter, conducts audits of several City departments as required 
by the City Charter or by the request of a department. Since the 
combination of the Utility and General Audits Divisions, this 
division has caught up with its backlog. This will enable the 
division to do more work on auditing non-profit corporations, re- 
volving funds and concessions. 


CONTROLLER (continued) 

Other functions of the Audits Division are: supplying 
information on impact on the budget of proposed charter amendments, 
insurance sohedules and gathering of information for bond state- 
ments . 

Relative to bond information and the issuance of an of- 
ficial statement of the City, we asked Mr. Parrell about San Fran- 
cisco's financial situation in reference to an article published 
by New West Magazine in its October 24, 1977 issue. The article 
was entitled, Bond Crisis for San Francisco ? Its Foreclosure Than 
You Think . Mr. Farrell said that many statements in the article 
were taken out of context and some Information used in the article 
was not current. In conclusion, he said the article was very mis- 
leading, i.e., the statement that San Francisco is closer to a 
financial crisis similar to New York City, is not correct. Mr. 
Farrell said that San Francisco, unlike New York City, does not 
borrow funds to finance its current operating expenditures and 
that San Francisco has a cash reserve of $32,600,000 for use 
until the property taxes and other revenues are received. If, 
for some reason, actual revenues do fall short of estimated rev- 
enues, Mr. Farrell reserves expenditures instead of asking the 
taxpayers for additional sums of money. He pointed out, because 
of these precautionary measures, the City runs on a balanced 

We were given the Official Statement of the City rela- 
ting to the $55»000,000 Sewer Revenue Bond. We were also given 
a municipal bond report by L. F. Rothschild, Unterberg, Towbin 
which states: "In view of the high quality of San Francisco's 
City Management, a good official statement and the important 
participation of the federal government in requiring and helping 
to finance the project, we suggest a very good bank quality in- 
vestment rating (A-l or A+) for the bonds despite this being a 
construction project." Moody and Poorfe gave this bond an A 

Also in relative importance to bond statement informa- 
tion is the City's implementation of FIRM (Financial Information 
and Resources Management System) . FIRM will greatly enhance the 
City's accounting systems, budgetary controls and resource allo- 
cations. Policies derived and set forth will be more rational. 
Improving the financial management of the City supports positive 
attitudes toward those considering investing in our bonds. 

At the moment this office and the other City financial 
departments, in both management and policy making, are going 
through the first steps of changing over to the FIRM System. The 
changeover is an overwhelming task requiring re-education and 
reorganization. As difficult as it may seem, the rewards will be 


CONTROLLER (continued) 

substantial. As outlined in the Mayor's Office Departmental 
Instructions of FIRM, the system is intended to: 

1. Substantially enhance the City's basic 
financial accounting capability. 

2. Provide a mechanism for results-oriented 
program/performance budgeting. 

3. Improve the budget administration process. 

** . Strengthen program management of the de- 
partmental level by providing an improved 
management information capability. 

5. Establish a more rational basis for re- 
source allocation and policy development. 

6. Facilitate public participation in the 
resource allocation process. 

Starting on July 1, 1978, all departments, with the ex- 
ception of Recreation and Park, will be preparing their time 
roll on a modified version of the existing payroll system (CAA). 
It has been modified to accommodate the FIRM coding structure. 

Judy Johnston, Senior Project Manager at EDP, said that 
the pilot department, Park and Recreation, will begin implementa- 
tion of the FIRM System with the new MSA (Management System 
America) payroll package. MSA has also been modified to accommo- 
date the FIRM coding structure, and to pass labor distribution 
information to FAMIS (Financial Accounting Management Informa- 
tion System) . This detail activity reporting will begin on July 
7, 1978, for the pilot department. All departments will be on 
dual implementation of payroll procedure which is unique to the 
FIRM project. 

Through the various steps of the MSA/FIRM, labor dis- 
tribution files from the modified CAA and MSA Systems will be 
merged and interfaced. The interface will then be passed to 
FAMIS both containing detail and summary records. 

Eventually all departments using the modified CAA pay- 
roll Bystem will convert over to the MSA System. The FIRM System, 
to be completed and fully operational in 1981, will probably add to 
EDP user frustrations. We hope that Mr. Farrell will avail him- 
self and his FIRM team In solving any problems that might even- 
tually build up and hold up the much needed system. 

The 1975-76 Grand Jury Report on the office of the 
Controller expressed a need for one Central Fiscal Office, and 


CONTROLLER (continued) 

not three as now exist. When asked about this situation Mr. 
Parrell stated that there were still three separate independent 
financial offices. He said that the Mayor's Budget Analyst and 
the Budget Analyst to the Board of Supervisors are financial 
policy makers and that the Controller's office is non-policy 
making. He expressed a feeling that the existing separation 
was an important and beneficial one. The Orand Jury's thoughts 
on this subject are expressed in the Introduction to these 
Grand Jury Reports . 

We wish to commend Mr. Farrell and staff on their well 
organized, smoothly run operation and their complete cooperation 
with the committee in our investigation of the department. 


The Electronic Data Processing Complex is located in 
City Hall and is headed by Mr. Henry Nanjo, Managing Director. 
Administration of EDP is the responsibility of the Controller, 
under whose office this department functions . Implementation of 
EDP's projects and functions, however, is the responsibility of 
the Chief Administrative Officer (CAO). 

The priorities of EDP projects, determination as to 
which projects should be undertaken and which ones should be set 
aside, are set by the Priority Committee, of which the CAO is 
chairman. On this committee are computer experts from private 
business contributing technical knowledge to the City members who 
are primarily interested in finance and accounting, i.e., Budget 
Analyst to the Mayor and Budget Analyst to the Board of Supervi- 

The computer system consists mainly of two IBM 158' 8 
back to back, handling a total of four million units of informa- 
tion. Due to the limited number of channels into the computer, 
EDP requested the purchase of an IBM 3033 which would provide 
more channels and more memory. The EDP Priority Committee turned 
down the request and instead leased two memory units capable of 
four million units of information. As a result, storage capacity 
has increased by four million units but the number of channels 
remain the same, therefore, the number of transactions that the 
computer can handle simultaneously remains the same. The cost of 
leasing the new memory system is $3,000 per month. 



The computer system services some 17 departments and 
runs at nearly 100J5 capacity . Use of the computer has more than 
doubled since 1973 » from some 300 Jobs to the present number of 

The high priority users of EDP are the Police and Fire 
Departments. The Police Department's CABLE system is operating 
21 hours a day providing access to information at a moment's 
notice. Following in priorities are departments in Public Finance, 
followed by Human Resources and finally departments in Physical 

The rate of services to the City are as follows: 

Teleprocessing 3l0 Terminals 

16,700 Transactions Daily 
21 hours a day 


Time Sharing Option 

650 Jobs daily 

21 hours a day 

22 users 

9 hours a day 

In addition to the current rate of service by the com- 
puter, a new burden will be placed on the computer's system. This 
burden is the comprehensive Financial Information and Resources 
Management (FIRM) system. The first phase will be implementation 
of the MSA payroll package to tie in with the FIRM project. The 
Recreation and Park Department will be the first department to 
change over to the MSA payroll package. This will take place on 
July 7, 1978, when the basic financial accounting and management 
information system becomes operational in the Controller's office. 

The FIRM system, when fully operational in 1981, will be 
a valuable tool in the budget process and in program management. 
Results of departmental activity will be quite detailed, therefore, 
policy and resource allocation will be handled on a more rational 
basis rather than political. 

The impact of the MSA/FIRM system on EDP will be tremen- 
dous. Taking into consideration prior commitments of EDP, an 
additional upgrading of the system is inevitable. 





(3.5 M Documents) 


(2.5 M Transactions) BASIC LABOR DIST 






($2 Billion project) PCS 




(2 M Documents) 








1977-78 1978-79 1979-80 
DAILY TRANSACTION TOTAL 46,700 68,800 116,700 
PEAK HR TRANSACTION TOTAL 5,600 8,250 11,004 




The increase of on-line or teleprocessing means a reduc- 
tion of "key stroking" as a separate operation for data entry. 
Problems occurring in this change to teleprocessing are: an in- 
crease in demand of immediate response and a higher level of up- 

The consequences of the future additional traffic could 
be an overload in the Bystem, incurring a delay of services and dis- 
ruption of departmental operations within the City. 

The problem that confronts EDP service capabilities are 
currently under study by the Priority Committee. One proposal by 
the Municipal Court is to install mini-computers and institute a 
decentralized method of handling traffic fine information. 

The use of mini-computers, according to Mr. Nanjo, is 
perfectly fine if the 'mini* meets the EDP requirements and 
standards. If consultation with EDP prior to purchasing a 'mini' 
does not occur, the action might prove wasteful. This is not un- 
usual considering the expertise of computer sales representatives 
in selling their product. 

•mini' is: 

The procedure used to determine the need to purchase a 

1. Requirement analysis by EDP staff (Extensive) 

2. Systems Design (cost analysis) 



3. Approval by EDP Priority Committee and budget process 

4 . Programming 

If a requirement analysis is not made by EDP, the move 
could be a waste of money, as noted in the report of Laguna Honda 

Mr. Nanjo purposely keeps the record systems separate 
for reasons of privacy. He is very strong in his conviction and 
arguments for keeping personal information in tight security. 
For one department to request personal information belonging to 
another department, is a definite "no-no". 

During our first visit to EDP Mr. Nanjo demonstrated the 
security of personal information function, private information 
of one department requested by another. Mr. Nanjo asked the com- 
puter for any outstanding warrants attached to one of the members 
of this Grand Jury. The computer answered to the effect that, 
he was not authorized to receive information requested. Mr. Nanjo 
stated that the following morning he would be asked why he had re- 
quested such Information. 

Until policy is legally established determining the re- 
lease of information, Mr. Nanjo will stand by his privacy conten- 
tion, with which we concur. Assistant Director Tom Gerughty has 
been given the responsibility of reviewing all pending legislation 
in this area. On the local level, he and City executives along 
with legislative officers have been formulating definite policy. 

EDP has been operating on a flat budget for three years 
of $8.3 million. In Fiscal Year 1978-79 it will again operate on 
the same amount of money. 

We have found Mr. Nanjo to be very competent and know- 
ledgeable in his Job as Managing Director of EDP. He is a valu- 
able source of information to departments in the City who are 
considering use of EDP systems. 

In conclusion, we hope that any presentation of Mr. 
Nanjo's ideas pertaining to EDP, are taken seriously, i.e., 
Recommendation to Increase Central Site Computer Capacity , 
December 1977. We also hope, that with the growing computer de- 
mands, EDP's budget will increase in order to meet the future 
scope of services. 

For a more detailed report on EDP, refer to the Evalua - 
tion Report on EDP conducted by Arthur Aschauer and Co., Inc., 
November 19, 1977. 



The Art Commission Is under the direction of Mr. Martin 
Snipper with Joan Ellison as Assistant Director and Secretary. 
All other staff are CETA employees. They number 130. 

The main responsibilities of the Art Commission are to 
bring the arts to the public through the annual arts festivals, 
the pops concerts, and the promotion of artistic expression 
through the Neighborhood Arts Programs and Community Cultural 
Centers . 

Other responsibilities include reviewing and approving 
(or disapproving) designs of new buildings, the licensing of 
street merchants, and the care and maintenance of public works of 

An ordinance allowing up to 2% of construction costs on 
new capital projects of the City and County for artistic embellish- 
ment, provided a mechanism for the purchase of art at the San 
Francisco General Hospital and will provide in excess of $1.7 
million for the purchase of art in the expansion of San Francisco 
International Airport. 

The Community Cultural Centers of the Neighborhood Arts 
Programs were created to reach out into the City's communities 
and organise all those interested in displaying their art, as well 
as those concerned with play production. The Neighborhood Arts 
Program is the first and most effective program of its type in 
the nation. 

There are Bix Community Cultural Centers, four of which 
are City owned. Those are: 

1. Western Addition 

2. South of Market Street 
South City Opera House 


The remaining two cultural centers are under lease. 
These are: 

1. Chinatown Cultural Center 

2. The Intersection in North Beach 

The cost of running these cultural centers 1b $500- 
$600 per month. 


ART COMMISSION (continued) 

The grant of $500,000 a year from Federal Revenue Shar- 
ing will come to an end on June 30, 1978. With this loss and the 
vulnerability of the Community Cultural Centers to budget cuts and 
the current rate of inflation, we share the concern of Mr. Snipper 
regarding the future of the centers . 

In the area of reviewing architectural design of public 
buildings, the concern of the Art Commission is blending of de- 
sign with the surrounding area. Upon receiving notification of a 
developer's plan to construct a public building, the Art Commission 
sends a three-step procedure form that must be completed in order 
to receive final approval. These steps are: 

1. A schematic drawing of the building 

2. Development plans (layout, primary working draw- 

3* Final working drawings 

If any of the three steps are not done, the architectural 
design proves not to be in compliance with the commission and con- 
struction plans are halted. A problem which may arise and is not 
covered by the three-step procedure is the possibility of an un- 
authorised design change after final approval. 

A problem has emerged in the licensing of street mer- 
chants. The license indicates the category of art to be sold but 
there is no follow-up to be sure this is adhered to. 

In summary, we hereby recommend: 

1. A fourth rule be added to the three-step procedure, 
i.e., no changes in design will be permitted after final approval 
by the Art Commission. If the rule is violated we recommend that 
a penalty be imposed. 

2. One permanent full-time employee to handle licens- 
ing of street merchants. 

Joseph McKinley, Jr. 
Lucinda Romaneck 

Ronald Rub la, Chairman 



In March, 1976, after extensive community 
participation, the Board of Education adopted a plan for 
improving the San Francisco Public Schools. 

School Superintendent, Dr. Robert Alloto, this year, 
proposed an Educational Redesign for the City's public educa- 
tion system and It Is scheduled to be Implemented this 

The Educational Redesign Is: 

Elementary Schools : K-5 grades 

Middle Schools: 6-8 grades 

High Schools : 9-12 grades 

The Initial Implementation of many of the recommen- 
dations contained in the Redesign has resulted In some 
dramatic progress in the area of reading achievement at the 
primary level. 

The public schools have had a decrease of 
approximately 30,000 students in the past decade. Projections 
indicate this decline will continue. The present school 
population is 66,000. 

The Redesign callB for the closing of certain 
sohools and the merging of others with students being reassign- 
ed to other buildings . Some of these buildings will be used 
for other educational purposes, i.e., magnet centers and 
alternative schools. 

One such program utilizes Oalileo High School for 
the enrollment of 350 students and will use an extended day. 
The school will be in the new commerce center and major 
industry in San Francisco will be involved in its development. 

As a result of this Redesign 11,000 students and 
hundreds of staff will be reassigned. Busing will be reduced 
by approximately 50$. 

The Redesign represents an effort to provide the 
City's students with an education that will prepare them for 
higher education and future employment. It will mean a return 
to a strong emphasis on the basic skills of reading, writing 
and mathematics; it will signify the end of social promotions 
and meaningless diplomas. 



This plan will save the district, in a five year 
projection, $7.6 million: in buildings closed ($5.6 million), 
reduced busing ($1.6 million) and rental costs ($ .4 million). 
Coupled with this is the income that will be received from 
building leases and rental ($3.5 million). The cost of 
implementation will be $2.7 million and the net savings will 
be $8.1 million. 

Dr. Allot o stated that every effort will be made to 
have a smooth transition into the Redesign especially in the 
area of the relocation of students and teachers, curriculum 
changes and the prompt delivery of textbooks. 

On the subject of violence, there have been two 
students slain this year and assaults on teachers have 
increased. Each of the seven high schools has an assigned 
City policeman. This has reduced these acts of violence. 

The schools* vandalism repair bill last year was 
$1.4 million - $1.2 million of it due to arson. Broken 
windows cost $200,000. 

The budget for 1977-78 was $194 million. In 1977-78, 
there were 22 fewer administrators (-W) and 157 less .teachers 
(-4*) with an enrollment decrease of 2,700 (-H) . 

Dr. Alioto has had a difficult and controversial 
year; there has been and will be a certain amount of problems 
in the implementation of the Educational Redesign with some 
of the students and staff. We feel that in the long run it 
will greatly improve the quality of education for the majority 
of the students of San Francisco. Dr. Alioto has received 
excellent support from the Board of Education and he has 
shown remarkable skill under difficult circumstances in 
implementing the change and he deserves assistance in his 
endeavors . 


The San Francisco Community College District provides 
for the continuing education of all adults, 18 years and older. 
There are two separate systems to facilitate their educational 
goals: City College and the Community College Centers. 

City College, under the presidency of Dr. Kenneth S. 
Washington, offers the first two years of college work, tuition 



free, to students who wish to continue with a four year college 
education. Over 25,000 students attend City College both day 
and night. It also offers 45 courses in occupational educa- 
tion, most of which lead to an Associate degree and Job 
opportunities at the end of two years. Forty percent of the 
students are in vocational classes. Thirty-three percent of 
the students are in night school, which now provides a 
counselor and a nurse. The majority of the students come to 
school during the hours of 9 A.M. to 1 P.M. To better utilize 
the classrooms, the school offers a matinee course for people 
over 50 years of age (not especially senior citizens) who would 
come to class at 2 P.M., 3 P.M., or 4 P.M. At present, there 
are 200 students. 

There is also a weekend college where a student can 
earn one unit by taking three hours of instruction on a 
Friday evening and three hours on the following Saturday morn- 
ing for three weekends . 

We were Impressed with two particular services, among 
others, offered: The Enabler Program and The Extended Opportu- 
nity Program. The Enabler Program extends free services to 
students with physical limitations, some of which are 1) gen- 
eral medical conditions, such as post-surgery, asthma,, heart 
condition, cancer and diabetics; 2) sensory impairments, such 
sb blindness and deafness; 3) mobility impairments, such as 
post-polio, paralysis, cerebral palsy, amputation, neurological 
damage; and 4) emergency and temporary physical conditions. 
Services to these people include: registration priority 
ticketB (early enrollment), elevator keys, lockers, shuttle 
vans (pick up and delivery anywhere on campus, or to MUNI and 
BART stops, and in emergencies, home pick upb), medical park- 
ing permits (closer to classrooms), notetakers (for those with 
partial use of their upper limbs) advocacy (for students who 
suspect discrimination on a basiB of being handicapped), 
resource library (magazines dealing with issues affecting the 
handicapped which are available on loan), referral (to other 
services on and off campus) and wheelchair accessibility. 

The Extended Opportunity Program is a State funded 
program geared mainly toward low-income or minority students , 
unemployed or unemployable. Usually, Vietnam veterans and 
those exoluded from college are involved. Those whose adjusted 
income is $7,500 or less for a family of four qualify and are 
provided concentrated counseling, peer advising and tutoring. 

The most popular programs and, therefore impacted, 
are the Airplane Mechanics, Hotel and Restaurant and Nursing 



There is a need for space which will be alleviated 
by the new downtown eight-storied campus at 4th and Mission 
Streets and the rental of space in the old Sears building at 
Army and Mission Streets. However, the library at City College 
was built to accomodate 3,000 day students. There are now 

The Community College Centers, under Dr. Calvin 
Dellefield, offer over 200 courses to 55,000 adults through 
their seven centers. There are a variety of classes available. 
Teaching English as a second language (ESL) is an important 
facet of the centers. Special classes are offered for the 
handicapped, senior citizens and persons seeking an elementary 
or high BChool diploma. 

The San Francisco Community College District should 
be proud of its operations. Mr. Herbert Sussman, Chancellor, 
and the Board of Directors, with Peter Finnegan as Chairman, 
have consistently done an outstanding Job with adult education 
in San Francisco. 

Helen I. Abbett 

Michael J. O'Brien, Chairman 



Ranking sixth in the world for passengers and fourth 
for freight, the San Francisco International Airport is big 
business. The estimated passenger traffic for this year is 
20,300,000, with an increase to 31,000,000 by the year 1990. 
The San Francisco — Los Angeles flight is number one in the 
world in inter-city volume. Over twenty airlines use the Air- 
port, and average 950 flights daily. 

Needless to say, this operation has a beneficial 
effect on the economy of San Francisco and the Bay Area. About 
30,000 people are employed by the airlines, including 11,000 
at the United Air Lines maintenance shop. There are nearly 600 
employed by the City at the Airport. The total economic Impact 
is estimated at nearly 2 1/2 billion dollars a year. 

The new North Terminal and Parking Garage is sched- 
uled for completion this autumn, with Phase 2 programmed for 
completion in 1982. Phase 2 consists of the industrial waste 
disposal plant, boarding piers, revamping older buildings, and 
the people mover system. This will be financed by the $90 
million bond issue which was approved in the November 1977 
election (Proposition C) . 

By Charter provision, the Airport is run on a break- 
even basis, the using airlines being charged only enough to 
offset operating costs after all non-airline revenues, such as 
concessions, have been estimated. Because of this, the fees 
have been among the lowest in the nation. Even with increased 
fees which will be necessary to repay the new bond issue, the 
rates will compare favorably with those of other major air- 

During the past six years, the Airport has repaid to 
the General Fund $18,000,000 of the $24,388,104 which was the 
original cost of the Airport. 

Excellent leadership is provided by the Director of 
Airports, Richard R. Heath, and his immediate staff. The 
orientation which the Jury received was well organized and 
complete. With the completion of the new North Terminal and 
Phase 2, San Francisco should take pride in its Airport, and 
the manner in which it is operated. 



The Emergency Services is the agency responsible for 
developing the emergency preparedness plan which would be used 
in the event of a wide range of possible disasters. It coor- 
dinates this plan with other County, State and Federal agencies. 
It also instructs officials who would participate in the plan, 
and the general public. 

The emergency plans are in a continual process of 
review, and have been fully approved by State and Federal gov- 
ernments. The operating cost for this fiscal year is estimated 
at $255,672, of which $121,000 is provided by State and Federal 

The Director, Mr. Edward Joyce, is highly qualified 
by background, experience, and personality to provide good 
leadership to these important Services. 

For many years, the Emergency Services has recommended 
the construction of an underground Emergency Coordination Cen- 
ter, atop Twin Peaks, to provide for an ultimate disaster. This 
location is selected because it would provide, among other rea- 
sons, optimum radio communication. This construction would cost 
over $3,000,000, plus a $50,000 preliminary study, plus an unes- 
timated annual operating cost. 

The Emergency Services presently has excellent office 
and garage space at 6221 Geary Boulevard at an annual rental of 
about $17,000. The Emergency Services is scheduled to move its 
offices to 8l4 Mission Street at the end of June. 

This jury was favorably impressed with the operation 
of the Emergency Services, and its present location. It would, 
therefore, assign only a low priority to the proposed construc- 
tion at Twin Peaks, in view of the many existing alternative 
sites, and the fact that adequate emergency communication is 
already available by augmentation from the many radio systems 
in the City. 



Chief Andrew C. Casper and his staff are providing 
good leadership to this important Department. Through em- 
phasis on Fire Service Education in the schools, and a Home 
Fire Safety Survey to increase public awareness in fire preven- 
tion, there has been a significant decrease in fires. The 
latest Annual Report of the Fire Department lists the following 
encouraging statistics for 1976-77: 

Total Fires 



False Alarms 



Civilian Fire Deaths 



Firefighter Injuries 



Lost Work Days, Injuries 



Vehicle Accidents 


Assistant Chief John Sherratt, who heads the Public 
Education Program, reports that total fires are down another 
10* this fiscal year, and the Department has a goal of reduc- 
ing the total number of fires 50* in 5 years. 

Arson is a crime which calls for action by the Mayor 
and Board of Supervisors. Although legally a felony (clas- 
sified as part 2, and not reported in the Uniform Crime Statis- 
tics), it too often becomes homicide if lives are lost in the 
fire. Last year, San Francisco had 545 arson fires, an increase 
of 800* in the last 15 years. Our arrest rate is 6*, our convic- 
tion rate, 3*. Sentences are often as little as 2 years. Many 
convicted arsonists serve only 5 months, some receive suspended 
sentences. We urge the Mayor and the Supervisors to allocate 
more manpower and equipment to combat the increase in arson 
fires, and to seek state and federal legislation to increase 
the penalty for arson. 

Firemen may retire at age 50 with 25 years of service. 
For each dollar paid in salary, the City also contributes $.71 
toward their retirement. Retirements usually average about 
2 per week, but there have been 50 in May and June due mainly to 
Proposition 13. About 33* go out on disability retirement. Chief 
Casper hopes to reduce this high rate with a physical fitness 
program, which should maintain the men in better physical shape. 

As this report is written, the effect of Proposition 13 
on the Fire Department's budget is unknown. The budget for 1978- 
79 is $70,477,830, including $6,000,000 for anticipated salary 
increases. The employment level is 1,686. The Mayor and 
Supervisors are reluctant to make any cut; however, this Grand 


FIRE DEPARTMENT (continued) 

JUry believes some cut should be made, perhaps 10$. It is 
reasonable to expect some savings are possible in a budget 
of this size, and a work force of this number. With a 10$ 
cut, our Fire Department would still have a much larger budget 
than most cities of similar size in the United States. 

With good reason, San Franciscans have long been 
proud of their Fire Department. It has been traditional for 
the firemen to respond promptly and bravely to fires and 
other emergencies often far outside their range of duty. 
This Jury has seen many letters of gratitude indicating aid 
and comfort generously given in time of need. We have every 
reason to expect that this tradition of excellence will 
continue despite the possibility of a reduced budget. 

Howard Ross 
Ronald Rubia 

Gordon A. Caswell, Chairman 



The Police Department , under the leadership of Chief 
Charles Gain, has been In the news many times this year. Law- 
suits filed by the police unions (Officers For Justice and 
Police Officers Association) are coming to a climax. The 
Decoy Program instituted this past year, has received a great 
deal of praise and criticism by the public, as has the Golden 
Dragon Incident. 

The rate of serious crime, with the exception of 
rape and robbery (up 29* and 3% respectively), has decreased 
in the past year. We feel that this is in part due to the use 
of the decoy system. At the outset of our investigation we 
did view the program with some skepticism. The biggest 
criticism of the system is entrapment. However, after being 
presented with the fact that 91* of the arrests were re-arrests, 
and a full explanation of the system, it is our opinion that 
entrapment is not a valid issue. 

It has been said by some officers that middle and 
upper level management personnel have been very lax (a news- 
paper article referred to it as Endemic Racism) in their 
responsibility to encourage officers to be fair and discourage 
cultural harassment of citizens. 

Charges of blatant racism in the department, among 
the ranks, have also been made. There are many incidents to 
back up these charges. Suits have been filed in the past 
charging promotional discrimination, failure to recruit 
minorities, and denial of equal opportunities. There also has 
been cruel personal harassment of some minority officers. We 
are not accusing the entire department of racist activity, but 
we do feel that a more thorough investigation should be under- 
taken by Internal Affairs to apprehend the perpetrators of 
the actions. 

Perhaps the low number of minority sergeants is 
partially responsible for the racial friction in the department. 
Out of 166 permanent sergeant positions, 158 are filled by 
White officers, 5 by Spanish-surnamed officers, and 3 by 
Black officers. 

There have also been complaints from the Chinese 
American community about representation. The Chinese For 
Affirmative Action (CAA) filed complaints last Fall when, 
after the Golden Dragon incident, police officials accused 
the Chinese community of not giving assistance in their 
investigation. The CAA claimed that part of the problem was 



due to the fact that of more than 1600 officers on the force 
only 14 or 3/ 1 * of II were Chinese. 

The complaint spurred an investigation by the Law 
Enforcement Assistance Administration, which subsequently made 
an agreement with the San Francisco Police Department, to 
provide more adequate protection in the Chinese-American 
community. Since that time the number of Chinese-American 
officers has risen to 23. 

The Crime Lab, criticized in recent reports, has 
improved its space problem somewhat by storing some evidence 
in another location. The Lab also acquired an office on a 
separate floor and in January three persons were assigned to 
full time fingerprinting analysis. This has doubled the 
normal output of information. 

The physical space limitations of the Lab are still 
serious. We forsee the problem becoming acute with the 
addition of 20 personnel as Field Evidence Technicians in the 
near future. 

The emergency 911 phone number is yet to get off the 
ground. The law says that it does not have to be put into 
effect until there are sufficient funds. At this time a 1/2$ 
tax on telephone bills is the only revenue for the project. 

We would, in closing, like to commend the Police 
Department for solving the Golden Dragon massacre and their 
overall fine protection of the City. We would like to indicate 
that it is our belief that only a small minority of officers 
are responsible for the harassment of certain groups and also 
the poor leadership referred to above. It is with this thought 
in mind that we express appreciation to the many officers who 
go forth to protect us each day, leaving their individual 
prejudices and egos at home. 

Thomas J. Cook 
Jane F. Reeve 

Joseph McKinley, Chairman 



The Municipal Railway, which has been plagued with 
numerous problems over the years, appears to have made consider- 
able progress toward Improving the transit system. The first 
complete survey of the MUNI system was released in 1977, re- 
flecting major changes in all aspects of its operations. The 
POM (Planning Operations and Marketing study, conducted by Wilbur 
Smith and Associates) had been going on since late 197 ^ and is 
currently under review by the City Public Utilities Commission. 
Also established was the creation of a permanent Planning Divi- 
sion within the MUNI and the completion of the MUNI 5-year plan 
for transit development. 

Fundamental to the POM study is a complete restructur- 
ing of the present transit lines away from the "radial-downtown" 
existing format to a "grid-city wide" operation. This would 
facilitate the possibility of one-transfer riding between points 
in the City. Although the plan recommends a cut of 32 mid-day 
routes, it has projected an increase of 53*000 daily passengers 
at increased revenues of $2 million. The transit line proposals 
by the POM study concur with the MUNI's Planning Department's ob- 
jective to increase service on trips within the City where the 
destination is not downtown. Although the major part of the tran- 
sit market is for downtown commuting, there is a large portion of 
trips within the City which would benefit the citizens and pro- 
vide additional revenues. The total cost of the capital improve- 
ments recommended is $237.7 million, of which $8.64 million would 
come from the City's General Fund, with the remaining costs borne 
by state and federal agencies . Of the total amount of these cap- 
ital improvement recommendations, $15b.3 million represents work 
already taking place. 

MUNI has been active in presenting public meetings to 
neighborhood and special interest groups on the proposed schedule 
changes. Although the Grand Jury backs this action, it also pre- 
sents what has been an ongoing problem to MUNI with respect to 
scheduling changes. Public hearings, a vote of the PUC, and con- 
currence of the Board of Supervisors is needed for every schedule 
change. We support MUNI in changing this requirement especially 
in view of the route changes as proposed in the POM study. 

The question of another fare hike has been the subject 
of much discussion with numerous solutions having been presented. 
The POM study noted that MUNI operating costs were 68* higher for 
fiscal year 1975-76 than for fiscal year 1969-70. During the 
same period, passenger revenues decreased 3% , producing a 163$ 
increase in non-fare box subsidies. The operating cost increases 
were not caused by increases in service but rather from salary 



increases, and the higher costs of fuel, parts, etc. The Metro- 
politan Transportation Commission (MTC) is expected to contribute 
$7 million to MUNI in the coming year. Under MTC policy, however, 
MUNI must meet 33$ of its costs through fare-box revenues or not 
qualify for the funding. Presently, MUNI fare-box revenues ac- 
count for only 27$ of its costs. 

With the passage of Proposition 13, the ad valorem 
funding to MUNI will be reduced by 20# to 40#. This will make 
a fare increase imperative. 

One of the problems facing MUNI has been the security 
of passengers and operators on the vehicles. Recently the PUC 
approved $1.7 million to equip the City's buses with ultra-high 
frequency radios and silent alarms to instantly notify MUNI 
Central Control when a driver is in trouble. All 3^5 Flyer 
electric trolley coaches and the 100 A.M. General diesel coaches 
will be equipped with radios. The system (including the con- 
struction of transmitter stations) is expected to take one year 
to install. The past Grand Jury had reported that such a system 
in use in three major cities had reduced transit related crime by 
85$ to 95$. The installation of the equipment should also im- 
prove poor driver morale and attitude. 

We found the General Manager, Mr. Curtis E. Green, Sr., 
and his staff optimistic about the task of correcting the prob- 
lems of the MUNI. With the support of the Mayor and the Board of 
Supervisors, the MUNI can strive to achieve the planned goals and 
improvements necessary. With the loss of a large portion of ad 
valorem revenues, MUNI will be facing financial difficulties dur- 
ing the next year. 


The Water Department received much publicity during the 
year following the release of the Bureau of the Budget's critical 
review of its operation. The department has rebutted at some 
length the audit's statements and recommendations and it is clear 
that in some cases the auditors did not have full understanding 
of the issues and in other cases overstated potential savings or 
increased revenues. This is not to say, however, that the audit 
did not disclose several important areas that the Water Depart- 
ment could improve upon. 



One of the areas under current examination by the de- 
partment and the Public Utilities Commission (PUC) is its land 
management operations. While much of the leasable land owned by 
the department is restricted by federal easement to development, 
a more uniform program of review of existing leases is needed to 
insure maximum dollar return. Specific reference to the Peninsula 
Division's property on El Camino Real in Millbrae was highlighted 
as an example by the auditors of a situation where the land was 
not being managed to full potential. 

The department has been considering bank processing of 
the water bills for several years. Under the best proposal re- 
ceived, the department has determined a total net cost benefit of 
approximately $58,000. While this figure may be considerably 
under the auditor's disclosure of lost revenue and savings, im- 
plementation of such a system should be pursued as quickly as 

During the year, the Water Department received approval 
from the PUC for a flat water rate of 37 cents per water unit of 
100 cubic feet. This reverses prior policy of allowing large con- 
sumers to pay less than smaller consumers. Bills for hotels and 
apartment complexes are likely to rise 30% to ^0%. The flat rate 
will mean a smaller water bill for about 95* of San Francisco 
residents. The flat rate does not affect suburban customers in 
San Mateo, Santa Clara, and Alameda Counties who have received a 
court injunction preventing the department from charging the high- 
er rates. 

One of the areas of continual concern has been the re- 
placement of water mains. While the Distribution Division has 
Just about completed work on its program of reconstruction and 
replacement of service connections from the mains to and in- 
cluding the meters, the 1200 miles of mains are still not being 
replaced at a reasonable rate. Many of the mains are over 100 
years old. While we recognize the fiscal restraints being placed 
on the City, this type of "deferred maintenance" can only lead to 
false economy when the frequency of main breaks increases. 


The Hetch Hetchy Water and Power Department operates 
the three main water storage reservoirs and three hydroelectric 
generating stations on the Tuolumne River basin on the western 



8 lope of the Sierra. The department is responsible for the oper- 
ation and maintenance of the 116 miles of water tunnels and pipe- 
lines carrying the water to the Crystal Springs Reservoir (under 
the Water Department) in the Coast Range in San Mateo County. 

Hetch Hetchy, through the Transit Power Division, is re- 
sponsible for the Overhead Lines and Motive Power sections of the 
Municipal Railway. Included in Hetch Hetchy is the Bureau of 
Light, Heat and Power which administers contracts for furnishing 
electric, gas and steam services to municipal departments. The 
Bureau also administers contracts for furnishing street lighting 
services and for operation and maintenance of City-owned street 
lighting. The Bureau is financed by payments from municipal de- 
partments and from gas tax funds . 

Hetch Hetchy water and power revenues have not only 
been sufficient to cover the department's operating costs, 
capital improvements and bond interest and redemption, including 
those of the Transit Power Division, but have also contributed 
significantly to the support of other City departments and the 
General Fund. 

The figures representing the contribution to the City 
welfare for the prior three years are as follows : 

1974-75 1975-76 1976-77 

Support to MUNI $3,063,125 $4,147,083 $3,688,878 

Discounted Power 3,300,000 3,200,000 4,000,000 

Interest on Utility Funds 1,516,562 716,849 494,764 

Surplus transferred to 

General Fund 1,000,000 5,150,000 2,500,000 

The Hetch Hetchy Water and Power Department is currently 
involved in litigation with both the San Francisco Airport and the 
Turlock - Modesto Irrigation Districts concerning its power sales. 

As a result of a recent court decision, Public Utili- 
ties Commission charges to the Airport for power will be estab- 
lished at June 1975 levels on a temporary basis pending appeal. 
This decision has had serious effects on the capital improvement 
requests in the department's 1978-79 budget and in expected 
revenues to be transferred to the General Fund. 

The dispute with the Turlock-Modesto Irrigation Dis- 
tricts resulted when the City, in an effort to increase revenue 



from power sales, tried to exercise its contract option to with- 
draw Hetch Hetchy power to the Districts and replaced it with 
purchased PG&E power (at the higher PG&E rates). By doing this, 
Hetch Hetchy power could then be resold at the higher PG&E rates 
to assigned customers bringing in significant additional revenues, 
The Irrigation Districts, however, filed suit in Federal District 
Court in Sacramento and received an injunction stopping San Fran- 
cisco from selling power at rates other than those approved by 
the Secretary of the Interior. The Secretary of the Interior 
has contended that Hetch Hetchy power is intended by the Raker 
Act to be sold at cost plus a small rate of return, not at the 
prevailing market, or in this case, PG&E rates. 

The City Attorney's office has informed us that the 
Airport and the Irrigation District's appeals have been combined 
into a single action. We recommend that all possible concentra- 
tion and efforts of that office be directed toward a favorable 
decision since significant revenues stand to be gained or lost. 

Lucinda M. Romaneck 

James K. Broderick, Chairman 



Ttte Department of City Planning under the direction 
of Mr. Rai Okamoto has run smoothly and efficiently during 
the 1977-78 fiscal year. The department seemed to be adequately 
staffed. No mention was made of any severe staff shortages; 
there was no apparent wide scale morale problem; nor were there 
any glaring problems that require immediate attention. 


The Recreation and Park Department provides a great 
diversity of recreational facilities available to people living 
and visiting in San Francisco. This department provides a wide 
range of services. The Recreation and Park Department is 
responsible for fulfilling the many policies presented in The 
Plan for Recreation and Open Space. This department not only 
has to maintain the existing park and recreation areas under 
its Jurisdiction, it must also make plans to acquire parks for 
areas that may be lacking the necessary open space required by 
the master plan. One example of the enactment of this policy 
has been the acquisition of several hilltops in the City to 
preserve the feeling of open space and the geographical contour 
of the City. Other examples of good planning are the new parks 
in the Hunters Point area, the award winning renovation of the 
Children's Park located in Golden Gate Park, the miniparks that 
have added much needed open space in many of the City's most 
congested areas, and the several large natural style exhibit 
areas that are under construction at the San Francisco Zoo. 

At the present time a new master plan for the future 
uses of Golden Gate Park is near completion. Public input was 
invited for this project through a series of public hearings. 
The new plan will reflect the residents' ideas for use of 
Golden Gate Park. 

In order to combat the problem of deferred mainten- 
ance, the Recreation and Park Department has put most of its 
180 CETA and 60 Title II employees to work in the areas that 
suffered from lack of maintenance. This is helping to restore 
many of the rundown areas in the various parks . The Recreation 
and Park Department should continue to combat this deferred 

In spite of the many achievements of the Recreation 



and Park Department, there are still a few areas that need 
critical attention. Top priority should be given to plans to 
establish a park In the highly populated Chinatown area. The 
Inner Mission district also lacks adequate recreational areas 
and facilities. The field at Candlestick Park has to be 
replaced as soon as possible. 

At the present time no one is quite sure what effects 
the passage of Proposition 13 may have on the Recreation and 
Park Department. We were Informed by the Assistant Director, 
Mr. Mallory, that the department Is determined to give the 
best service possible despite potential cuts by maximizing 
the Internal cuts rather that the external cuts. This public- 
spirited attitude Is commendable. 


The Parking Authority is one of San Francisco's few 
financially self supporting departments. Including the 
director Margaret L. Brady, the Parking Authority has a staff 
of 3 full-time employees which is apparently enough to run this 
department efficiently. 

The main purpose of the Parking Authority is to 
provide adequate parking for motor vehicles particularly in 
the congested commercial areas of both downtown San Francisco 
and in the outlying districts. The revenues collected by the 
Parking Authority for the off-street parking fund can only be 
used to alleviate parking problems. Thus, there is no risk of 
losing these special funds for parking developments to the 
general fund of the City. 

In the downtown area the Parking Authority has 
structured the rates in the City-owned parking garages to 
encourage the short term user and to discourage commuter park- 
ing. This policy can fulfill two goals: (1) providing for 
the short term parker will stimulate the economy by insuring 
the shopper a place to park, (2) the commuter may turn to 
public transit as an alternative. 

No glaring problems seem to exist in this department. 
The passage of Proposition 13 will probably not have much of 
an effect on the Parking Authority. 

James K. Broderick 

Margarita V. Tallerico 

Thomas J. Cook, Chairman 



Despite the completion of an ultra-modern building at 
170 Otis Street at a cost In excess of $8,500,000.00, the 
Department of Social Services will still be unable to offer the 
City's population a "one stop" service operation. The depart- 
ment operations are too vast to house in one structure, and will 
still be spread out over a wide area. Previously housed in 
five locations, the new Social Service complex will offer a 
wide field of services from four locations. The new structure 
at 170 Otis will house the administrative and accounting offices, 
and handle Aid to Families with Dependent Children, General 
Assistance cases, and Child Welfare. Medi-Cal and some General 
Assistance will be available at 150 Otis Street, Adult services 
at 1686 Mission Street, and Food Stamp service at 1360 Mission 
Streets. Despite the fact that considerable planning went into 
setting up access routes for handicapped persons, apparently no 
concern was given to the citizens that have to cross the street 
from 150 Otis to 1680 Mission Street. Consideration should be 
given to providing a crosswalk with controlled signal lights 
to assist those citizens or City workers who have to conduct 
business within both structures. 

Under the very capable leadership of Edwin S. 
Sarsfleld, General Manager, the department has undergone a 
series of structural and operational changes, which have in- 
troduced many new concepts, and a more effective delivery of 
services to the City's population. Mr. Sarsfleld should be 
commended for the positive results which have been achieved in 
the AFDC program, the drastic reduction in the error rate, and 
the savings of millions of dollars in undue claims. The in- 
troduction of the "team concept" in child welfare cases, and 
the creation of the Family Reunification Unit, clearly evidence 
the department's approach to reducing potential caseloads through 
preventive measures, and assuring that payments are awarded to 
those that truly need assistance. The introduction of the "on 
the job training" program leading to a master's degree in 
psychology, and related subjects, can only result in developing 
skilled specialists in tune with the varied problems, a keener 
understanding of the caseload, and a more efficient delivery of 

Recommendation : 

That a crosswalk with controlled signal lights be . 
installed on Otis street between 150 Otis and 1680 Mission 



The purpose of the Human Rights Commission Is to 
promote the rights of every citizen for equal economic, polit- 
ical, and educational opportunity; for equal accommodations in 
all business establishments in the City; for equal service and 
protection by all public agencies; and eliminate prejudice and 
discrimination because of race, religion, age, sex, or sexual 
preference. The commission, which was created in 1964, handled 
over 844 rights complaints last year in areas involving employ- 
ment, housing, education, and a new element, namely the problems 
of the gay community. There were over 73 documented gay -oriented 
complaints, and for the first time, the commission established 
a Gay Advisory Committee. There is also a gay representative 
on each of the standing committees. 

Under the capable direction of director Grant Mickens, 
the commission has been developing programs and creative approach- 
es to achieving maximum impact to getting public jobs and con- 
tracts for minorities. Minority outreach programs have achieved 
worthwhile success because of the commission's continued efforts 
to strengthen community and neighborhood imput. This is evidenc- 
ed by the continued delivery of health case service to many low 
income families. The commission implements and monitors an 
affirmative action program for the City. Because of this program 
minority balance is maintained in government procurement, and 
awarding of job contracts. 

The Commission is made up of 15 commissioners, who 
represent a broad cross-section of city groups, namely, employer, 
labor, religious, racial, ethnic, gay, etc. In San Francisco 
where minorities are nearly a majority of the population, the 
Human Rights commission presents a well defined representative 
group reaching out for maximum impact. 


Since its creation in 1972, the Commission on the Aging 
has made substantial progress in its' programs of providing 
service and assistance to the elderly citizen. A keen aware- 
ness of the problems of the senior citizens caused the commis- 
sion to introduce its 1 most successful program to date, that 
is, the "walk-in information center, and referral service". As 
a result of this program, information vital to the needs of the 
elderly is disseminated to all areas of the City. Information 



on the many senior citizen centers, active programs, nutrition 
centers, etc., is readily available. A senior citizen informa- 
tion telephone service is also provided on a 24 hour basis. 
This telephone service enables senior citizens to have access 
to many programs and activities previously unknown to them. It 
also provides the elderly with one central number to call for 
a wide range of health issues, housing assistance, and permits 
better utilization of existing services. The commission also 
arranges for seminars and workshops targeted towards helping 
senior citizens to help themselves, and also provides for pos- 
sible job opportunities. 

An amendment to the original ordinance is under study, 
which proposes to abolish the existing Commission on the Aging, 
and establish a Senior Citizen Affairs Authority, with a Senior 
Citizen Advisory Council. The proposed S.C.A.A. would consist 
of seven members appointed by the Mayor, with the advice and 
consent of the Board of Supervisors. Pour of these members 
must be 55 years of age at the time of their appointments, and 
must have demonstrated knowledge of the problems and needs of 
the elderly. 

The Senior Citizen Advisory Council shall consist of 
twenty-two members, eleven of whom shall be appointed by the 
Board of Supervisors, and eleven of whom shall be elected. All 
twenty -two must be at least fifty-five years old. The balance 
of the council will be the same ex-officio members as specified 
in the original ordinance. All members of the council shall 
serve without compensation. 

The programs of the commission are administered by 
the Area agency which has been temporarily headed by Mr. Larry 
Simi. A new executive director, Mr. Glenn McKibbin, has been 
appointed, and will take office in July. Mr. McKibbin is a 
former professor at Syracuse University. We congratulate Mr. 
McKibbin on his appointment, and encourage him to exert a 
determined willingness to fight for the rights of the elderly. 


The commission was created in 1976 with an original 
staff of two permanent employees, and three CETA employees, 
working with a $66,000 budget. Today they have two permanent, 
and nine CETA employees, with an Operational budget of $82,000. 
The commission has eight standing committees, some of which are 



sub-divided into task forces. These committees dedicated to 
the pursual of the rights of women, are working in the areas 
of criminal justice, education, employment, health and child 
care, housing, legislation, media and public information, and 
varied special projects. All of these committees are made up 
mostly of volunteer women citizens, dedicated to establishing 
the rights and equality of women. A new task force was recent- 
ly established to pursue minority outreach, targeting in on 
Third World lesbians, disabled, and elderly women. 

The commission, under the very capable direction of 
Mrs. Susan Heller, is now involved in trying to disseminate 
information about the commission activities in as many lan- 
guages as possible in order to reach non-English speaking 

The work of the commission has become so involved and 
diversified, that the only two permanent employees cannot handle 
all the varied aspects involved. The addition of two more per- 
manent employees would enable the commission to expand its 
activities, and present a more experienced approach in address- 
ing the needs of the woman citizen. 

The building which now houses the commission, is owned 
by HEW and is being turned over to the New College of Law. As 
a consequence the commission is looking desperately for a new 
home. The commission is interested in renting property within 
a four block radius of City Hall, so they can easily appear 
for hearings, establishe better communications with other City 
departments, and facilitate mail pick-up. The quarters must 
also be in an area which affords a fair degree of safety to the 

Recommendations ; 

1. That two permanent employees, be added to the 
staff to enable the commission to pursue their activities with 
experience and expertise. 

2. That suitable quarters be established for the 
commission which adequately suit their needs. 

Jane Reeves 
Robert Smith 

Edward Sosa, Chairman 



The Chief Administrative Officer (CAO) is appointed 
by the Mayor and is subject to confirmation and approval by 
the Board of Supervisors. Mr. Roger Boas was appointed during 
the 1976-77 fiscal year and his term runs for 10 years. The 
CAO is responsible to the Mayor and the Board of Supervisors 
for the administration of all affairs of the City and County 
of San Francisco that are placed under his Jurisdiction: 

Department of Public Works 
Department of Public Health 
Department of Electricity 
Department of Finance and Records 
Office of the Coroner 
Purchasing Department 
Real Estate Department 
California Academy of Sciences 

As can be seen from above, the CAO bears tremendous 
responsibility for an extremely large number of City depart- 
ments with a broad range of governmental business matters. 
Besides performing the many faceted duties involved with a 
bureaucracy of this size, Mr. Boas must busy himself with: 

1) Coordinating the planning, design and building of the 
Yerba Buena Convention Center; 

2) Disbursement of the Hotel Tax; 

3) Administrating the massive Waste Water Project; 

4) Consulting continually with the Mayor, Board of Supervisors, 
various Commissions and participating in various Board 
proceedings . 

This office obviously requires a high-energy person 
with a capable and dedicated staff. The hard-working 
Mr. Boas and his staff do their best to keep all departments 
and projects running as smoothly as possible. 

It was difficult for this committee to communicate 
extensively with Mr. Boas because of the heavy schedule he 
keeps and the manner in which business is conducted in his 
office. However, Mr. Boas introduced us to the knowledgeable 
Paul Scannell, his executive assistant, who together with 
Mr. Boas assisted us with our questions. The unavailability 
of Mr. Boas, caused by having to divide his attention in so 
many directions, has been expressed by some department heads. 
Department heads are met with frustration when attempting to 
contact Mr. Boas with a matter needing immediate attention, 



and being told that Mr. Boas has his hands full with the Yerba 
Buena Project. 

It seems that these inevitable gaps in upper-level 
management communication surfaced this year as one of the 
factors in the deplorable situation in the Tax Collector's 
office. While this Grand Jury commends Mr. Boas for prompt 
action taken in the aftermath of the Parking Meter Division 
arrests, we are concerned with the "blind faith" and "quasi- 
honor system" used in upper and middle management down to first 
level supervision. When asked in what manner department heads 
report to his office, Mr. Boas replied that weekly written 
reports are submitted for his perusal. Mr. Boas then delegates 
to his staff any action to be taken that he does not see to 
himself. In light of now known short work days of some 
employees, and general laxity of supervision; it is apparent 
that guidelines of better communication and closer supervision 
are in order. 

We recommend the possibility of frequent meetings 
between department heads and the CAO or his staff. As 
opposed to weekly submitted status reports, these face to face 
airings of needs and problem points of individual City depart- 
ments should close the communication gap as well as promote 
closer supervision. 

In short, Mr. Boas should re-direct some of his 
relentless energy from the time-consuming Yerba Buena project, 
or the long range Waste Water project to the administrating of 
the eight City departments directly under him, in order to 
best serve the residents of San Francisco. 

Yerba Buena Convention Center 

As stated earlier, Roger Boas has concentrated much 
of his administrative talent toward the completion of the 
Yerba Buena Center (YBC). After some 15 years of discussion, 
debate and legal contention, the YBC is close to being a 
reality. This year the Board of Supervisors voted overwhelming- 
ly in favor of going ahead with the project. We congratulate 
Mr. Boas and staff for their success in compiling the complex 
reports needed to prove the project economically feasible. 

Initially approved by San Francisco voters in a 
1976 election, the YBC is considered necessary because of the 
conventions and tourism it will attract, which are major 
factors in the economic foundation of San Francisco. Consul- 
tants to the YBC state that the project would produce 873 to 
1,680 permanent Jobs directly, and an equal number of 



permanent Jobs indirectly. 

The costs of building the facility are calculated 
as $100 million. By category they are as follows: land 
purchase, $6 million; construction, $82 million; design and 
administration, $12 million. The source of these funds is 
the Hotel Tax which was raised this year from 6t to 8%. Half 
of the 8% is ear-marked to fund the project. 

The design of the center is underground. Except for 
the above-ground lobby entrance, the center will have a profile 
similar to that of Union Square. The construction is slated 
to begin in August or September this year, with completion in 
mid-1981. Mr. Boas expressed hopes of no more delay. 
Opponents of the project, however, are threatening more liti- 

Proposition 13 threw gloom over the project because 
while all City departments were undergoing massive budget cuts 
affecting basic vital services and employee layoffs, the funds 
allocated for YBC remained untouched. This resulted in the 
San Francisco resident seriously questioning the priority list 
of City officials who favor the tourist from Two-Dot, Montana, 
over a laid-off City employee resident who must wait half an 
hour to Jam on an overcrowded bus due to a 20? reduction in 
Muni service. 

Waste Water Project 

San Francisco is plagued with the serious problem of 
an antiquated sewage system that has one conduit for both 
sewage and rainwater. During wet weather the system is over- 
whelmed by billions of gallons of runoff that mix with raw 
sewage, overflow the plant reservoirs, and through 39 over- 
flow outlets are dumped untreated into the ocean and bay. 

The Federal Waste Quality Act of 1972 prohibits 
the discharge of municipal sewage into the ocean unless it has 
received secondary treatment. Hence the Waste Water Project 
was created to correct the dangerous situation. Since the 
project is by Federal mandate, the funding will be 75* federal 
funds, 12-1/2% state funds and 12-1/255 City funds, reflected 
in the sewer charge on water bills. The immense project will 
hopefully be completed by 1987 with a possible cost of 
$2 billion. 

The original master plan calls for the collection of 
rainwater from all over the City to be piped through a cross- 
town sewer line to a large processing plant that will be 



located south of San Francisco Zoo. From there the treated 
wastewater will be discharged through an outfall *♦ miles off 
the coast Into the ocean. Richard Sklar, Manager of the 
Waste Water Program, predicts the plan could be done for $1.5 
billion by considering alternatives that eliminate the need 
for a cross-town sewer line by building two more plants in the 
southeast and northeast ends of the City, thus dumping primary 
treated sewage into the bay and ocean. 

So the project is presently bogged down in controversy 
with the City having to provide evidence that dumpage of 
primary treated sewage in bay waters is not harmful to water 
quality or disruptive to the marine biological food chain — 
all in the interest of saving money on the overall cost of the 
plan. In the 1950 's air pollution was not considered a long range 
damaging hazard. No monies were invested in a massive plan to 
solve the situation which resulted in the disgusting air pollu- 
tion problem Los Angeles must deal with today. We do not want 
the same occurence In our beloved bay waters. Since many San 
Franciscans do not put a price tag on our bay, Mr. Boas should 
urge Mr. Sklar and the consulting firm of Met calf and Eddy to 
comply with federal and state recommendations of secondary 
treated dumping in ocean waters and not to attempt to cut costs 
by primary treated dumpage in bay waters. 


Mr. Boas told the Grand Jury that he will direct his 
attention to solving the problems of the following departments: 
Tax Collector, Public Works and Public Health. In examining 
the CAO it should be noted that Mr. Boas replaced the able 
Mr. Thomas Mellon in 1976 after his 12 years of service In the 
difficult office. Mr. Boas spent the first year in office 
acquiring a competent staff and listing many old problems 
inherited from Mr. Mellon, as well as new problems to be faced. 
His newness to the Job of city administrator over 3uch a 
conglomerate of departments and projects must be considered 
when aiming criticism. The Grand Jury is impressed with 
Mr. Boas' boundless energy and dedication of his staff. We 
look forward to seeing that energy and dedication work for 
making a better San Francisco in the future. 


Under the capable direction of Boyd G. Stephens, M.D. , 
the Coroner's office is responsible for diagnosing the cause 
and manner of death of 2,500 death cases reported to his office. 


CORONER (continued) 

The Coroner's office has authority of search and seizure, 
autopsy and inquest. Since it is not uncommon to receive cases 
from outside the City, state or country, the staff works with 
health departments and consults world-wide. 

The Coroner may be called to testify in Court as an 
expert witness, detailing what happened, when and how. 
Autopsies sometimes result in diagnostic studies where communi- 
cable diseases are discovered, giving valuable information for 
the living. One example of this: a fireman involved in a 
resuscitation attempt who then goes home to his family. These 
factors contribute to a basic problem at the Coroner's office: 
an increasing work load, with the necessity to be completely 
thorough in conducting autopsies and unbiased in interpreta- 
tion because of the direct effect on Judicial decisions, 
insurance, licensing, surgical practices, and worker's compen- 

While doing an admirable job in dealing with the 
increasing work load, Dr. Stephens is faced with a budget 
problem. Since the budget is line item, there is no considera- 
tion of scientific advances in equipment, price increases or 
long range planning. Certain items of sophisticated new 
equipment needed to improve the quality and cababilities of 
this office have been requested in the budget repeatedly. 
Dr. Stephens feels it is essential to have a computerized 
inventory of property, evidence, diagnoses and supplies. This 
could be shared with the Police Department Laboratory. Because 
of budgetary lines the staff is limited in what they can do in 
clinical and forensic pathology. 

The office has five vehicles which includes three 
ambulances, one newly acquired this year. A copy machine, 
which was recommended by the last Civil Grand Jury, was finally 
budgeted. Dr. Stephens' request for a full-time forensic 
pathologist has been cut from the budget. At the date of 
writing this report, the aftermath of Proposition 13 has caused 
a proposed budget cut of 17?, bringing the $910,652 budget down 
to $757,171. This type of budget cut is not conducive to the 
high standards expected from the Coroner's office. 

An important aspect of the Coroner's Job is close 
and cooperative communication with the Police Department. For 
the last six years, Dr. Stephens has not been asked to lecture 
to the graduating police cadets. This lecture would be 
beneficial to their training regarding homicide procedures. 

The Grand Jury would like to thank Dr. Stephens 
and staff for their cooperative assistance. 


CORONER (continued) 
Recomaendatlons : 

1. Devise a computerized Inventory system, to be used Jointly 
with the Police Department. 

2. A review of scientific equipment be made, and the necessary 
steps taken to update outdated equipment. 

3. Authorization for a full-time forensic pathologist. 

*» . In spite of the passing of Proposition 13, no budget cuts 

be made in the Coroner's office. 
5. Dr. Stephens should give lectures to graduating police 



This department is responsible for inter-communication 
of the Police and Fire Departments, and the installation and 
maintenance of parking meters and traffic signals. Under the 
leadership of the General Manager, Mr. Burton H. Dougherty, the 
department operates through four divisions : Administrative 
(including Accounting), Mechanical, Radio and Electrical. This 
year the previous division of Fire Alarm Operation was included 
with the Electrical Division, thus increasing efficiency in 
administrative and operational control. 

The much needed 911 Emergency Telephone Service has 
been promised to residents for many years. The reason for the 
delay is said to be the lack of state funding. Now, in light 
of Proposition 13, reliance on state funds seems impractical. 
Mr. Dougherty will know by October 1978, if state funding is 
realistic or not. Since many major cities in the United States 
have this system in operation, alternative sources of funding 
should be sought to insure San Francisco residents the safety 
and convenience of a common phone number for Police, Fire and 
Health assistance. 

One of the department's major problems is the damage 
done to traffic signals by vehicles. Nineteen percent of the 
1977 budget was used for traffic signal maintenance. The 
repair or replacement of equipment causes a drain on the budget 
as funds recovered from the responsible parties are returned 
to the General Fund. 

During this committee's tour of facilities we were 
impressed with the quality of the electricians* and technicians' 
work and the dedication of their foremen. All divisions keep 
concise records of all work performed. 



The department has an excellent mechanical division. 
Besides routine maintenance and repairs, the mechanics are 
engaged in the design and manufacture of special mechanical 
apparatus and fixtures when needed. This is necessary to 
replace obsolete parts of old equipment. 

The painting section is employed at painting fire 
alarm and police control boxes , traffic signals and other 
miscellaneous equipment. Due to a shortage of personnel, they 
are on a *l — 5 year painting cycle rather than the recommended 
2 year cycle. 

The Administration/Accounting Department, under 
direct supervision of Mr. Dougherty, maintains an orderly system 
of recording costs and revenues which are compiled and reported 
to management in timely periodic reports. 

In the aftermath of Proposition 13, the department 
with a budget of $3, 217, M6 was cut by $152,000. Mr. Dougherty 
predicts no layoffs, but routine maintenance and employee 
morale will be affected. 

The Grand Jury thanks Mr. Dougherty and employees 
for their cooperative assistance. 

Recommendations : 

1. Accelerate action to install the 911 Emergency phone system. 

2. Route funds collected from responsible parties who damage 
City-owned electrical equipment to this department since 
it is responsible for repair and billing. 

3. Hire additional painters to get the department back on a 
two year painting cycle. 

JJ . In spite of the passage of Proposition 13, no budget cuts 
be made that directly affect the quality of the services of 
this department or employee morale. 

Helen I. Abbett 
Howard L. Ross 

Robert G. Smith, Chairman 



The Department of Agriculture and Weights and Measures 
is under the direction of Mr. Raymond L. Bozzini and is composed 
of three units . 

1. Agriculture 

2. Parmer's Market 

3. Sealer of Weights and Measures 


This department is responsible for the enforcement of all 
state laws, rules and regulations pertaining to agriculture. It 
inspects fruits, vegetables , eggs and other products in wholesale 
and retail stores. It also conducts pest surveys in an effort to 
detect pests before they become established in a particular area. 


The market is located at 100 Alemany Boulevard. It is 
operated by the City and County and fees are charged to the growers 
having a booth on the premises. It has shown a profit every year 
in addition to earning its own operating expenses. Only growers 
are permitted to sell on the grounds. 

Recommendations : 

1. There should be two left turn lanes at the exit at 
Alemany and Crescent. This would allow for easy exit by shoppers 
and neighborhood residents. 

2. The cyclone fence at the rear of the parking area 
should be relocated to the curb-line. This would prevent the public 
dumping garbage on the hillside. 

3. The stalls should be painted. The area has a very 
shabby appearance . 


This department is responsible for making certain that 
all scales and measuring devices, and also packaged goods, show 
the proper net weight, measure or count. In addition, it is 



responsible for testing the meters on taxicabs by use of a fifth 
wheel. Since there are over 900 taxicabs, this is a very slow 
and cumbersome process and as a result it is impossible to test 
all of them properly each year. 

Mr. Bozzini has requested special testing equipment for 
use on electric sub-meters. He has requested this equipment for 
three years. There are over 15,000 sub-meters, some of them dating 
back to 1910. Many are undersized, incorrectly wired and consequently 
do not give accurate figures. As a result considerable money is 
lost to the citizens of San Francisco because of incorrect readings 
from these meters . 


Mr. Bozzini 's request for special equipment for read- 
ing the electric sub-meters should be recognized. He would then be 
able to read these meters on what he calls a "complaint" basis and 
in that fashion he would be able to perform this service without 
additional personnel. 



James R. Scannell is the Public Administrator. He takes 
over the administration of the property of those deceased persons 
having no executor or administrator. In some instances he will be 
ordered by the Court to administer estates . 

In some cases his office will have to take charge of and 
continue to run a business when the owner has died and the heirs 
are unknown. He will handle this procedure until either the heirs 
are known or the estate is liquidated. 

His office also pays the estate taxes and funeral expenses. 

A recent law change has resulted in a lower case load for 
the office and as a result they have been able to catch up with the 
backlog. A change in the Probate Code now requires that most estates 
opened after January 1, 1977, be completed within one year. At the 
present case load level they do not anticipate an increase in staff 
will be necessary. 




This is also under the direction of James R. Scannell 
and in which capacity he serves as a guardian to persons or es- 
tates when needed. He is appointed by the Court in each case and 
must represent the ward of the court in all actions. 

The social worker in the office has a case load of 150 
and her duties include visits to nursing homes to verify that they 
are up to standards and that the wards are well taken care of. 
The recommended case load is 75. 

One of the functions of this office is the preparation 
of tax returns for more than 500 estates, within the one year time 
limitation required by the statute. If the office fails to com- 
plete the return within the time allowed, the court may deduct 
additional fees from the Public Guardian's fees. This function 
really is within the capabilities of a tax attorney. If the Public 
Guardian had such services the attorney would use 50% of the time 
in research and preparation of the tax returns and the other 50% 
to work on guardianship cases. It is anticipated that this posi- 
tion would generate enough additional revenue to cover 90? of the 
salary . 

Recommendation : 

Employment of one additional social worker to assist the 
social worker now in the department . 


The County Recorder, Mr. Thomas Kearney, is required by 
State and County laws to receive, record, index and preserve papers 
such as property documents, tax liens, death certificates, and to 
issue certified copies upon request. 

He operates with 19 people which he considers to be ade- 
quate. His total budget for 1978-79 is $369,982. At this writing 
he does not know how he will be affected by cuts due to Proposition 
13. He has no significant operating problems. 



Mr. Kearney also serves as Registrar of Voters, operating 
a department which has the following functions: 

1. Registration of Voters — the number of registered 
voters is presently 351,211. 

2. Preparation and dissemination of voters' handbooks 
and sample ballots at least 10 days prior to an election. 

3. Hiring and training temporary voting precinct em- 
ployees. About 3,644 temporary employees are needed for the 911 
voting places. 

4. Renting premises for use as polling places. 

5. Storing voting equipment and materials. 

6. Registering candidates for office. 

7. Conducting the election, counting and tabulating the 

Federal laws require the printing and distribution of 
voting materials to the non-English speaking population whenever 
that particular language group achieves 5% of the population. At 
the last election on June 6, 1978, the cost for the Chinese lang- 
uage materials was $11,435, and for the Spanish language, $12,170. 
The increasing Filipino population may shortly require voting 
materials in their language. Many counties in California are taking 
the position that the federal government should bear the added cost 
of this recent law, and are seeking reimbursement. We recommend 
that the Registrar take the necessary action to see if this County 
can recover the added cost of these printings. 

At the last election, there were 911 polling places. The 
cost of each is as follows: 

Rental of space $ 25.00 
Salaries, 4 people 140.00 
Rent of voting machines 165.00 
Moving expense 8 .00 

TOTAL $338.00 

The cost to operate 911 polls at $338 each is $307,918. 
If the number of polls were cut in half, about $150,000 could be 



saved at each election. In a county of this size, voters would 
not have to go far even with half the number of polling places. 
Serious consideration should be given to a substantial reduction 
in polling places. 

The rental cost of the voting machines, at $150,000 per 
election, is excessive. The City should decide quickly what 
machine it wants to buy, or obtain through competitive bidding 
a better rental price. 


The Tax Collector's principal function is to collect 
taxes and license fees. In fiscal year 1976-77 this amounted to 
$508,475,711. There are about 135 employees, plus a few temporary 
and CETA workers. For the past seven years, Mr. Thad Brown has 
been the Tax Collector. His immediate supervisor is the Director 
of Finance and Records, who in turn is supervised by the Chief 
Administrative Officer. 

In 1972, the Grand Jury authorized Main LaFrentz and 
Co. to make a study of the Parking Meter Division. Their report 
warned of many possibilities for misappropriation of funds. The 
findings were turned over to the Mayor and Tax Collector. The 
1973 Grand Jury followed up on the matter and were assured that 
corrective action had been taken. 

On March 26, 1978, sixteen employees of the Parking Meter 
Division, including the supervisor, Norman Coates, were arrested 
and charged with embezzlement of funds. 

At the same time it came out that employees of this Di- 
vision, which is located in an isolated area of the City Hall 
basement, only worked about four hours each day. That this situa- 
tion had gone on for years was common knowledge to employees up- 
stairs in the Tax Collector's Office, and could not possibly have 
escaped the notice of the Collector or his Assistant. 

The CAO, Mr. Roger Boas, stepped in over the head of Mr. 
Virgil Elliott, then Director of Finance and Records, and promptly 
suspended Mr. Brown. Mr. Tom Miller, for many years Assistant 
CAO but now with Waste Water Management, was installed as acting 
Tax Collector. Arthur Anderson & Co. was authorized to make an 
operational review and analysis of the Tax Collector's Office. 
Shortly after receiving a preliminary report of their findings, 
in late April, the CAO returned Mr. Brown to his position as Tax 



Due to a typographical error the 
pagination skips from Page 59 to Page 
61. In addition, because of a printing 
error two pages appear blank in the 
report on the Tax Collector. 

Despite these errors the report 
on the Tax Collector is complete as 
approved by the Grand Jury. 

TAX COLLECTOR (continued) 

Collector, but on a six months probationary status. The Anderson 
report made about 100 recommendations, most of which have been 
accepted and are in process of implementation. 

Losses to the City in meter collections have been es- 
timated between $2,000 and $5,000 daily, or perhaps from $600,000 
to $1,200,000 annually. Further, the preliminary report states 
that throughout the Tax Collector's Office there are major high 
risk areas and a significant absence of controls which are neces- 
sary to provide reasonable and prudent assurance that all collec- 
tions will be made and safeguarded from intentional or inadvertant 

The deficiencies listed in this report reflect seriously 
on the competency of Mr. Brown and his staff. After the tip-off 
by Main LaFrentz & Co., with better supervision, the situation in 
the Parking Meter Division could have been stopped at least five 
years ago. The potential for thievery should have been apparent 
to more alert supervisors. In fact, it would be difficult to de- 
sign a better layout for theft than the work area of the Parking 
Meter Division. Even the safe was not large enough to accommodate 
one day's coin collection. 

Supervisors up the chain of command have tried to place 
considerable distance between themselves and this crime. It has 
been said that Mr. Brown lacked supervisory experience; but he had 
been on the Job for seven years. Experienced or not, his superior 
Mr. Virgil Elliott, since retired, said he had so much faith in 
Mr. Brown that he gave him little or no supervision. So far as we 
could find out the Chief Administrative Officer did not take action 
to give Mr. Brown better supervision. Mayor Moscone authorized the 
police action which lead to the arrests, but thereafter maintained 
a hands-of f policy . 

In addition to the loss of meter receipts, thousands of 
salary dollars have been paid to employees who did not work a full 
day. There is also evidence of inaccurate time keeping in other 
areas of the Tax Collector's Office. Like so many other City de- 
partments, this Office "anticipates" its time rolls — yet another 
example of this bad time keeping practice. 

Before this scandal is laid to rest, it would be fitting 
to hear some words of regret from the Tax Collector and the other 
supervisors all the way to the top. Also welcome would be a sign 
that they have learned a lesson. Improved supervision will only 
come with some show of it at the top. 


TAX COLLECTOR (continued) 

This Grand Jury will go out of office before the final 
Anderson Report is written. That report will contain their rec- 
ommendations and the reforms that have been instituted; therefore, 
further comment by us would be premature. 

Reynold T. Rey 
Robert G. Smith 

Howard L. Ross, Chairman 



In the County Clerk's office Mr. Carl M. Olsen Is 
the ministerial arm and record keeper for the Superior Court. 
He receives, indexes, files and retrieves legal documents. 
These documents serve the needs of attorneys and the general 
public . 

Budget requests made during the fiscal year will 
result in indexing procedures by electronic data processing 
for all new civil and probate cases at City Hall. This change 
was sponsored by his office and successfully passed through 
the California Legislature (SB 507, Chapter 225). The legisla- 
tion provides that an additional $2.50 charge be added to most 
filing fees in civil and probate actions and will result in 
$50,000 additional revenue per year. The effective date for 
this change was January 1, 1978. In the first two months his 
office has realized $11,000 in revenue from this sytem as well 
as many saved man hours. 

During the year Civil Service examinations were 
requested because of position turnovers and the exhausting 
of the Civil Service lists adopted in 1976. With the increase 
of work over the prior years and the District Attorney's 
Family Support Bureau, which has increased its filings by nearly 
10055 over the previous year, Mr. Olsen has fallen back in other 
operations of his department. 

With the adoption of the new Civil Service list Mr. 
Olsen has been able to fill 30 vacant positions that he needed. 
With the new personnel and the training program of new employees 
he feels that his department will run more effectively in the 
future . 

He would like to see a twelve-month probationary 
period for new employees instead of the present six months. He 
would then be able to better evaluate new employees. The Grand 
Jury concurs . 

Reynold T. Rey 
Robert G. Smith 

Howard L. Ross, Chairman 




Dr. Mervyn Silverman became the Director of Public 
Health for the City and County of San Francisco in May, 1977. As 
the Director, under the Chief Administrative Officer, he is re- 
sponsible for the overall administration of the Community Public 
Health Programs, Community Mental Health Services, Hospital ser- 
vices (San Francisco General Hospital and Laguna Honda), the Emer- 
gency Medical Services and also the Jail Medical Services. It is 
his responsibility to provide to the citizens of the City and 
County, the best health care available. 

The Department of Public Health in San Francisco is very 
extensive and very complex and until recently very disorganized. 
As the Grand Jury visited the different institutions and facili- 
ties, it became apparent that a sense of order was being restored. 

Community Public Health Services 

Dr. Lorraine Smookler is Assistant Director of Public 
Health for Public Health programs . 

San Francisco is divided into five district health cen- 
ters (Northeast, Southeast, Mission, Westside and Sunset-Richmond). 
Each center implements programs of the Public Health Department by 
providing specific services adapted to the differing needs of each 
district. The services, all of which are too numerous to mention 
here, include pre-natal classes, well-baby clinics, school nursing 
and pre-school exams, immunization and T.B. tests and home visiting 
by the public health nurses. 

It is interesting to note, at this time, that San Fran- 
cisco leads the State in venereal disease. There are 300 to 400 
people seen daily at the V.D. Clinic. Tuberculosis is two and 
three times more prevalent in San Francisco than in other cities, 
such as Los Angeles and New York. 

Approximately 12% of the budget is allotted to this area 
of the Department of Public Health which is low, indeed. 

Since the passage of Proposition 13 and at the writing 
of this report, it has been decided to close all five centers in 
the names of "savings"! In essence, the definition of public 
health is the promotion of health and the prevention of illness. 
It is difficult to show in dollars the value of health education 



or "an ounce of prevention is worth the cost of a pound of treat- 
ment" but to those with insight, it is readily apparent that this 
is a step backwards and a very expensive one 1 

This Grand Jury condemns the closing of the health cen- 
ters and doubts very much whether the citizens of San Francisco 
will abide by this decision nor are they deserving of it. 

Community Mental Health Services 

In 1969 the state mandated local services to treat the 
mentally ill in facilities near where they live, instead of placing 
them in distant mental hospitals. By law, all patients admitted 
to state hospitals must first be screened locally. As a result 
of the effort to develop alternatives to hospitalization, state 
hospital admissions have declined markedly and local programs have 
grown. The concept is good but there have been problems implement- 
ing it. 

San Francisco is divided into five mental health dis- 
tricts. Each district or center is a system of mental health 
services in several locations, within each district. Four dis- 
tricts are county-operated (Mission, Southeast, Northeast, Sunset- 
Richmond), the fifth (Westside) is privately-operated under con- 

Each center provides five essential coordinated services: 
1) inpatient care, 2) outpatient care, 3) emergency service, **) 
partial hospitalization and 5) consultation and education. 

There are also specialty services. These programs serve 
the entire City and deal with special problems such as drug and 
alcohol abuse, sexual identity, retardation, etc. Fees are based 
on the ability to pay. 

The Mental Health budget is approximately $32,000,000. 
The passage of Proposition 13 does not seriously affect this program 
as it is 80-90? federally funded and these funds cannot be trans- 
ferred to other departments. The City is responsible for the ad- 
ministration of the program and, therefore, is responsible for the 
quality of these services. About 35,000 San Franciscans received 
mental care last year. 

Dr. William Goldman who has been Acting Director for 
nearly two years, appears to have brought some semblance of order 
to a chaotic situation. The administrative capacity in the Cen- 
tral Office has been strengthened by the addition of a Contracts 
Manager and a Mental Health Planner. Accountability, cost effec- 
tiveness, productivity and performance evaluation have all been 
stressed as an important part of providing quality care. 



The implementation of a complete Management Information 
System is scheduled to go into effect this year. This was sadly 
lacking as virtually all of the City's mental health statistics 
have to be qualified because San Francisco did not have central 
data collection capacity. 

An adequate billing system has not, as yet, been imple- 
mented. However, the manual billing system has been replaced by 
an automatic billing machine. Dr. Goldman believes that in the 
near future, after a standard form has been developed, they will 
then go to contract billing. 

Community Mental Health Service operates on the premise 
that overreliance on hospitalization, particularly state hospitals 
for mentally disturbed patients, results in prolongation of depen- 
dency. It is their conviction that usually non-hospital treat- 
ment services, crisis intervention, outpatient care and partial 
day care, which are flexible and immediately available provide 
benefits to the patient and ultimately to the community . 

Centralization vs. decentralization has long been an 
issue of concern and controversy. There are approximately 285 San 
Franciscans in Napa State Hospital. Many do not belong there. It 
is cruel and expensive to keep them there. Dr. Goldman has a 
three year plan in which he hopes to reduce this number to 150. 
It will take that time to acquire community based facilities. 
There will always be a need for an institution such as Napa as, 
for some, there is no alternative. Dr. Goldman also stated that 
out of 100 clients he had brought from Napa to the Urban Community 
Mental Health facility at 121 Leavenworth Street, lH were working 
and self supporting. This is a victory not only for the individuals 
but a great asset to the community as they pay taxes and are no 
longer supported by the government. The Grand Jury visited this 
facility and can truly appreciate the situation. 

Difficulties have been experienced in procuring suit- 
able sites for the various community based facilities. This was 
evidenced by the neighborhood "revolt" when it was decided to es- 
tablish the Youth Campus for emotionally disturbed adolescents. 
This is now in litigation. It is sad when we, as a community, 
cannot accept our own children. 

In our society today, stigma is still attached to mental 
illness. We cannot see mental illness, as we can readily observe 
a broken leg. People fear the unknown and what is strange to 
them. To allay these fears, it will take time, patience and above 
all education . A major portion of this responsibility rests with 
the health department itself and their Advisory Boards. They must 



get the communities involved. It is, then, their onus to convince 
the policy makers that this is the right course and therefore their 
duty to support the worthy programs so that everyone's rights are 
upheld — even the mentally ill ! 

Recommendations : 

1. Programs be carefully evaluated. Some are excellent 
— others should be discontinued. Pouring money into a problem 
does not necessarily cure it. 

2. Streamlining the awarding of contracts. The layers 
of bureaucracy they must go through before approval is frustrating 
and very time consuming . The endless delays can cause crucial 
hardship on the non-profit private agencies . 

3. Diligent monitoring of all contracts. The .Grand 
Jury was impressed with the monitoring methods used by Larry 
Meredith, Ph.D., Director of the Bureau of Alcoholism. 

4 . Implementation of an adequate billing system. This 
would bring an increase in third party payments . 

5. Remove the "freeze" on Ward 7B at San Francisco 
General Hospital. It is fully funded, staffed and ready to oper- 
ate and the beds are desperately needed. When the Grand Jury 
visited the Jails, it was appalled at the number of inmates who 
needed mental therapy but remained in jail as there was no other 
place to put them. Others, who needed mental therapy were let go 
without treatment — only to be picked up again in a short time 
and so it becomes a vicious circle. 

Dr. Goldman has shown remarkable skill, under adverse 
circumstances, in implementing the transition of state hospital 
care of the mentally ill to community based care. In other cities, 
it has proved disastrous. There has been progress but there re- 
mains much more to do. We wish him well and thank him for his 
cooperation with the Grand Jury. 

San Francisco General Hospital 

San Francisco General Hospital moved into its new quar- 
ters in 1976. It has a bed capacity of 650. 

The medical staff, supplied by the University of Calif- 
ornia, is excellent as is the leadership it provides. 

The hospital trauma center which treats 13 traffic and 
crime victims on an average day, is recognized as one of the best 



in the country and has a recovery rate "far superior to that of any 
other emergency unit." This is one area of the hospital which 
serves all San Franciscans. Because of the trauma center and San 
Francisco General Hospital's improving reputation for overall care, 
there are changing patterns in delivery of medical care. This is 
putting new demands on the hospital. At one time it was the place 
where anybody who needed medical aid could go — mostly the very 
poor, the drug addicts, the derelicts and the prisoners. 

San Francisco General Hospital, in its 1977-78 budget re- 
quests, projected a patient load in excess of 400. The budget 
approved by the Mayor and the Board of Supervisors provided staff- 
ing for only 350 beds. A hospital bed costs money when it is not 
occupied. During the month of March the hospital census was up 
to 409. Then came the crisis of the shortage of critical care 
nurses . 

Critical Care Nurse3 

It takes a special kind of person to be a critical care 
nurse plus the fact that special training is needed. Because of 
the intensity and stress of their work they "burn out", after a 
period of time, and turn to less demanding work. As a result, 
the turnover is high. Since the General Hospital has a relatively 
high number of critical care cases, this demands special planning 
for nurse coverage in this area. 

As early as October the Grand Jury was told there was a 
shortage of emergency nursing staff. In March, the hospital began 
diverting ambulance cases to other hospitals and at one time, in 
April, all intensive care cases were diverted to other hospitals. 
Suddenly, there was a need for 3_6 critical care nurses Immediately 1 
Only then were funds "found" and approval given to hire 21 critical 
care nurses. This is poor planning! It is difficult for those 
who have the responsibility to act, if they do not have the author- 
ity! It is estimated that because of this crisis, the hospital 
lost $2.5 million in revenues, plus the confidence of the medical 
staff and most importantly, the confidence of the public. The 
census then went down to 291. 

A hospital is a dynamic institution with ever changing 
needs. Timely decisions are needed and this is impossible under 
its present form of governance. Getting through the layers of 
bureaucratic red tape is too slow. As a result, the decisions 
when reached are non-responsive to the problem. This is very 
wasteful. What is even more appalling is the fact that this 
could very easily happen again! 



The Grand Jury reviewed with interest the report of the 
Coordinating Council on "The Transformation of San Francisco 
General Hospital Into A Community Hospital" which was submitted 
in 1973. It also considered the alternative of contract manage- 
ment, also, the complete takeover of the hospital by the Univer- 
sity of California as was done in Sacramento when U.C. Davis 
took over the Sacramento County Hospital. However, this Grand 
Jury has neither the time nor the expertise to conclude this 
matter but we deemed it our duty to suggest these options. 

Dr. Silverman is especially aware of the multi-lingual 
and multi-cultural makeup of San Francisco and has made intensive 
efforts to acquire staff with bi-lingual ability. As a first step, 
the hospital received federal funds through the Mayor's Office 
to train interpreters in the City's languages and in medical 
terminology. Twenty-seven men and women who received a six-week 
training course are now working in various departments of the 
hospital, including the information desk, the emergency room, 
outpatient clinics and others. This program is financed by CETA. 


The addition of 28 extra officers had been approved to 
increase the security force. It was proposed that the new offi- 
cers wear blazers, be unarmed and devote more emphasis on being 
helpful (providing information, etc.) and preventing trouble. The 
Grand Jury concurs with this approach. In addition to increasing 
the hospital's security staff, there would be better outside 
lighting and locks, an alarm system and other equipment. A T.V. 
monitoring system was also to be installed. Upon later informa- 
tion, we learned that the hiring of the additional officers has been 
cancelled. The other safety measures, however, are being imple- 


Parking is a big problem for both staff and visitors 
which is yet to be solved. There are 600 parking spaces and 
1600 are needed. The Muni shop next to the hospital would be 
ideal if Muni could be convinced to relocate. 

The proposed budget for San Francisco General Hospital 
for 1978-79 was $59.2 million. Following the passage of Proposi- 
tion 13, this was reduced to $5*» million. 

A new accounting system will go into effect on July 1st 
as part of the FIRM project (a new financial management and payroll 
system). This project is covered under the Controller and Data 
Processing elsewhere in this report. 



There has been a sharp increase in payments for patients 
covered by Medi-cal, Medicare and private insurance collections. 
This pays for approximately 60% of the hospital's budget. All 
billings are processed through EDP at City Hall. Significant 
amounts of money are being lost because the billings, at times, 
are two months in arrears. The monthly bills are being "bumped" 
at City Hall because other data of higher priority goes ahead. 
The EDP system is running dangerously high to full capacity. 
A requirement analysis is being made and the hospital may have its 
own computer in the future. An independent computer with capacity 
in billing and data processing is also being considered. 

The administration of the San Francisco General Hospital 
has vastly improved under Mr. Charles Windsor who has been its 
Administrator for two years . He appears to be aware of the 
problems and tries very diligently to implement improvements. 
The Grand Jury thanks him for his complete cooperation. 

Laguna Honda Hospital 

The image of Laguna Honda has vastly changed from a re- 
tirement home for the aged to a virtual hospital which cares for 
the most difficult cases, many of which will remain there for 

The average daily census is 920. A large majority of 
these patients require extensive skilled nursing care. They are 
of all ages and there is a waiting list. It is estimated that ap- 
proximately 2,000 elderly San Franciscans who, because of lack of 
finances, live in retirement homes or hospitals outside of the 

For the specialized care given to a patient at Laguna 
Honda, it costs $55 a day. Medi-Cal pays only $27.00. The people 
of San Francisco pay the deficit. No nursing home facility can 
afford to provide decent food, sanitation and adequate medical care 
for the elderly and infirm on the unrealistic payment schedules of 
the government. This is evidenced by the controversial closing 
of the San Franciscan Center on Post Street. 

Laguna Honda is having its problems in bringing the hos- 
pital up to standards established by the Life Safety Code. Sprink- 
lers are being installed and stairways are being enclosed. At 
present, it is on a six months extension on its accreditation. It 
also has to receive a yearly waiver from the Health Department for 
open wards. As a result a study Is being initiated to decide 
the future of Laguna Honda. The study will attempt to assess the 
projected needs of the next twenty years and how Laguna Honda can 
best serve these needs. One major consideration will be whether 



to continue putting millions of dollars into the old building or 
would it be more realistic to build a new one. It is estimated 
that by the year 2000, the proportion of those over 75 years of 
age will double. Long term care for the aged is fast becoming 
one of the biggest items on the health agenda and this will call 
for putting it into the mainstream of medicine. 

Clarendon Hall is still in the process of being remodeled. 
It will add 170 new skilled nursing beds. The work is expected to 
be completed by September, 1979. 

Mr. Henry Sicabaig is the Administrator of the hospital 
and appears to be doing a very commendable Job. The Grand Jury 
was impressed with the sense of caring and devotion the entire 
staff showed toward the patients as the different wards were 

The nursing care, under the supervision of Miss Virginia 
Leishman, appears to be excellent. This was especially apparent 
in the "total care" wards where the patients are helpless. They 
must be fed, bathed, turned, etc. Their mouths were in good con- 
dition and their skin, especially their backs, revealed no pressure 

The Grand Jury also visited a "locked ward". Patients 
are not restrained but just kept locked in the ward so they will 
not wander away. They were neatly dressed, seemed alert, friendly 
and not heavily sedated. 

Laguna Honda has a contractual agreement with the National 
Cash Register Company for computer and programming services. A 
study by Ernst and Ernst has revealed that this is no longer ade- 
quate or efficient. A mini-computer was requested. Mr. Henry 
Nanjo, Director of EDP at the City Hall is making a complete re- 
quirement analysis before any changes are made. 

San Franciscans should be rightfully proud to have an 
institution such as Laguna Honda, especially since so much is 
heard of neglect and actual maltreatment of the aged and infirm. 
It should be pointed out that the State should shoulder more of 
the financial responsibility. Federal regulations do not cover 
special institutions like Laguna Honda. At some time in the 
future, hopefully, this could change. 

Since the passage of Proposition 13, it has been de- 
cided to halt new admissions to Laguna Honda. As there are approx- 
imately 30 deaths or discharges a month, the census will go down 
by attrition. 



There is a great need for skilled nursing care beds for 
the aged and infirm in San Francisco which has an especially high 
population of elderly. The state, at present, is paying $^0 a 
day per patient to the Post Street Center which has lost its 

This Grand Jury strongly recommends that the state be 
made to recognize its responsibility and duty to these citizens 
by bringing the support of Laguna Honda up to a more realistic 

Jail Medical Services 

The responsibility for the medical care of inmates in 
San Francisco's Jails was transferred to the Department of Public 
Health in 1975. As determined by the Court's Special Master in 
June 1977, medical services in the Jails were in near compliance 
with the Court's order. 

The Grand Jury found this a troubled area. 

In November, 1977, Dr. Silverman appointed Tom Peters, 
Ph.D., as Administrator and Dr. Neil Walter as Medical Director. 

The physical aspects of the Jails appear elsewhere in 
this report under the Sheriff's Office. 

There is a $190,000 appropriation to renovate medical 
facilities at San Bruno and to build a four to six bed infirmary 
at the Hall of Justice Jail. 

It is proposed to build four "seclusion" cells in the in- 
firmary at San Bruno. These are for inmates who act "bizarre" and 
are now in the regular cell blocks but, for various reasons, it 
would be better that they be placed in a "seclusion" cell in the 
infirmary . 

There is staff inequity as a paramedic receives more 
salary than an experienced public health nurse. Sixty percent 
of the staff are CETA employees and therefore, temporary. 

We question the necessity of a full time pharmacist at 
San Bruno. 

The manner of dispensing drugs is open to many abuses. 
There is no way to identify the inmates (no arm bands, etc.). 

There appeared to be a large number of prescribed drugs 
being distributed." We were told that approximately half of the 



inmates are on "pain" pills. 

There are several doctors who all work part-time at the 
Jails. There is no set policy and all work independently. They 
are there for a short time and some are more liberal than others 
in prescribing drugs and some are even intimidated into doing so! 
This is bad for the morale of the nurses as they then consider 
themselves as mere "pill pushers." 

Hall of Justice Jail 

Dr. Peters is attempting to secure a medical person at 
the receiving desk on the 6th Floor where all the newly arrested 
are processed. 

All new inmates are placed in a holding cell. They can 
be there from fifteen minutes to twelve hours. It is important 
that certain inmates, especially alcoholics be medically evaluated 
on admission. (In May, one male alcoholic, age 28 years, who had 
been in Jail less than an hour, was found dead). 

Dr. Peters is planning on acquiring a medical record 
technician and centralizing all medical records. He is also 
making provisions that the medical record of the prisoner would 
go wherever he went. As a result the updating would be better. 

The Grand Jury realizes that Dr. Peters has not had 
sufficient time to implement his program. He appears progressive 
and capable and we thank him for the cooperation he extended to 
us . 

Recommendations ; 

1. Medical evaluation by qualified personnel of certain 
newly arrested inmates, especially alcoholics. 

2. A four or five bed infirmary at the Hall of Justice 
Jail so that the nurses may observe certain inmates. 

3. Pharmacy inspection. 

4. Securing more Registered Nurses. 

5. Replacement of temporary personnel with permanent 



Emergency Medical Services 

Dr. F. William Blaisdell, Chief of Surgery at San Fran- 
cisco General Hospital, took a six-month leave from the hospital 
to make a study of San Francisco's emergency services. 

The Grand Jury concurs with the findings in Dr. 
Blaisdell 's report and would especially make these recommendations: 

1. The City require patients carrying medical insurance 
to pay for their emergency treatment. At present $1 million a year 
is spent in providing free ambulance service and free emergency 
care. It is estimated that 70% of the cost of these services could 
be reimbursed to the City through insurance and other payments . 

2. Permit City ambulances to deliver heart attack victims 
and other patients to private hospitals of their own choice while 
adding private ambulance service as a back-up for the City- 
operated ambulances . 

3. Establish a preventive maintenance program for the 
City's badly deteriorated fleet of 11 ambulances. 

The Grand Jury would like to congratulate Dr. Blaisdell 
on his excellent report. He has served San Francisco well. 


Dr. Silverman is to be highly commended for the progress 
he has made in this monumental task of reorganizing the Department 
of Public Health. 

His ultimate goal to centralize all administration at 
101 Grove Street and to develop a program wide management informa- 
tion system. 

Dr. Silverman is especially quality and cost conscious. 
He presents a prudent budget and tries to get the most and the best 
out of the taxpayer's dollar. The Grand Jury approves. 

Recommendations ♦ 

1. That Dr. Silverman have civil service exempt key 

2. It has come to the attention of the Grand Jury that 
certain civil service employees who have well-documented cases of 
incompetence and malfeasance against them are not dismissed. When 



brought before independent and impartial arbitrators, the verdict 
often goes in favor of the employee. This is not only expensive 
to the citizens who have to pay for incompetence but it could be 
dangerous when applied in the field of health. We recommend that 
corrective action be taken. 

3. This Grand Jury is cognizant of the fact that the 
City makes a country wide search to obtain the best qualified 
administrators and this is laudable. After proving his capabili- 
ties, we recommend that the administrator, who is a specialist in 
his field, be given a certain amount of flexibility so that he will 
have the opportunity to "administrate." 

Robert D. Au 
Reynold T. Rey 

Helen I. Abbett, Chairman 



The Department of Public Works provides and cares 
for the new and existing physical plant of the City, excepting 
facilities that come under the Public Utilities, the Port and 
the Airports Commissions. Its work is performed by the Bureaus 
of Engineering, Architecture, Sanitary Engineering, Building 
Inspection, Water Pollution Control, Street Repair, Building 
Repair, and Street Cleaning and Planting and the Central 
Permit Bureau. The budget for Fiscal Year 1978-79 is about 
$40,000,000. There are nearly 2000 employees, of which 1650 
are permanent, 175 are temporary, and 175 are CETA. The 
activities and accomplishments of this department are described 
in detail in their Annual Report. 

A management review is currently being made by 
Touche Ross & Co. The first phase is an overview of the 
department, costing $80,000, which will be completed about 
October 1978. It will be followed by a more detailed study 
costing $120,000 which will be authorized if the first phase 
indicates a need for it. 

On several occasions, we visited with the Director, 
S. Myron Tatarian, and received excellent cooperation. His 
greatest concern is that he does not receive enough funding 
to maintain buildings and streets. For example, there are 
about 850 miles of streets in the City. He would like to 
resurface about 50 miles each year, but has been able to 
resurface only 7 this year. He also has difficulties with the 
Civil Service Commission. There is often a delay in filling 
vacancies, which can be prolonged If papers are mislaid or if 
the person handling the matter is away for a few days. In 
another instance, he stated twenty-three departments were 
competing to hire a secretary from a roster of seventeen 
applicants. Obviously in this situation, the applicant was 
making the selection, not the employer. 

The Department of Public Works does not have per- 
formance evaluations, or productivity standards for its 
employees. New employees are given an Interview when hired, 
and their duties are explained at that time. The Civil Service 
Commission has a goal of Implementing performance evaluations 
in all City departments by January 1979. We hope that these 
evaluations will be initiated in the Department of Public 
Works before that time. 

Like so many other departments, Public Works 
"anticipates" or guesses at the time its employees will work 
at the end of each pay period. This is because they are paid 



the morning following the end of their pay period, and 
several days are required to process and issue their checks. 
For employees not working as "anticipated" corrections have 
to be sent in to adjust time rolls. This practice should be 
discontinued because it is a clerical mess, opening the door 
to a variety of errors, oversights, and overpayments. 

The assistance given us by Mr. Tatarian and his 
staff is much appreciated. 


The Real Estate Department, headed by Wallace 
Wortman, Director of Property, provides services in the 
appraisal and negotiation facets of real estate matters for 
the City's departments and offices. The two major Real Estate 
programs have been: 

1. the acquisition of land for waste water treatment 
facilities; and 

2. the ongoing leasing program for City departments 
requiring space not available in City-owned buildings. The 
department is also involved in school expansion, acquisition 

of property for parks, street widenings and extensions, disposal 
of surplus property, advice pertaining to real estate matters, 
management of City-owned properties, special study and appraisal 
projects, and maintenance of records oertaining to City, Unified 
School District and Community College District property. 

The Rehabilitation Assistance Program (RAP) is a 
program which mandates code enforcement and makes voluntary 
home improvement loan programs (65? interest loans). The 
Upper Haight Ashbury and Inner Richmond districts are progres- 
sing slowly as it is difficult to get contractors to do these 
Jobs as the contracts are small ($5 .000 to $7,000) and 90 days 
are required for approval. 

The Wastewater Treatment Project has commenced 
building the North Point Station and the Southern Station. The 
V/estside Station (the "Great Highway") is expected to start 
soon. The project, approximating two billion dollars, is 
budgeted as follows : 

1. The federal and state governments will pay 
87-55?; and 



2. The City government will pay 12. 5%. 

As a result of Proposition "J" the City has three 
million dollars a year to buy open space. The 17-3 acres the 
City leases to the Olympic Club is to be left as is. To build 
middle-income housing on the space would destroy the watershed 
and seriously interfere with the Master Plan. The Olympic 
Club has a total of 353.3 acres of which 17.3 acres are leased 
from the City. 

Recommendations ; 

1. The City should have a short-term lease with the 
Olympic Club with options to raise the monthly rent of the 
City-owned property; and 

2. Appropriate City departments should be centralized 
in a location that facilitates communication and efficiency 
which in turn provides greater productivity. 


This department purchases materials, supplies, 
equipment and contracts for equipment and services. It repairs 
automotive and other types of equipment. It operates a central 
reproduction unit for office forms. It maintains a running 
inventory of equipment and disposes of surplus. 

The department is headed by Mr. Joseph C. Gavin who 
purchased or contracted for approximately $175 million during 
Fiscal Year 1977-78. Mr. Gavin advises that his operation com- 
pares favorably with similar activities municipal and private. 

No physical inventory of City owned property or 
equipment has been taken for many years. Apparently additional 
personnel are needed to do this although Mr. Gavin hopes to 
obtain scanner-type equipment to take inventory by computer. 

There is no control over the creation of forms and 
many are duplications of those already in existence. Many 
become obsolete and forgotten although they are still being 
stocked. The prooosed budget for 1978-79 for the Reproduction • 
Division is $353,300. 

A great number of the City motor vehicles are worn 
out and quite often the cost of repair far exceeds their 



current value. Not all departments send their vehicles in 
for preventive maintenance but only when there is a breakdown. 

Recommendations : 


1. A comprehensive program for the systematic maintenance and 
replacement of the City's motor vehicles is sorely needed. 
Without this type of program there is much waste. Standards 
for size and cost should be set. Ease of repair and 
depreciation should receive the utmost consideration when 
bids are being considered for the purchase of new vehicles, 
and in fact any equipment. 

2. Bring inventories of City-owned property up to date and 
institute a schedule whereby all City departments take a 
physical inventory on a calendar basis. 

3. Form a committee to inventory and review all existing 
office forms and to institute a permanent program for their 
design, storage and distribution. 

Thomas J. Cook 

Michael J. O'Brien 

Reynold T. Rey , Chairman 



The Board is comprised of eleven elected representa- 
tives who each serve four year terms. The eleven members 
represent the eleven districts of the City. They were 
impaneled under the new district structure on January Q, 1^78. 
We feel that it is too early to form any Judgements of the new 
district elections, but there is some indication that the 
Supervisors are more concerned with the special needs of their 
districts rather than the overall needs of the City. We recog- 
nize that the current President of the Board of Supervisors is 
experienced and dedicated, and has been a stabilizing influence. 

The Board is faced with many problems. Those meriting 
top priority are: 

1. Specially funded rental programs for middle-income families; 

2. A middle-income family housing building program; 

3. Health Department services for middle-income families; 
ij. A Muni railway program which provides transportation to 

special events, shopping and for children; 

5. Aid to family and neighborhood businesses; 

6. An office of "Middle-Income Services"; 

7. City budget provisions for improved neighborhood police 
services, specifically policemen on the street. This 
practice has been proven to be an important factor in 
deterring crime; 

8. A planning program encouraging retention of middle-income 
housing and private financing of new family housing; 

9. Stabilization of housing costs and speculation; 

10. Social services to middle-income residents. The heavy 

emphasis on middle-income programs is due to the fact that 
the number one problem in San Francisco Is the mass exodus 
of middle-income families from the City to the suburbs. 

It is very significant that these needs must be met 
with a reduced budget. This makes it all the more vital that 
the Supervisors consider first the overall needs of the City 
as a whole, rather than those of their individual districts. 

We feel that the Board was hasty in voting a settle- 
ment of the police discrimination suit. There is ample 
evidence that there was not provable, systematic and conscious 
discrimination and therefore we believe that the decision is 
better left to the courts. 

Mr. Harvey Pose, the budget analyst, performs a 
valuable service in monitoring various City departments. 



Different departments have refuted his findings, but in the 
majority of cases he has proved to be thorough and factual. 

The Board's cooperation with the Mayor in revising 
the budget, subsequent to the passing of Proposition 13 > is 
laudable. We trust that this augurs well for the future. 
Next year's budget may be even more difficult if the State is 
unable to assist in the financing, as it has done this year. 
We sincerely hope that the message of Proposition 13 to trim 
the fat and increase efficiency in government is adhered to. 


The Academy is a place where in a few pleasant 
recreational hours visitors obtain understanding of their 
natural world which they could get in no other way — and 
more than 1.5 million do so every year. The Academy is the 
natural history museum — planetarium - aquarium complex in 
Golden Gate Park, and is its most popular attraction. Its 
mission is research and education in the natural and 
environmental sciences, or as originally stated at its found- 
ing in 1353, the exploration and interpretation of natural 
history . 

The Academy has been located in Golden Gate Park 
since 1916, as a result of a vote of the San Francisco citizens 
when its earlier museum, on Market Street, was destroyed by the 
Earthquake and Fire of 1906. It is the oldest conservation 
organization and oldest scientific society in the western 
United States. 

The Academy displays the wonders of nature, through 
dioramas in the North American Halls and Simson African Hall, 
Mineral Hall, Wattis Hall of Man and adjacent Galleries, 
Morrison Planetarium, Steinhart Aquarium and Fish Roundabout. 
It has the largest attendance of all the northern California 
museums . 

Dr. George Lindsay has been the Director since 1963 • 
He is directly assisted by Dr. William Eschmeyer, Director of 
Research, and Dr. John McCosker, Director of Steinhart 
Aquarium. They work with a budget of $3,000,000 a year, one- 
third of which is City-financed. The remaining two-thirds is 
privately funded. 

The Academy has been very fortunate in that it has 
received millions of dollars in endowments. Notable among 



these are the bequests of Helen Lillis - a ranch near Fresno 
which was sold by the Museum for $1,500,000 and William Noble 
donated $5 million. Additional monies are received by admis- 
sion charges and Academy membership. 

There are seventy nine "Friends of the Academy" who 
each contribute $1000 or more annually. There are 126 
corporations and foundations which have gifted the academy - 
past and present, in many forms: cash securities, life 
insurance, real and other property, and bequests. It is 
qualified as a tax exempt organization. 

There are 220 paid staff and approximately 30 CETA 
employees. The Academy is most grateful to the 325 volunteers 
who donate their time and services. 

We were impressed to learn that the California 
Academy of Sciences rates fourth in importance in the United 
States, preceded by 1) the Smithsonian in Washington, D.C., 
2) the American Museum of Natural History in New York City, 
and 3) the Field Museum in Chicago. The Academy of Sciences' 
fish collection is rated number three in the world behind the 
Smithsonian and the British Museum in London. The fish speci- 
men collection is a valuable resource in the areas of ocean- 
ography, ecology, commercial fishing industry, etc. The Fish 
Roundabout is the newest innovation at the Academy. It 
simulates oceanic conditions. The fish swim upstream in a 
continuous 3 knot current. Its interest has increased atten- 
dance by approximately h0% . The anticipated attendance for 
1978 is 2,000,000 visitors, particularly with the opening on 
June 15th of the "Treasures of Peru" Exhibit. 


1. To alleviate the problem of Sunday closure to automobiles, 
we recommend an educational program for the public of 
alternative accesses to the Academy, i.e., distribute 
fliers with maps of the park, various media publicizing 
alternate transportation methods and routing. 

2. That the Academy subcontract services as a money saving 

We commend the Academy on the atmosphere of culture 
in natural and environmental sciences in the magnificent 
ambience of this natural history museum. 



The Fine Arts Museums of San Francisco consist of 
the M. H. de Young Museum and the California Palace of the 
Legion of Honor under the capable direction of Ian McKibbin 
White. The de Young Museum has a permanent collection of 
Western art from its Egyptian, Greek and Roman origins through 
the Middle Ages, the Renaissance and into modern Europe and 
America. Art from Africa, Oceania and the Americas is 
exhibited here also. 

The function of the Museum is to preserve, collect 
and exhibit. The collection is divided into four categories: 
Painting, Prints and Drawings, Decorative Art and Sculpture, 
each headed by its own curator. 

At present the de Young Museum is following a trend 
of ethnic exhibits. The "Treasures of Irish Art" Exhibit was 
received enthusiastically. The director and city fathers 
are to be commended for the acquisition of the King Tut show. 
San Francisco was not on the Itinerary but due to a special 
trip to Egypt and successful negotiations, it has been 
obtained for the de Young Museum commencing in June, 1979 for 
four months. Preparation for the show has necessitated large 
expenditures. It will cost $1,500,000 to run it. Two full- 
time employees have been working since last Fall on the 
project. Sophisticated environmental control equipment is 
being installed for preservation and protection of the show. 
This condition, among others, was demanded in the original 
negotiation. The excitement generated by this exhibit is 
reflected in greatly increased membership. By 1979, 50,000 
members are anticipated. It is predicted that 1,500,000 
people will view it here. 

Seven permanent private collections are to be 
received. Notable among these is the collection of Nomadic 
rugs. With the continuing expansion of collection and 
exhibits, space has become a major problem particularly with 
present negotiations for the El Prado Museum (Madrid) 
collection and the Treasures from the Kremlin. Additional 
staffing and funding are also badly needed. 

The Legion of Honor is unique in America for its 
emphasis on the art and culture of France, depicting religious 
art of the Middle Ages, 17th and 18th centuries, 19th and 20th 
century Impressionists and Post-Impressionists. 

The Legion of Honor also houses the famous Achenbach 
Foundation for Graphic Arts. The Achenbach collection was 


FINE ARTS MUSEUMS (concinu d) 

given to San Francisco in 1950, along with an endowment of 
which only the interest ($50,000) is used to support the 
collection. This is a showpiece of the Museum. 

Problems Facing the Museums 

1. Legion of Honor - lack of restroom availability for 

2. Lack of public transportation on weekdays. (At present, 
transportation is available only on weekends.) 

3. Lack of directional signs at key intersections. 

4. Lack of adequate communications system. In consolidation 
of the two museums, 13 phones have been reduced to 5. All 
calls go through the City's main switchboard. Important 
phone calls are lost because of the system's constant 

5. Lack of preventive measures for dust damage to the 
collection from a nearby workshop. 


1. An aesthetically correct handicapped ramp at de Young 
Museum to be approved immediately. 

2. The communication system improved by installation of 
private lines (a break away from City Hall lines). 

3. Adequate restroom facilities for the handicapped at the 
Legion of Honor. 

*J. Renovation - at the de Young Museum for preparation of 
King Tut exhibition and at the Legion of Honor for the 
Dresden exhibit. 

5. High Velocity Air Conditioning climate control at Legion 
of Honor. 

6. Installation of directional signs to Legion of Honor at 
key street intersections. 

7- Shuttle buses from Clement Street to Legion of Honor three 
times daily between 10 A.M. and 5 P.M. on weekdays. 


The Asian Art Museum has been under the direction 
of Rene-Yvon Lefebvre d'Argence since its inception in 1959. 
The Museum has exclusive jurisdiction over the collection of 
Asian Art belonging to the City and County of San Francisco. 
Originally it was built to house *)500 items - the gift of 
Avery Brundage. This amount doubled in 1969 with the second 
gift by Mr. Brundage. At present, through additional contri- 
butors, the collection now totals close to 10,000 art objects, 
consisting of sculptures, architectural elements, paintings, 
bronzes, ceramics, jades, textiles, and decorative objects, 


ASIAN ART MUSEUM (continued) 

Illustrating major periods and stylistic developments of 
Asian arts. 

The facility also contains an Asian art library of 
12,000 volumes and provides a complete docent training program, 
Educational books have been published in several languages, 
based on the collection. 

The problems facing the museum at present are: 

1. Lack of display space . The complete collection cannot be 
displayed at one time but is rotated on a continual basis. 
The ratio is 13* display to 87% storage. It would take 
fifteen years to display the collection In its entirety. 

2. Need for additional staffing . 

a) Curator I for education. Diana Turner was appointed 
Curator of Education in 197^ . She handles all educational 
areas. She is in desperate need of an assistant, a 
Curator I position. 

b) One Chief Preparator - needed to organize and take 
charge of design and construction of all displays. 

c) Assistant Librarian - due to the large size of the 
collection, an assistant is needed for the one librarian. 
At present it is closed to the public because of inadequate 

3. Upgrading of Civil Service classifications . The Japan 
curator and the India curator have served for twelve and 
ten years respectively. They have taken on additional 
responsibilities far and above their present classifica- 
tion. Mr. d'Argence consulted the Civil Service Commission 
regarding the matter and received full support. However, 
the request was deleted by the Mayor in the next budget. 

4 • Security . A security system to be installed for the 

accountability of the art objects. This is particularly 
crucial due to the fact that there is no insurance on 
this collection valued at one-half billion dollars. 

Mr. d'Argence has a small staff of fifteen 
permanent and eleven CETA employees. 

The City of San Francisco through the Asian Art 
Museum has been honored by the request of the Korean govern- 
ment to organize a two year tour of Korean art treasures. It 
will commence here in May 1979, and will remain here for five 
months, to be followed by a United States tour. It is hoped 
that the City will assist financially in this exhibit. 


ASIAN ART MUSEUM (continued) 

There is also an art exhibit from the People's 
Republic of China projected for the summer of 1981. This will 
display the newest excavations in Ching Dynasty art. 

Bearing in mind the monetary, aesthetic, political 
and educational values of the Asian Art Museum to the people 
of San Francisco, we hereby recommend: 

1. Investigation of the problem of display space. 

2. Granting of three additional staff positions. 

3. Upgrading the positions of two curators. 
1* . Reinforcement of the security system. 


The San Francisco Society for the Prevention of 
Cruelty to Animals was founded in 1868 and is presently under 
the direction of Mr. Richard Avanzino. It provides for the 
hospitalization and sheltering of animals, a low cost animal 
care program for senior citizens, low cost spay and neuter 
clinic and the rescue of animals in distress. It also has the 
responsibility of impounding unleashed animals and quarantining 
of biting dogs. 

The S.P.C.A. is a non-profit corporation which is 
funded privately and by the City. The current budget is 
$1,^00,000. Of that amount, $517,000 are City funds. The 
remainder is obtained through endowments and private sources. 

The ultimate goal of the shelter is obtaining for the 
animals a happy home environment, securing responsible owners 
who will license them, keep them on a leash and clean up after 

We commend Mr. Avanzino for initiating the program 
whereby volunteer veterinarians from U.C. Davis contribute their 
services. Mr. Avanzino encourages animal groomers to donate 
their expertise toward readying animals for adoption. He has 
an exchange policy with the local press; for any animal story 
to get into the newspaper, they must provide an adopter. 

Last year 775? of the cats and 65% of the dogs were 
adopted. The national average is 10%. The shelter generated 
$280,000 in fees last year. It also provides animal care for 



people who are incapacitated or in legal custody. There is a 
new program underway to train dogs to hear for the deaf. They 
will respond to crying babies, ringing doorbells, screeching 
brakes, keys dropping, etc. 

Mr. Avanzino has obtained through the private sector 
of the S.P.C.A. four vans for animal protection. They cost 
$15,000 each. The rescue van cost $20,000 and is fitted with 
life saving equipment. The Petmobile cost $25,000. It travels 
to shopping centers and recreational centers and shows animals 
on the spot for adoption. The vehicles are rented to the City 
for four years at the rate of 25? of their value each year. 

We wish to commend the entire staff, including 
volunteers, on a smoothly run, competent organization. 

Robert D. Au 

Willie J. Crosby 

Luclnda M. Romaneck, Chairman 



The City Attorney is the legal counsel for the different 
departments of the City and County of San Francisco. The office's 
litigation involvement extends to areas such as City code enforce- 
ment, the Public Utilities Commission, Police, Recreation and Park, 
Airport Commission, Public Works, and a wide range of other depart- 
ments. These legal situations involve the City as a plaintiff or 

This office has many problems that have been cited in 
previous Civil Grand Jury reports and recently, by a special report 
from the Bar Association of San Francisco. This Jury has investiga- 
ted this office and is definitely concerned with these reports. 

A major problem is space. Many of the attorneys do not 
have a desk and have to use the library tables as temporary space 
for their work. The attorneys that do have desks are crammed into 
noisy, small offices with one or two other attorneys, and if he or 
she is lucky, a secretary. 

The library is spread throughout the offices in corridors. 
It is difficult to use because of heavy traffic interruptions. 

Filing cabinets are locatea wherever available space per- 
mits, not where they are readily accessible. 

In addition, lighting and ventilation are substandard. 

This department is understaffed for the volume of work 
and has an inadequate ratio of support personnel to attorneys. City 
Attorney George Agnost has a present staff of 65 attorneys and a 
support staff of approximately 30 to handle more than 4,000 cases 
a year. This represents hundreds of millions of dollars of liti- 
gation. The importance of these cases has forced many attorneys 
to take their work home or to work on weekends , and on occasion 
to file and type their own cases. This was partly caused by the 
previous ratio of support staff to attorney of .42. Eight new 
attorneys have been hired making it the present total above. Mr. 
Agnost is striving for a ratio of .67 to obtain maximum productivity 
The present rate is counter productive and a waste of the taxpayer's 
money . 

Another problem is inadequate equipment or the lack of 
equipment. Many of the old typewriters as well as some new ones 
lack "specialized characters" needed for legal typing. The old 
typewriters break down often and turn out work that is smudged 


CITY ATTORNEY (continued) 

or otherwise unacceptable. At the Airport Branch of the City 
Attorney's office, three secretaries were approved, but no desks 
or typewriters. 

The fifty line switchboard is outdated and operated by 
only one person who must answer and reroute through central City 
Hall to deputies for non-direct calls. Because of this situation, 
some incoming calls are never answered or lost in the transfer. 

To handle this department's monumental legal documents 
that have extensive texts, the Citv Attorney has installed a "Wang" 
word processor and a phone recorder system for attorneys to phone 
in document directives. In the past, long documents of similar 
or same text had to be retyped to insert individualized information. 
This word processor has an archive unit thai retains the original 
text and allows changes in format, text, name ^ and countless de- 
tails. There are four work area units with a '/isual scan which 
projects the graphic text to be entered or adjusted. These four 
scans allow for four different documents to be worked on at the 
same time. When completed the changed document is printed auto- 
matically on pleading paper per the execution button. The ori- 
ginal text is still retained in the unit. 

The full potential of this "Wang" has not been fully 
realized. It has already proved to be a savings in secretaries, 
time, quality of work and money. It costs the City $8,400 a year 
to rent. This committee of tne Grand Jury was greatly impressed. 

The new Airport Branch was formed to have a legal staff 
immediately on hand for the Airports Commission. This staff has 
enormous responsibility in providing advice, preparing and re- 
vising over 300 leases, permits and concession agreements, pre- 
paring and monitoring bid documents and contracts, and related 
documents resulting in the current multi-million dollar Airport 
expansion. It also defends the existing 1M2 lawsuits resulting 
from Airport operations. 

In addition, this branch is working on a pilot program 
for contract management. Because of the volume of work and con- 
ditions, many of the City's contracts are drawn up by "the other 
side" which could leave the City at ? disadvantage. The legal 
staff is trying to revise this process. 

The staff has to work in substandard make-shift offices 
shared with the Airports Commission. They also lack desks, chairs, 
typewriters and need a law library. The cost of this would be at 
no expense to the taxpayer as funds would come from the landing 


CITY ATTORNEY (continued) 

fees paid by the airlines under the Airports Commission. The Jury 
feels that this area should be approved or put high on the list of 
priorities since the Airport stands to gain substantially from 
Proposition 13. 

Mr. Agnost would like to see the department relocated 
under one roof and it has been suggested that the department rent 
floors in the new State Compensation building to provide modern 
office space for the entire City Attorney's office. His goal is 
to have the best public law office in the State. 

The department has had "years of City Hall budgetary short 
slghtedness." The political preoccupation with the ad valorem tax 
rate and the concentration of front page programs have taken their 
toll on unglamorous agencies such as the City Attorney's office. 
Last year some fiscal attention was directed to this office but 
the years of neglect require more serious support now. There is 
too much at stake socially and economically for the City to do 
otherwise. Proposition 13 will make this department even more 
important as the legal problems it generates grow. 

This Jury commends the City Attorney's staff on their 
devotion and good work in these uncertain economic times and 
under existing physical conditions. We support Mr. Agnost in his 
goals . 


The District Attorney's Office, headed by Joseph 
Preitas , Jr., is made up of several teams: Investigations, 
Special Prosecution, Administrative Section, Consumer Fraud, Crim- 
inal Prosecution, Victim Witness, and Family Support. 


The Family Support Unit was established in January, 1976, 
by state and federal mandates to recover support obligations owed 
to both welfare and non-welfare families by absent parents. Basic 
functions are to obtain child support orders, locate absent parents, 
establish paternity, collect and disburse chill support payments. 

This unit employs about 122, with a current year budget 
of $2, 370,91^. However, because of state and federal subventions, 
it did not require ad valorum taxes to operate. At this writing, 
the Unit has vacancies which it cannot fill due to the freeze on 



employment. We recommend lifting of this freeze as this will ham- 
per the Unit in its collection function, and the salaries are not 
paid out of ad valorum tax money. 

Prior to the establishment of this Unit, San Francisco 
ranked about last of all counties in California in its collection 
program. It is now about fourteenth. The Grand Jury was impressed 
with the drive and motivation of this Unit , which is under the 
direction of Nancy Keane . It is one of the operations in the City 
where we saw evidence of a training program, productivity goals, 
and a reward system for performance. 


Acting Director Judy Ford heads an enthusiastic staff 
made up mostly of volunteers and law students. Its mission is to 
protect consumers from illegal business practices. It utilizes 
a federally funded complaint mobile unit to make itself more ac- 
cessable to the public. Information and complaint forms are 
printed in English, Spanish and Chinese. In 1977 this Division 
obtained $100,000 in court awards. We feel this Division provides 
a valuable service to the citizens of this City. 


The District Attorney has 85 attorneys, with a ratio of 
one secretary to three attorneys. This situation is similar to 
that of the City Attorney where high priced attorneys are doing 
some of their own typing and filing. The District Attorney is 
trying to solve this problem by enlarging his secretarial pool, 
and making the existing one more productive. He hopes to accomplish 
the latter, with a training program, room dividers to improve 
working conditions , and with a program to reduce turnover in per- 
sonnel. This turnover, and lack of adequately trained typists has 
prevented optimum use of the word processor equipment which would 
in turn increase productivity of the pool. 


This program provides services to victims and witnesses 
of violent crime. This newly funded federal program is directed 
by Sue Gershenson with a staff composed of two assistants, clerical 
personnel, and volunteers. 

The program is designed to benefit elderly victims (over 
55), victims of rape and domestic violence. Services to witnesses 
include orientation as to procedures in court, and assistance in 
getting to court appearances. 



This program is currently providing assistance to about 
225 persons monthly. Its facilities at 560-7th Street lack privacy 
for interviewing victims, and sufficient space for training vol- 
unteers, who are an essential element in the success of this pro- 

This new program is already providing a needed service 
to victims of violent crime in San Francisco. 


The Public Defender's Office, under the direction of Mr. 
Robert Nicco, operates according to the Charter, and is governed 
by Section 27706 of the Government Code of the State of California, 
Over the years the number of referrals to the Public Defender has 
increased. Over 70$ of all misdemeanor and felony cases are re- 
ferred to him for a free defense. In addition to permanent staff, 
CETA attorneys, volunteers and interns are employed. 

Recent Grand Jury Reports, particularly that of the 
1975-76 Jury, have covered the problems of the Public Defender 
in great detail. The long history of neglect continues. The 
office is short of space, equipment, personnel, and travel funds. 

Individuals confined to State Hospitals and mental care 
homes require visitation and representation. Those under conser- 
vatorship must have their cases reviewed every six months. This 
area, Mental Health, is under the direction of Estrella Dooley. 
She reports that the number of cases under her Jurisdiction in- 
creased 70% in fiscal year 1976-77, or 1,363 cases. About 80* 
of the cases involve travel outside of the City and there is the 
chronic problem of insufficient funds for travel. 

The Public Defender staffs four courts at the Youth 
Guidance Center. Mr. Gregory Bonfilio heads this activity. With 
a staff which includes 5 to 10 law students, and 5 CETA attorneys, 
Mr. Bonfilio is coping well with an increasingly heavy workload. 

Despite the well-known poor working conditions and 
shortages, the Public Defender continues to provide high quality 
legal assistance to those in need of his services. The Grand 
Jury commends Mr. Nicco and his staff for excellent work under 
difficult conditions. 



The areas of involvement and responsibilities of the 
Sheriff's Department are management and operation of the City 
and County Jails, courtroom security and the Citil Division. 

The elected Sheriff, Richard Hongisto, left the 
department on December H», 1977, in good order, to Undersheriff 
Jim Denman, to manage until a new Sheriff was appointed. 
Eugene Brown was appointed Sheriff on February 2k , 1978 by the 
Mayor. It is the opinion of the Civil Grand Jury that Sheriff 
Brown has a tremendous source of information from his present 
staff. His background as patrolman (on the beat), and community 
relations specialist for the San Francisco Police Department 
will give him additional insight into Jail personalities. He 
works very well with Undersheriff Jim Denman. Mr. Hongisto 
has made himself available to Sheriff Brown for any information 
that he may need. 

In fiscal year 1977-78 the Sheriff's Department lived 
with a bare bones budget of $10,370,59**. of which 85* was 
earmarked for salaries. Total staff numbered 387 sworn and 
unsworn employees; they are budgeted for M05. 

The deputy sheriffs assigned to work the Jails undergo 
extensive education and training before and during their Jobs 
in the Jail environment. The philosophy of humane treatment 
of inmates is an ongoing concern of the management and staff. 


Jail No. 6 at the Hall of Justice, handles approxi- 
mately 90,000 people a year who have been accused of misdemeanors 
and/or felonies. Here they await preliminary hearings and court 
dates. The arrestees are booked and processed from one major 
holding cell, where misdemeanors and felonies are grouped 
together until fully processed. The mixing of the two types of 
accused is a problem that the press has fully indicated in their 
reports. Another problem with the holding cell is that there is 
only one small window to observe the arrestees. Some of these 
people may be quite violent or mentally imbalanced, and can be 
harmful to themselves and others. This kii <i of situation could 
go unnoticed under present physical conditions. For example, 
there was an unobserved death of a young man on May 15, 1978, 
in this holding cell. Only through the attention of another 
arrestee was the death brought to the attention of the deputies. 
An arrestee, depending on the number in the holding cell, can 
spend from 15 minutes to 12 hours in the cell, until he is 


SHERIFF (continued) 

We observed a drunk in the "topper" (drunk) tank 
lying on the bare concrete floor with no mattress or blanket; 
it was explained that the subject did not want any. Regardless 
of the situation, it is the feeling of this Jury that he should 
have had these items available to him to prevent extreme loss 
of body heat resulting in possible medical complications. 

The isolation cells are to be used for an inmate's 
own protection against himself or others due to "coming down" 
from drugs or psychotic behavior. They are also used upon 
request by inmates who want to set themselves apart from the 
rest of the Jail population. These cells are not padded, 
creating a possibility of self-inflicted injury. The deputies 
check the cells every half hour and log it in the office's book. 
The system opens a possibility of neglecting a visual check 
but still logging it. The only assurance of any check is the 
periodic nurse check, and in the morning a check by a doctor. 

In general, the lighting conditions in Jail No. 6's 
cells are very poor, as is the availability of reading material. 

The accessibility of phones to the 400 inmates is 
inadequate. Prisoner's Services come in twice a week to help 
with the phone problem, but is still not enough to help the 
deputies with the communicative needs. 

Recreation for the inmates is non-existent. 

Jail No. 1 on the 7th floor of the Hall of Justice, 
houses federal and City and County prisoners awaiting trial 
in Superior Court. The Sheriff's department receives twenty-one 
dollars per day for each federal prisoner. This money goes to 
the City's general fund, of which 25* of it goes to the Special 
Maintenance Fund for Jail improvements. 

This Jail seemed to be in order; overall cleanliness 
and organization were good. The four isolation cells in this 
Jail are padded and the inmates here are checked daily at 
8:00 A.M. by a nurse and every half hour by deputies. Here, 
as in No. 6, the possibility of neglect by a deputy to ignore 
a check is repeated. 

Limited recreation is available in the Jail's chapel, 
where there is a universal gym that the prisoners can use. 
However, the space is inadequate. The "recreation area" is 
limited to 24 inmates at a time. Exercise is available two hours 
a day from 9:30 A.M. to 11:30 A.M. Each group is allowed one 
hour; therefore only 48 out of a Jail population of approxi- 
mately 350 inmates exercise on a given day. This means that an 
inmate has an opportunity for only one day of exercise per week. 


SHERIFF (continued) 

Presently there Is a study being made to convert an 
existing helicopter pad on the roof to an outside recreation 
area. Money for conversion Is being sought through Capital 
Improvement Funds. 

A major problem of an outside recreation area, which 
demands careful study, Is the need for good security. 

We concur that recreation is badly needed but we also 
realize that the City has to deal first with highest economic 

Jail No. 3 

The women's Jail on the seventh floor of the Hall 
of Justice involves prisoners in both Municipal and Superior 
dourt cases. This facility appeared to be In good, clean order. 
There are eight large cells which were very nicely decorated. 
The atmosphere seemed pleasant. There Is good lighting and 
one universal gym, located in a central back niche, as their 
only source of exercise. This appears to be inadequate for the 
number of female inmates. At last report, the area was Just 

The Work Furlough Programs for State, City and County 
are located for the applicable men and women offenders at 930 
Bryant Street and on the 6th floor of the Hall of Justice, 

The programs are oriented to selected inmates who 
are permitted to leave confinement for employment or to pursue 
education or vocational endeavors. Its main feature, aside 
from being a tax saving, is that an inmate is allowed to main- 
tain his employment, support his family and handle other 
monetary obligations. Work furloughees pay $3.00 per day for 
administrative costs and provide for their own meals at a 
restaurant of their choosing. This program in essence allows 
the inmate to choose a responsible attitude as to his or her 
placement in society. 

The men's Work Furlough Program was offically begun 
and budgeted for in 1968. The women's Furlough Program is state- 
mandated but has not been budgeted. It exists out of the 
Sheriff's budget. To date budget requests have failed for 
the women's Work Furlough Program. 

We commend Mr. Marvin R. Pugh, Director of Work 
Furlough Program for his good work. There was an 83% success- 
ful adjustment rate in 1977. 


SHERIFF (continued) 

Jail No. 2 and No. *t 

Jail No. 2 (Men's) and No. 4 (Women 1 s) in San Bruno 
are built on 110 acres of country land. Its purpose is to 
house up to 700 men and 50 women who have been sentenced for 
less than one year. San Bruno also services surrounding 
counties' prisoners for $21.00 a day. These fees along with 
the previously mentioned federal prisoners' fees have generated 
$180,000 for Jail improvements. 

The men's Jail is currently undergoing plans for a 
new visitor's room to replace their circa 1935 cage-like room. 
This $92,000 funded improvement will provide non-contact and 
contact visiting. Contact visiting seems to be a national 
trend in Jails, which is one of several innovations in the Jail 
system to help create more humanization, responsibility and 
less dependence on imprisonment as a life style. The visiting 
room will also serve as a lunch area for deputies and a class 
conference area. With the present 80* Jail recidivism rate, 
any tool to help cut it down is welcomed. 

San Bruno's educational program is excellent; its 
emphasis is on the removal of barriers to learning. The 
program is co-ed and is run by a specialist from Mission 
Community College. The success rate of this program is very 
high and one high school credit unit is given per 15 hours of 
instruction. They teach basic skills (reading, writing, etc.) 
with typing and a Jail newspaper to augment the program. 

The Prisoner's Assistance Program located in the men's 
Jail provides a wide range of services to both Jails. Its 
team of 15 staff and 60 CETA supply assistance in bio-feedback, 
paralegal services, child legal services, transcendental 
meditation, drug and alcohol services, etc. The Jury found 
this program commendable. 

Since the funding of $192,000 to Jail No. 2 in 
1976-77 for its "poorly equipped medical facilities , nothing 
has been physically done. These funds are presently being 
held back for possible better use in Jail No. 2 and other Jail 
medical facilities. The Sheriff's Department is looking into 
having its illegal "Squirrel Cages" phased out and replaced by 
5 to 6 "Seclusion Cells" to be built in its infirmary. In late 
May 1978, it was estimated that these cells may cost $30,000 
each. Because of the present high cost, the Sheriff may have 
to seek additional federal funds through the L.E.A.A. This will 
probably delay the improvements of the Jail's medical facilities, 

Jail No. 2 has 10 inmates and one civilian chef 


SHERIFF ( continued) 

to cook Jail No. 4's and Its own food. The food services have 
greatly Improved from Its previously poor quality and short 
rations. With the funding of a total of $1,010,000 for the 
City's Jails, It has raised the previously budgeted 56 cents 
per meal to 76 cents, and changed the Jails' food service 
administrator. Better planning has been instigated to allow 
for the rise in food costs, menus and nutritional requirements. 
Undersheriff Jim Denman is looking into a pre-packaging food 
program for the Jails. It is estimated that a 5% savings would 
result because of equal portions. 

Jail #H is in need of a phone that works for only 
local calls. At present, it has one pay phone that demands 
the attention of a deputy to prevent long distant phone charges 
to the Jail. This Jury recommends a better phone as mentioned 
above; this will aid in better utilization of the deputy's time 
and the department's money. 

This Jail appeared clean and orderly. The women's 
cells reflected more privacy and self expression in the cells' 
decor. There is adequate recreation through the alternate 
use of the recreational field with the men in Jail No. 2. 

The Grand Jury would like to note, that the San 
Bruno Jails as well as the Jails at the Hall of Justice prescribe 

drugs for "pain" to over 50$ of their inmates. The main drug 
that is used is Darvocet. Dr. Peters and Dr. Waters of the 
County Jails Medical Services have been informed of this find- 
ing and it is hoped that proper attention will be focused in 
this area. We understood that the doctors working in this area 
are left up to their own "subjective" decision, but it is the 
Jury's opinion that the Administrative Medical Officials should 
be aware of this too. 

Proper distribution of drugs is a problem in the Jails 
and, at present, the Sheriff's Department is investigating a 
plastic prisoner labeling system to improve the security in 
this area. 

Security Ward - San Francisco General Hospital 

The Security Ward at San Francisco General Hospital 
has a capacity of 23 beds and provides to its patients (2/3 
medical and 1/3 psychiatric) medical care equal to that pro- 
vided to the rest of the hospital's patients. It has an 
excellent T.V. camera security system that switches automatically 
from the ward to the front door and back when a person approaches 
the entrance. 


SHERIFF (continued) 

The Jury commends Lieutenant Edgar Flowers and his 
staff of 22 deputies for their devotion; many of them go over- 
time, without additional pay, to complete their security work. 
Overtime funds have been depleted. The deputies also provide 
emergency help when needed to the rest of the hospital. 

This ward is to be replaced by a new and improved 
Security Ward, 7D, in September of 1978. Other County Sheriffs 
have viewed this 21 bed capacity facility to study its innova- 
tive security features: special T.V. scans, walls, windows, etc 

The new ward will have one-half coverage in special 
security windows because of lack of funds and high cost. Lieu- 
tenant Flowers has emphasized that the preeent planned window 
system leaves a possibility of escapes. It is suggested that 
the City will be "penny wise and a pound foolish" if it doesn't 
correct this while the ward is still being constructed. To 
date, the funds have been denied. 

Court Room Security 

The Sheriff's Department supplies the Municipal and 
Superior Courts with 82 Senior Deputies to provide courtroom 
security. The current use of senior deputy sheriffs for court- 
room bailiffs reveals illogical use of experience and training 
by this department as compared to other counties. This situa- 
tion has sparked ideas by the Sheriff's Department's top people 
to correct this problem. This observation has caused an 
inter-departmental look into the entire bailiff system. The 
problem, being a cause and effect of Citil Service, would have 
to be changed legally. 

One problem that is general knowledge to many, and 
should be changed, is that since a high percentage of senior 
deputies work a **0 hour week, 8 A.M. to 5 P.M. with weekends 
off and most bailiffs work this way, the work schedule does 
not match the court's schedule. This situation consequently 
creates the use of overtime in order to provide service to the 
courts and a waste of time and money spent during the hours 
when the bailiff is not yet needed in court. 

Senior deputies in the bailiff system, age group of 
30 to 40 years, who have accumulated a grea t deal of sick leave 
tend to use it very often. Because of their age, they tend to 
be out on Job related disabilities. These two facts create 
absences, thus a need for filling the bailiff position for a 
period of time, robs the Jail system of personnel, in order to 
provide services to the courts. 


SHERIFF (continued) 

It has been suggested that the bailiff system should 
be legally changed In order to provide service to the courts 
without the use of overtime; a change of bailiff's work time 
schedule is all that is needed in this area. In addition, 
time on the Job would be more productive. 

Another suggestion is to abolish the present bailiff 
system whereby using the 82 bailiffs, senior deputy status, as 
supervisorial personnel at the Jails, but still to be used in 
the courts as bailiffs on a rotating basis with the other 
deputies in the department. This rotating system would reduce 
cost in training and overtime. It would also give an overall 
opportunity for all deputies to be relieved of Jail environment 
at one time or another, creating a feeling of fairness through- 
out the department. 

Civil Division 

This division of the Sheriff's Department supplies 
services for collection for creditors, keeper levies on busi- 
nesses, civil arrests and auto seizures, garnishment and evic- 
tions. Through its collections, by court writs in the above 
areas, it disbursed, for 1976-77, ?3» 335*7^3 to creditors, 
of which $22^,831 were deposited in the County General Fund as 
fees collected for these services. This activity is an exclu- 
sive service rendered to the taxpayer without the costly dupli- 
cation common to many counties which have Sheriffs, Marshals 
and Constables, each duplicating the functions of others. 

Although this division has had no budgetary increases 
for several years, it has been able to handle the work load 
with its staff of 20 and 11 deputies. It processed 42,892 
services for 1976-77. 

The Civil Division is an "economic indicator" of our 
times and it is predicted that the effect of Proposition 13 will 
greatly increase this division's work load because of the 
possibility of increased unemployment. 

Evictions have grown to 1,400 a year. Sheriff Brown 
has been monitoring this area and it is his opinion that a new 
volunteer community relations unit be created to help "people 
facing evictions find alternative housing, to put them in touch 
with social services agencies and to tackle other problems they 
might have". This unit would operate before the court-ordered 

Edward J. Sosa 
Ronald P. Rubia 

Robert D. Au, Chairman 



The Assessor is responsible for appraising over 
180,000 properties, worth more than $13 billion, and process- 
ing these appraisals into an assessment roll. This provides 
the major source of revenue for the City and County, the San 
Francisco Unified School District and the Community College 
Board . 

The California State Board of Equalization is 
mandated to survey the performance of the Assessor's Office 
every six years. The Report of a survey made in 1976 was 
released in March 1978. It states that there has been improve- 
ment since the time of the previous survey in 1970. Many of 
their recommendations have been implemented, at least in part, 
but they believe that "more could and should have been 
accomplished". They doubted, however, that all the 1970 
recommendations could have been implemented without more 
budgetary support. 

The latest report makes 25 specific recommendations. 
Within one year of publication, the Assessor is required to 
provide the Board of Supervisors a written explanation of the 
extent to which he has complied with these recommendations. 
Based in part upon this report , the Assessor requested 2h 
additional people, including 10 appraisers and 10 assessment 
clerks. This request has been cut from the budget. 

Prior to passage of Proposition 13, the approved 
budget for the Assessor totaled $3,63*1,326, an increase over 
the current year of $277,159, or 8t, and included 128 personnel. 
By comparison, if the Assessor had received the extra personnel 
requested, his budget would have increased 26X, to $1* ,238,684. 

Under provisions of Proposition 13, the new assess- 
ment roll must be completed by August 1st, and the Assessor 
will have difficulty meeting this deadline. For example, 
there have been an estimated 43,000 transfers or sales of 
property since the 1975-76 tax roll which is the base year 
under Proposition 13. These properties will have to be 
reappraised to establish their current value. 

We would like to express our appreciation to the 
Assessor, Mr. Joseph Tinney, and his staff for their fine 
cooperation with the Grand Jury. 



The Treasurer, Mr. Thomas Scanlon, Is responsible 
for the safekeeping of all money and securities belonging to 
the City and County. His office handles the daily receipts 
and disbursements, and also invests surplus money in order to 
earn as much income as possible. The estimated income from 
these investments for this year is $24 ,667 ,**86 , at an average 
rate of interest of 6.55X. For comparison, last years' rate 
of return was 5.86%. 

Two computer systems, Moneymax and Telerate, provide 
the Treasurer with up to the minute information on the best 
investment possibilities. 

It should be noted that thousands of dollars in 
interest are lost unnecessarily when departments receiving 
checks do not immediately turn them over to the Treasurer. 
For example, a two million dollar Federal subsidy check held 
over a weekend undeposited would lose a thousand dollars in 

The Grand Jury would like to thank Mr. Scanlon and 
his staff for their cooperation, and commend them for efforts 
to improve the cash management of the City and County. 

Joseph McKinley 
Michael J. O'Brien 

Margarita V. Tallerico, Chairman 



The Adult Probation Department, located in the Hall of 
Justice, is headed by the Chief Adult Probation Officer, Walter 
Morse. The department deals with convicted felons, misdemeanants, 
pre-trial investigation, and community programs. The department 
operated on a budget of $2,2*4 7,000 last year. 

A great deal of reorganization took place in the de- 
partment last year. The need for more supervisory personnel was 
filled by trading three senior line officer positions for two 
supervising officer positions, and the upgrading of a clerical 
position to clerk supervisor. This gave the department nine 
supervising probation officers. 

The Superior Court and Municipal Court investigating 
and report writing staffs, which had been separate, were combined 
to provide adequate staff for all such functions performed by the 
department . 

The Community Services Division, which performs super- 
vision of probationers was changed from six units of one supervis- 
ing officer and eight line officers to five units of one supervis- 
ing officer and an average of seven line officers . The division 
has four units assigned to the City, and one out of the City. The 
City units are assigned fewer cases to provide better service to 
residents. The geographical division of the units was set up to 
provide economic and efficient service, and to improve neighbor- 
hood relations. Unfortunately, this proved to be less than ideal 
because of the transience of the City's population. Cases are now 
first assigned geographically and are not reassigned if a client 
moves to a different neighborhood. 

The problems encountered by the department are fairly 
common to many City departments. They are: 

1. Lack of space 

2. Poor equipment 

3. Lack of clerical staff 

l». Poor morale, due to the Civil Service problem 

Many times an officer must share interview space with 
another officer. This creates a lack of privacy and confidential- 
ity for the probationer. 

Much of the department's equipment is very old and in 
constant need of repair. 



The officers are responsible for the writing, and fre- 
quently typing of numerous lengthy reports . The poor quality and 
limited availability of typewriters causes a delay In this process. 
It Is felt that officers should be freed from the writing and typ- 
ing of reports to concentrate on Investigation and supervision of 

The clerical pool Is composed of six typists, which hard- 
ly seems adequate with a staff of sixty-three officers and trainees, 
who handled a case load of over 8,000 cases, all units combined. 

We urge consideration of the following recommendations: 

1. Provide, at the least, sound-proof cubicles for the 
Interviewing of clients. 

2. Purchase better equipment to withstand the constant 
hard use the machines are given. This should include dictaphones, 
and word processing machines, as part of an increased typing pool, 
which would free officers from clerical duties. 

3. No attempt will be made by us to solve the Civil 
Service problem of temporary status which has been in litigation 
for several years. We do urge a rapid and workable solution to the 
obvious dilemma faced by City personnel. 

While the Adult Probation Department has faced the prob- 
lems of low employee morale and inadequate facilities for its 
clients, the department deserves praise for its high level of de- 
votion to duty. 


The Superior Court, with Judge Lawrence S. Mana, 
Presiding Judge, has courtrooms located in the City Hall, Hall 
of Justice, California Hall and the Youth Guidance Center. 
The yearly budget for 1977-78 was $4,480,463. The Superior Court 
has maintained its efficiently run court calendar, which has been 
a source of pride In the past. 

We decided that a look at the Civil Grand Jury as a 
whole, might be in order. We would like at this time to present 
a few suggestions to Judge Mana, and his colleagues, regarding 
the Civil Grand Jury. 

It has come to our attention, in the past year, that 



many of the recommendations made by past Grand Juries have not 
been followed. 

A prime example of this is the letter written by 
Mr. Robert Graham, the foreman of the 1976-77 Civil Grand 
Jury, to Presiding Superior Court Judge Henry Rolph. In his 
letter Mr. Graham mentioned many of the things which have 
continued to frustrate us, as Civil Grand Jurors, this year. 

Unfortunately, it was realized by some of us, far 
into our term, that a lack of time for our duties was an 
increasing problem. Most of us were employed, and many of us 
were students. While many faced this problem, there were a 
few who were not able to cope with it. Several people left 
the Grand Jury mid-way into the term, one for lack of time, 
and several for personal reasons. A long period of time 
elapsed before the alternates became members and this caused 
further problems. Some of us were on committees chaired by 
the jurors, which caused some anxiety and frustration. We 
were advised to wait a little longer before we attempted to 
begin investigations without a chairman. (With a little more 
than six months to investigate some of the departments, we 
felt a great deal of pressure.) We continued to question our 
advisor about when the Jurors could be expected, and were told 
that he had communicated our feelings to Judge Mana. We are 
fully aware of the pressing schedule of the Judges, especially 
the presiding Judge, but we still feel that more attention 
should have been given to this issue. 

We would like to recommend that prospective Grand 
Jurors be made acutely aware of the dimensions of the commit- 
ment they are accepting. Perhaps the present Jury might have 
an opportunity to speak with newly-sworn Grand Jury members 
regarding problems we faced, and present suggestions we might 
have. This might make the awesome-looking duties somewhat 
clearer and less foreboding. 

In the event that some of the original Jurors are 
unable to complete their terms, we recommend that the alternates 
be sworn in without delay. This should help the alternates 
in adjusting to their new roles, as well as keeping the Jury, 
as a body, working in an expedient manner. 

We will not attempt to cite any other examples of 
Grand Jury recommendations not being followed. We would like 
to say that this problem creates a feeling of frustration and 
futility for the people who have devoted a year of their time 
to performing investigations and making recommendations. If 
our investigations and recommendations are not given serious 
consideration, then a great deal of our time and the taxpayer's 



money is being wasted. We realize that immediate action cannot 
be taken on all recommendations. We can accept this as long 
as we are provided an explanation. 

In conclusion, we would like to thank the City and 
County of San Prancisoo for providing us with this very unique 
and educational opportunity to perform our civic duty. 


The Municipal Court, with Judge Frank E. Hart pre- 
siding, is responsible for providing court services of the 
following nature: civil cases where the amount in controversy 
is less than $5,000; criminal cases including misdemeanors and 
felony preliminary hearings ; and traffic citations . 

The Court operated on a budget of $6, 597, 264 in 
Fiscal Year 1977-1978, with a staff of nineteen Judges. 

Several programs have been recently instituted. An 
experimental Small Claims program by the San Francisco Bar 
Association and the Court, funded by the San Francisco Associa- 
tion, was tried for a period of a year and expires on July 1, 
1978. It opened a Small Claims Court on Saturday but received 
poor response from the public. 

The new Brown Experimental Bill provides better 
public service, in that, it must operate a minimum of one 
Monday evening court and one Saturday court . In June , the 
court will be open on two Monday evenings, and in July on two 
Saturdays. Two attorneys will be available to assist in the 
filing of claims, and to answer legal questions. The first 
Monday evening court had seventeen cases scheduled, and had 
fourteen contestants show up. This program will expire in 
April of 1979. 

In both experimental programs, the judges received 
no additional pay for their services. 

The instant traffic program has also provided 
additional service for the public. When a citation is issued, 
the driver may go to court the same day for a hearing with 
a minimal wait if he so elects, or pay his fine. 

The present computer traffic citation system has been 
found to be costly and complicated; and a study by Coopers 


MUNICIPAL COURT (continued) 

and Lybrand Consulting Firm suggested a simpler program for 
the large volume of traffic citations processed. The program 
would reduce cost and complication by simplifying manual and 
computer operations to process a large number of traffic 

Some problems facing Municipal Court are lack of 
storage, lack of availability of floating bailiffs, and a gen- 
eral lack of security for criminal cases which overflow into 
City Hall. 

Microfilming of records is a possible solution to 
the space problem; but two conflicting laws on destruction of 
records are preventing optimum use of microfilm. Microfilm can 
be used as primary evidence in court; but until the conflict is 
resolved, original records must be stored in the basement of 
City Hall and Bekins . 

The courts are now utilizing three bailiffs who 
"float" between courts during civil hearings. The system works 
well with the exception of criminal cases which are frequently 
tried in City Hall. A buzzer system which would summon all 
bailiffs to a particular area is being worked on; but a date 
for completion has not yet been set. 

Criminal cases provide a general security problem as 
City Hall is not equipped with maximum security facilities, 
such as separate elevators, corridors, and secure holding 
cells for accused felons. This presents a problem for securing 
prisoners, and endangers the public. 

We recommend the following: 

1. Press for a solution to the legal aspects of 
microfilming records. 

2. Have the buzzer system installed without further 
delay. This should be made a priority item for the engineering 
department as public safety is involved. 

3. The security problem should solve itself when the 
new Wing of the Hall of Justice is completed, and the overflow 
problem is solved. This will also, hopefully free one of the 
present courts being used to try criminal cases for a Jury 
waiting room. In the interim, we recommend a bailiff in each 
court room trying criminal cases, as is now being done, and 
installation of the aforementioned buzzer system. 

In conclusion, we would like to commend Judge Hart 


MUNICIPAL COURT (continued) 

and his staff of their progress in dealing effectively with 
their problems. 


The Youth Guidance Center and Juvenile Court are 
located at 375 Woodside Avenue and are headed by Joseph J. 
Kennedy, Presiding Judge, and Joseph Botka, Chief Probation 
Officer. They provide court services, probation services, 
detention, private placement and crisis intervention of law 
offenders under eighteen years of age. Their budget for the 
1977-78 was $7,781,500. 

There were 133^ Juvenile petitions for law violations 
filed during the calendar year 1977. The highest incidents 
of offenses were in the areas of robbery, burglary, and thefts. 
The highest number of offenses committed took place in the 
age group fourteen to seventeen years. 

Juvenile Hall provides temporary detention for an 
average of forty-five Juveniles per day for periods usually 
not exceeding eight days . Since the passage of AB 3121 which 
requires that status offenders be housed in an open setting 
separate from that of delinquent offenders , one of the cottages 
has been turned into an open cottage with co-ed population and 
staff. A new program was developed for status offenders in the 
community-based detention facility run by Youth Advocates under 
a federal grant. 

Log Cabin and Hidden Valley Ranches provide housing, 
detention, and education for the offender, who, in the court's 
opinion, will benefit by longer periods of being away from his 
usual environment . 

Log Cabin Ranch, under the capable and devoted 
direction of Mr. James Licavoli , is located in La Honda. It 
has a capacity of eighty-six students with an average daily 
population of fifty-eight. They range in age from sixteen to 
eighteen. With eight new supervisory management personnel, 
the whole ranch program has been upgraded since the Teledyne 
Fiasco mentioned in the 1976-1977 Grand Jury Report. Log 
Cabin takes youths from counties which have no detention 
facilities and charges the counties $725.00 per month. Hidden 
Valley located on the same property also operates such a 
program. The fees go into the City's general fund. 

We thought, based on the great progress made in 



reading levels of the students, that the San Francisco Unified 
School District has provided a sound educational program for 
the Ranches . 

In general, we found a reasonably happy population 
at Log Cabin Ranch. The boys are housed in dormitories which 
seem to satisfy their needs. They are provided with a variety 
of activities, and make good use of the facilities. Their 
weight-lifting room, which is a converted shack with a concrete 
floor, needs minimal repairs such as painting, and the repair 
of holes in the floor and walls. 

Log Cabin Ranch has an enthusiastic staff that is 
sympathetic to the needs of the students, and capable of ful- 
filling them. They are to be highly commended for their 
worthwhile efforts and their low runaway rate (six students in 
one year's time). 

Hidden Valley Ranch is directed by Mr. Donald Carlson. 
Its capacity was lowered from one hundred to sixty-five to 
provide a lower ratio of students to teachers. They have an 
intensive reading program using books, which are primarily 
donated to them. They also provide many field trips and 
activities for the boys. 

Hidden Valley has a higher incidence of runaways than 
Log Cabin. The problem possibly stems from previous placements 
in other out-of-home facilities , and the immaturity of the age 
group, which is twelve to sixteen years of age. They had 
twenty-four runaways in a three month period; most of them 
repeaters . 

Probation Services provide both probation officers to 
work with offenders and a Family Crisis Intervention Division. 
This unit strives to prevent detention of Juveniles by dealing 
with parent-child problems through casework, and utilizes 
Social Services to intervene in child neglect and abuse problems 

Private placement of Juveniles who must be removed 
from their families but who do not require detention is 
another service provided by the Youth Guidance Center. The 
placement of youths in Bay Area group homes and boarding 
schools rather than Northern and Southern California facilities 
utilizes community and family resources. It facilitates the 
child's return to his local community. 

The department received ten new vehicles which it 
was promised by the City. This should greatly relieve the 
problem of officers using their own vehicles for the transpor- 
tation of the youths. It eliminates the danger of unsafe 



vehicles formerly used by the department. 

This department must also deal with the frustrating 
problem of temporary positions. We urge prompt resolution 
of this problem through the Civil Service Department. 


Despite the fact that the educational program at the 
ranch was adequate, we felt additional emphasis should be 
placed on vocational training. 

The auto shop teacher was on disability for a period 
of a year and a half. A substitute was not hired because of 
the possibility of the teacher returning to work. We felt that 
the School Board was somewhat remiss in not finding a more 
rapid solution to the problem. Services which were being paid 
for were not being provided. The problem has since been 
partially resolved. The auto shop teacher has resigned and 
has not been replaced. 

Funds for a full time registered nurse have been 
approved in the 1977-78 Budget. This should further reduce 
the number of visits into the City for medical attention. 

This committee also feels that a policy to hold 
status offenders for twenty-four hours to ascertain whether 
or not there are any warrants against them should be adopted. 

Dealing with the problems of Juvenile offenders is 
a complex subject and we feel that Judge Kennedy, Mr. Botka, 
and their staffs, deserve a great deal of credit for their 
patience and diligence in dealing with these problems. 


The Law Library, located in City Hall, with a branch 
in Mills Tower is headed by Harold Rowe, librarian-secretary. 
There are sixteen employees in both branches. Over fifty 
percent of the people who use the Law Library are lay people. 
During Fiscal Year 1977-78 the Law Library received $310,300 
in Municipal and Superior Court filing fees, interest from 
U.S. Bonds, utility bonds, savings accounts, and interest from 
miscellaneous income. In addition to fees and other income a 
total of $82,573 was appropriated by the City and County, 
including mandatory fringe benefits. 


LAW LIBRARY (continued) 

The net expenditures for both branches were 

A total of 254,289 volumes and 3,860 periodicals, 
texts, reports, and other miscellaneous volumes are con- 
tained in both branches, according to the most recent figures. 

Due to the large number of volumes contained, and 
limited space available, many books are not shelved and can 
be found in large piles on the floor. They are, however, 
catalogued correctly, so they can be easily located by persons 
using the library. 

A point of great interest to us was the collection 
of old and rare books housed by the Law Library. One of the 
volumes was pre-Guttenburg Press, with hand-written illuminated 
capitals and hand-numbered pages . These volumes are not in 
locked cases. Mr. Rowe felt that locking them up would serve 
to draw attention to their value, thus, making them a mark for 

This Committee felt that the lack of space was the 
big problem faced by the Law Library. Each year, an increasing 
number of volumes and periodicals must be purchased to keep the 
resources current. Storage of books and periodicals in other 
facilities seems impractical as they should be available at all 
times for reference. 

We do not wish to disagree with Mr. Rowe but we feel 
that the rare volumes he has should be kept in a more secure 

We wish to commend Mr. Rowe and his staff on the 
accessibility of volumes despite the obvious lack of shelving 
available. We highly recommend that some provisions be made 
to eliminate this problem. 

Perhaps one of the soon-to-be vacated court rooms in 
City Hall could be divided by the use of partitions. One half 
could then be used by the Law Library and the other as a Jury 
room for the use of the Courts. 

Margarita V. Tallerico 
Steven H. Rosen 

Jane F. Reeve, Chairman 










V Foreman's Letter to the Presiding Judge 

VI Introduction 

96 Adult Probation Department 

31 Aging, Commission on the 

52 Agriculture and Weights and Measures, Department of 

11 Airport 

72 Animal Control Center 

4 Art Commission 

71 Asian Art Museum 

90 Assessor 

6 Board of Education 

69 California Academy of Sciences 

42 Chief Administrative Officer 

75 City Attorney 

26 City Planning, Department of 

36 Civil Service Commission 

8 Community College District 

2 Controller 

46 Coroner 

52 County Clerk 

76 District Attorney 

45 Electricity, Department of 


TABLE OF CONTENTS (continued) 

3 Electronic Data Processing 

10 Emergency Services 

70 Pine Arts Museums 

50 Finance and Records, Department of 
9 Fire Department 

33 Health Service System 

29 Human Rights Commission 

100 Law Library 

1 Mayor 

98 Municipal Court 

22 Municipal Railway 

26 Parking Authority 

15 Permit Appeals, Board of 

13 Police Department 

17 Port Commission 

51 Public Administrator - Public Guardian 
79 Public Defender 

54 Public Health, Department of 

15 Public Library 

39 Public Service Employees - CETA 

59 Public Works, Department of 

57 Purchasing Department 

6l Real Estate Department 

51 Recorder 

27 Recreation and Park Department 


TABLE OF CONTENTS (continued) 

51 Registrar of Voters 

34 Retirement System 

83 Sheriff 

29 Social Services, Department of 

92 Superior Court 

64 Supervisors, Board of 

50 Tax Collector 

90 Treasurer 

19 War Memorial 

31 Women, Commission on the Status of 

94 Youth Guidance Center and Juvenile Court 






Mrs. Flora Aramian Miss Vivian M. Kalil 

John S. Collins William D. Kremen 

Mrs. Clara T. Delgado William Noaks 

Charles K. Desler Morris Rabkin 

Miss Elizabeth A. Dowd Mrs. Genelle Relfe 

Miss Edith T. Griego Mrs. Mildred D. Rogers 

Frank Harrison Mrs. Rebecca S. Turner 

Marvin Jones Mrs. Blossie C. Williams 

Miss Olimpia M. Xavier 

Mrs. Kay L. Galloway, Secretary 
Robert W. Ecoff, Foreman 

Impaneled, July 6, 1978 Discharged, June 30, 1979 



Room 163. City Hall 
Telephone- 558-S010 


Honorable Francis J. Mayer 
Presiding Judge, Superior Court 
City and County of San Francisco 
Room 457, City Hall 
San Francisco, California, 94102 

Dear Judge Mayer: 

On behalf of the members of the 1978-79 Civil Grand Jury 
I am submitting to you their Final Reports. 

Jury members have been conscientious in the preparation 
of these reports. However, it is impossible to make a complete 
and thorough investigation of a government as complex as San 
Francisco by so few in such a short period of time. 

At the time members are chosen to serve on the Grand Jury 
we believe more stress should be given to three areas of their 
interest. First, is the considerable amount of time and effort 
that is required of each participant. Second, the effect of 
Section 930 of the Penal Code as it relates to reports, should 
be thoroughly explained. This point has been elaborated on in 
the introduction of the report. Lastly, it should be made clear 
that each year investigations should be concentrated upon the 
Major Departments of the City and County Governments, other de- 
partments to be investigated only every fourth year. 

The Jury would particularly like to express its thanks and 
appreciation to Mr. Michael Tamony and his staff for their 
active assistance and support. 

I would especially like to thank the members of this Jury for 
their dedication, cooperation and support during this last year. 
Each one has made his or her own unique contribution, not only 
to the final report, but also to the many meetings and discussions 
held throughout the year. 

We hope our findings and recommendations will be beneficial. 



Robert W. Eq*£*, Foreman 
1978-79 Civil Grand Jury 



During the term of this Grand Jury three events have taken 
place which have had an influence on these reports. 

First - the implementation of Proposition B severely limited 
the budget of the various departments. Although we understand these 
restrictions, recommendations have been made for additional money in 
those cases where we believe it is warranted. Also areas have been 
pointed where we believe funds can be saved. 

Second - the tragic deaths of Mayor Moscone and Supervisor 
Milk have had a tremendous impact on the city. 

Last - the riot at City Hall on the evening of May 21st. 
As a result of this occurance the Jury spent much of the remaining 
month of its term investigating the events that occurred at City Hall 
that evening. We felt that we had a duty to the citizens of San Fran- 
cisco to do this before the circumstances became obscured with the 
passing of time. Also it was our opinion that it would take a new 
Grand Jury time to obtain the investigative experience we had pro- 
cured throughout the year. Unfortunately the investigation was not 
completed. A request to extend the time of this Grand Jury 30 days 
was denied by the Presiding Judge. Sworn testimony and documents 
pertinent to the investigation are being forwarded to the Presiding 
Judge. These consist of: 

(1). Eight booklets of transcribed testimonies, a total of 
585 pages. 

(2). Exhibit A, A poster announcing a demonstration after 
the Dan White verdict. 

(3). Exhibit B, the Incident Report of the San Francisco 
Fire Department for May 21 and 22, 1979. 

(4). Major Incident Report City Hall Riot 05/21/79 to 05/22 
79> San Francisco Police Department. 

(5). A list of estimated cost of repairs to buildings in 
Civic Center by the Department of Public Works. 

(6). A letter dated June 15, 1979 from the Director of 

Public Works to the Chief Administrative Officer re- 
garding City Hall Sound System, and one hundred and 
twenty-one police photographs of events at City Hall on 
May 21st. 

Therefore, we strongly urge the incoming Civil Grand Jury 
to make the completion of this investigation one of their 
first orders of business. 


INTRODUCTION (continued) 

The Grand Jury System 

This Grand Jury strongly recommends that the Board of 
Supervisors pass a resolution urging the State Legislature to revise 
parts of the Civil Grand Jury System. 

First, we believe that Section 930 of the Penal Code should 
be amended. This section is incompatible with the oath taken by 
Civil Grand Jurors. Section 930 states that: "If any Grand Jury 
shall . . . comment upon any person or official who has not been indicted 
by such Grand Jury such comments shall not be deemed to be privileged." 
However, the oath taken by Civil Grand Jurors states that they "... 
will diligently inquire into, and true presentment make, of ... 
matters ... subject to investigation..." It further states that 
jurors will not leave any department or governmental entity unin- 
vestigated through, fear but in all presentments will present the truth 
according to the best of their skill and understanding. 

The effect of Section 930 is to inhibit a true presentation 
of all the facts when the possibility of libelous action exists, 
even when groundless. We are of the very firm opinion that the re- 
moval of civil immunity from Grand Jurors is a strong deterrent to 
the effective performance of their task. 

Second, we urge that legislation be enacted to carry the ex- 
pertise of the outgoing Grand Jury to the incoming one. Assembly Bill 
No. l80Q, which has been referred to the State Assembly's Committee 
on Criminal Justice, is one means by which this can be accomplished. 
This bill provides for service by Jurors for two consecutive years, of 
which one-half would be members impaneled the previous year. 

It has been the experience of this Grand Jury that a con- 
siderable part of the term is spent becoming familiar with various 
departments and matters that require investigation. This is true 
even with the availability of previous Grand Jury Reports. About 
the time sufficient knowledge is obtained to make searching inquiries 
there is little time to do so before the term is ended. If personnel 
with the experience and knowledge of the outgoing Grand Jury were 
carried over to the incoming Jury much of this delay would be elimi- 
nated. Not only would valuable time be saved but the Jury would be 
able to carry out its functions with greater efficiency. 

Finally the Code should have some provision for making the 
department heads more responsive to the Grand Jury recommendations 
by making their replies public. One solution would be to require 
the responsible officials to conduct public hearings when the same 
recommendations have been made by two or more Grand Juries and cor- 
rective action has not been taken. The present code has little or 
no requirement for action other than a written reply to the Board of 


INTRODUCTION (continued) 

Supervisors and the Presiding Judge regarding the Jury's recommen- 
dations. Such a lack of procedures weakens the purpose of the System. 

The Trend of The City 

Being given the priviledge of observing the overall pic- 
ture of the City's activities this past year, the Grand Jury members 
feel it has become increasingly apparent that the City is placing 
greater and greater emphasis on tourism. 

This is evidenced particularly by support with funds and 
energies of such projects as the George R. Moscone Convention Center 
and its surrounding properties. The expansion of tourist facilities 
on Port property is another example. These are being done while 
neglecting to give proper support, by adequate maintenance and capital 
improvements to existing City facilities. There is also a diminished 
interest in maintaining light industry in the City, which has a sound 
economic base and stable employment. However, greater reliance is 
being placed on service industries relating mainly to tourism with 
less stable and lower paying jobs. 

These comments are offered not in support nor as criticism 
of this trend. It is to call to the attention of the citizens of the 
City the direction in which the City is headed and to give them the 
opportunity to reflect upon which political and business leaders will 
most closely represent their desires for the future of San Francisco. 



1. This Grand Jury wishes to express its grief at the 
assassinations of Mayor George Moscone and Supervisor Harvey Milk. 

2. This Grand Jury did not have the opportunity of meeting 
with the late Mayor George Moscone , but from what we have been able 
to gather, he was a dedicated man who wanted to do his best for the 
people of San Francisco. Of course, in a City of our size, we found 
those that disagreed with his policies — none the less we shall all 
miss him. 

3. After Mayor Feinstein's installation, she was able to 
meet with this committee only two times. 

4. We commend Mayor Dianne Feinstein for gathering the City 
together and continuing to run our municipality. 

Most recently Mayor Feinstein and her delegation returned 
from the People's Republic of China. This was the first time ever 
that a delegation from the United States was led by a Mayor. 

Mayor Feinstein succeeded in having San Francisco and Shanghai 
participate in a Friendship City relationship, the world's largest 
city, and like San Francisco, a port city and a city of high culture. 
This still has to be ratified by the Shanghai Revolutionary Committee 
when it meets next month. No American city has had such a relation- 
ship with a city in China. If all goes well this will be approved by 
the Revolutionary Committee in July and then, either in late summer 
or early fall, Shanghai will send a delegation to San Francisco for 
the formal signing ceremonies. Clearly, the Friendship City agreement 
was a most important achievement. 

Other accomplishments were, obtaining a commitment that the 
first Chinese flag ship, following the signing of Maritime agreements 
between China and the United States, will come tc the Port of San 
Francisco. In addition, the Chinese will be sending a delegation to 
inspect our Port next month. If all goes well, the promise of a great 
deal of trade between the Port of San Francisco and China looks very 
good in the future. Mayor Feinstein says that it won't happen over- 
night, but it will happen. 

Indications are that the first charter flight from Shanghai, 
our future Friendship City, will land at San Francisco International 
Airport. Ours will be the Gateway City for China. 

The first Chinese Trade Fair in the United States will be 
held right here in San Francisco, probably in the fall of 1980. Our 
competition was New York and Chicago, which will have shows, but 
after San Francisco. 


MAYOR (continued) 

In the words of Mayor DIanne Peinstein: "it was a 
fantastic trip and a most successful one." We congratulate the 
Mayor and her committee on their accomplishments. 


On each occasion that this Grand Jury met with the 
Controller, the first question we asked was: In what shape, 
financially, is the City and County of San Francisco?" Each 
time the Controller answered that the City is in fine shape, 
financially. The last time we met with the Controller and his 
staff on May 17, 1979, the Controller told us that for the year 
1978-79 we would have a $59 million surplus; that we expect State 
bailout monies, (because of Proposition 13), to be about $117 
million, that General Obligation Bonds of $14 million were sold 
and given AAA ratings by Moody's and an AA rating by Standard and 
Poor's; that the $97 million bonds for the George R. Moscone 
Center were also sold easily. The above sounds good and is, but 
there are certain things that do have to be pointed out and" acted 
upon if this department is to function properly and efficiently. 

Of the $59 million surplus, $20 million are monies that 
have been appropriated by various departments in the City and County 
and not used during the year 1978-79. These monies are put in the 
Controller's General Fund. Consequently, our surplus is actually 
$39 million. There are financial accounting problems, as pointed 
out by the Touche Ross & Company report on their audit for the 
fiscal year ending June 30, 197o and submitted to the Board of 
Supervisors on January 22, 1979. In particular they comment upon 
the deficiencies in the current operations of the FIRM (Financial 
Information and Resources Management) . Also included in their report 
is that the Controller's system of internal accounting control 
conforms to generally accepted auditing and accounting systems. 
At this point, it should be noted the Controller ' s letter to the 
Board of Supervisors dated February 23, 1979 , comments on ^is 
report. The Controller's office is rectifying many of the defi- 
ciencies noted In the Touche Ross & Company report. 

During our meeting with the Controller and some of his 
staff on May 17, 1979, he told us that some of the deficiencies 
have been corrected and others are still being worked on and will 
be corrected. 

Implementing the FIRM and FAMIS (Financial and Accounting 
Management and Information System) systems has put a strain on 
the Controller's staff. Some of the auditors used in auditing 

-2- (continued) 

various departments in the City are being used in implementing 
and training personnel in the new accounting systems. Mr. John 
Farrell, the Controller, now has on his staff Mr. John Madden who 
is the Controller's Staff Assistant and Systems Training Officer 
for the FIRM and FAMIS systems. Mr. Madden is now working with 
the Controller's staff and other departments in explaining and 
implementing these new accounting systems. 

One high priority in the Controller's office has been 
the hiring of a Senior Departmental Personnel Officer, for the 
recruitment, evaluation and training of his offices personnel. 
The Controller's request for this new position has been approved 
in the 1979-80 budget. This hopefully, with some other changes, 
will stop the high turn over in the Controller's office. 

Mr. Farrell also told us that thirteen new auditors are 
being hired. This will help alleviate the backlog in auditing 
of the various city departments. 

This Grand Jury strongly recommends that they look into 
more space requirements needed by the Controller's office. With 
asiles loaded with printouts and temporary storage boxes it is 
difficult to move around and creates a fire hazard. This space 
requirement needed for the Controller's office should be made in 
conjunction with Electronic Data Processing (EDP). (See following 
report on EDP). We also recommend that the employee probationary 
period be lengthened from six months to a year to adequately observe 
and evaluate new personnel. After the twelve month period new 
employees' salaries should be increased to that of outside industry. 
This will give new employees a feeling of more permanence, that is 
much needed, since a great deal of the turn over in the Controller's 
office has been due to personnel leaving for higher paying jobs in 
outside industry. 

This Grand Jury and Committee commends Mr. John C. Farrell, 
Mr. Francis Byrne and Mr. John Madden for their dedication to their 
fiscal responsibilities to the City and County of San Francisco 
and also for their open and honest communication with this Committee. 


The Electronic Data Processing Department (EDP) is present- 
ly working under tremendous handicaps. This Grand Jury recommends 
that the EDP Priority Committee (with the main push coming from the 
Controller's Office) immediately look into increasing the central 
site computer capacity. EDP is now running at 100# capacity. With 
the implementation of the new FIRM (Financial Information and 



Resources Management) and FAMES (Financial and Accounting Manage- 
ment and Information System) systems, the number of departments 
that want to get into EDP and those departments now on EDP that 
want more and more information, EDP must be moved from City Hall 
to an area where adequate space and energy source are available. 

This Grand Jury was very surprised going through the main 
computer room and seeing computers and other equipment squeezed in 
along side one another, with very small aisles making it difficult 
to walk through. Computer printouts were stacked high in the aisles 
and outside in the hallways. Not only it is difficult to move 
around, this situation creates a tremendous fire hazard. We were 
very fortunate during the riots at City Hall on May 21, 1979, that 
fires did not do more damage than they did. City Hall has no 
sprinkler system, smoke detectors or fire alarms. With all the 
invaluable information and very expensive computers in EDP, this 
deplorable condition must be resolved immediately. 

We also recommend, as have previous Grand Juries, that 
the probationary period for new employees be increased from six 
months to twelve months. Training in this department is often 
more than six months and the need for adquate evaluation is very 
necessary. It is also recommended that the pay scale for those 
that have finished the training program and probationary period, 
be put on a par with outside industry. 

We commend Mr. Henry Nan jo and his staff for doing as 
good a job as well as they do under great pressure and with the 
various obstacles they have to contend with. 


The Art Commission, under the direction of Martin Snipper 
with Joan Ellison as Assistant Director, both dedicated to their 
positions, is responsible for representing and maintaining the 
cultural and artistic life of the City; which includes the Pops 
Concerts, the Neighborhood Arts Program and Community Cultural 
Centers . 

Other responsibilities include reviewing and approving 
designs of new municipal buildings, the licensing of street mer- 
chants and care and maintenance of public works of art. The Art 
Commission shall supervise and control the expenditure of all 
funds appropriated and purchase works of art for adornment of all 
municipal buildings. 


ART COMMISSION (continued) 

Because of the difficult economic situation in which the 
City finds itself, the area of culture is extremely vulnerable to 
budget cuts. The challenge of the Art Commission is to produce 
products of such high quality that their elimination would cause 
civic misgivings. 

More and more neighborhoods are becoming interested in 
advancing their culturally beneficial programs in their own commu- 
nities, and through the efforts of the CETA program and the aid 
that the CETA artists provide, these communities are able to contin- 
ue to bring such cultural benefits to their neighborhoods. 

The CETA arts program currently has about 150 employees 
working in various jobs throughout the city. At the present time 
the Art Commission is training seven key employee CETA positions 
so that when the present CETA program is over on August 31, 1979> 
they will be able to continue many of the ongoing programs under- 
way while new CETA employees are trained. 

In summary, the Art Commission is performing its primary 
function of bringing the arts to the citizens of San Francisco, 
and assisting the educational institutions and the neighborhoods 
in continuing programs of art. 

This Grand Jury recommends to the Board of Supervisors 
that they put more "teeth" in ordinance No. 30-69, Sec. 3.13, 
"Appropriation for Adornment of Proposed Public Structures", so 
that the conflict that now exists between various departments and 
the Art Commission can be eliminated. 

Charles K. Desler 
Olimpia M. Xavier 

Morris Rabkin, Chairman 



The Educational Redesign Proposal of Dr. Robert Alioto, 
Superintendent of Schools, was implemented in the Fall of 1978. 

The Educational Proposal represents an effort by the 
Unified School District to provide the City's students with an 
education that prepares them both for higher education and for future 

The proposal will establish a framework for the stability 
and continuity of instruction as follows: 

A system of kindergarden to fifth grade elementary schools 
which stress the basic skills with programs that relate to: 

Middle schools, grades 6-8, where first priority is to 
competencies and to provide exploratory experiences which prepare 
students for: 

Four-year high schools which provide both a general and 
specialized curriculum leading to higher education and/or the world 
of work. 

The foundation of the redesign framework is to improve the 
student's basic academic skills in the areas of reading, writing and 

Galileo High School is the vocational school for business 
study and has a full time staff. It offers an excellent preparation 
for students planning to get a college degree with specialization in 
general business and prepares students seeking future employment. 

The present school population is 62,000. Busing will be 
reduced 50% and will result in savings of approximately $1.6 million 
over a five year period. 



Federal and 






Federal and 





The budget for the general Education Fund is subject to 
review and approval by the Board of Supervisors and is funded by Fed- 
eral, State and Local sources as seen above. 

The purpose of centers for the child care program is to pro- 
vide educational opportunities for physically handicapped and mentally 
retarded pupils, who are found to be ineligible for any other regular 
class. At the present the program would enroll 3,000 children. 



The closing of schools is not a function of the Redesign 
Program, but rather a direct result of an enrollment which dropped by 
nearly 30% in the last seven years. 

Savings by reduced cost of building maintenance, utilities 
and staff after schools closed is $4.9 million. 

The School District expects the property left unoccupied 
by the Redesign to be put to use by being rented or leased. 

The lease of Fremont School to the Police Department should 
be consumated before June 30, 1979, allowing the Department to take 
possession on July 1, 1979 and commence paying the School District 
$104,000 per year. The delays which were not anticipated in October, 
1978, were overcome and the mutually beneficial relationship should 
begin July 1, 1979. 

It is estimated that the Community College District will pay 
to the School District rental fees similar to the 1978-1979 fiscal 
year and will not increase the number of School District facilities/ 
rooms currently under lease. The anticipated income for 1979-1980 
is $190,000. 

Income growth will occur between 1979 and 1983 as the number 
of leases and rentals increase. The major rentals consumated in 1979- 
1980 will include the lease of Fremont, Andrew Jackson and Laguna Honda. 

At the time of this writing Hetch Hetchy, the Department of 
Social Services and Health Department are interested in leasing 
space from the School District. This Grand Jury feels that the needs 
of local City and County govermental agencies and departments should 
be given first consideration in these rentals. 

Dr. Alioto stated that 1,250 teachers are being laid off 
as a result of the $23 million budget cut by the state. The early 
retirement plan will reduce the firing of many teachers. 

This Jury commends Dr. Alioto for two major areas of accom- 
plishment this year. 

1) Following through on his vast Redesign Program, and work- 
ing the transition as smooth as possible, and 2) working within drastic 
budget cuts and facing up to the hard fact that teachers layoffs are 
necessary and inevitable to achieve a balanced budget and implementing 
this regretable task, although the reduction of student population 
and subsequent school closures have eased this. 



The San Francisco Community College District provides all 
ages 18 and over equal educational opportunites regardless of natural 
origin, marital status, age or physical handicap. 

The City College Divison and the Community College District 
headed by Mr. Herbert Sussman, provides evenings and Saturday credit 
courses, on and off campus as part of its regular program of instruc- 
tion. The evening curriculum consists of university courses as well 
as semi-professional courses. Students may thus earn the degree of 
Associate in Arts or Associate in Science and also prepare for transfer 
to universities and state and private colleges. City College offers 
credit courses for students who wish to take their first two years 
there then transfer to a four year college. 

The Downtown Community College Center on the corner of 4th 
and Mission streets began full-time operation on the 5th of February, 
1979. The beautiful new eight- story College is also earthquake 
resistant up to 8.5 magnitude. Its maximum utilization is a 10,000 
student capacity, and the center has surpassed its immediate goal of 
attracting 5,000 students in its first year. The College building 
cost $9.1 million. 

To meet the educational needs of the general public, credit- 
free courses are offered with no fees or tuition to the student, fees 
may be required of certain courses. 

A student may enter a course at any time with the consent of 
the instructor, if space is available. He also may study as long as 
necessary to gain required skills. In most cases students may enroll 
in a class simply by attending the frist class meeting. 

In order to enroll in certain courses leading to a certific- 
ate of completion the student may be required to complete certain pre- 
requisites, such as placement testing or previous levels of educational 

The addition of the eight-storied building to house the 
Downtown Community College did not fully alleviate the need for more 
school space in other areas of the City. Since the Community College 
is a State supported institution and no funds are required from the 
City, it is obvious that additional funds to cope with disticts 
problems must come from the State Legislature. 

William Noaks 

Blossie C. Williams 

Flora Aramian, Chairman 


The Fire Department's budget for the fiscal year 1978-79 
has again been cut to 95% of last year's budget, which had also been 
cut the previous year. 

As of this report, there are 1544 uniformed men as com- 
pared to last year at this time when there were 1686 uniformed men. 
As a result of the budget cut there will be no funds available for 
hiring of new men, and, taking into consideration retirement and 
resignations during the coming year, we are very concerned that 
the level of fire protection that has been afforded to the people 
of San Francisco will be reduced. 

Chief Casper and his men are working very hard under diffi- 
cult times. Many firefighters are working overtime to provide the 
dedicated service the people of San Francisco have had in the past. 

The Fire Department this year has responded to many more 
calls. Below is a list of incidents for the first 8 months of this 
fiscal year as compared to last year: 


Total Incidents 




False Alarms 


Rescue Calls 




Greater Alarms 





+ 8.9% 


+ 13.1% 


+ 16.2% 


+ 17.0% 


+ 75.9% 


+ 27.8% 

As you can see there was a very sharp increase in resuscitation 
calls. Chief Casper has expressed the department's need for personnel 
training to qualify men for Emergency Medical Technicians. However, 
budget cuts make it impossible to have such a program this year. Taking 
into consideration that most incident calls have increased, we want to 
again stress the importance of the decreasing budget and manpower in 
the department. 

Arson fires have decreased slightly this year (a decrease 
of 3.7%) but it is still a major crime in San Francisco. We are glad 
to report that the Arson Task Force has added an additional man from 
the District Attorney's office and from the Police Department. Arson 
arrests are up for this year (+2.92%) and we express our appreciation 
for a fine job. 

The Communication Center of the Fire Department is equipped 
with the most sophisticated equipment available. A call into the center 
is responded to within minutes and is monitored the entire time. 



One area of controversy this year was the funding of the 
Fireboat Phoenix. The Port has paid for the first three quarters 
and the last quarter will be paid by the Fire Department. As of 
July 1, 1979, the Fireboat will be put on a standby basis. The 
Fire Department, Port and Board of Supervisors are trying to arrive 
at an equitable solution. As of this report there has been no final 
determination. We feel that the Fireboat is an important piece of 
equipment to have operating full-time with the increasing develop- 
ment of the Port. The new Fireboat Phoenix will be ready for 
service sometime in 1981. 

We again would like to commend Chief Casper and his men 
for continuing to give the people of San Francisco the protection 
they have received in the past even though they are working under 
such difficult restraints. 


The office of Emergency Services is dedicated to protect- 
ing and saving the lives and property of the people of the City and 
County of San Francisco. This office is our main source of con- 
trolling emergency operations for any possible disaster that may 

This department, under the office of the Mayor, has been 
headed for the past 10 years by Mr. Edward Joyce. During his time 
as Director, Mr. Joyce has brought our disaster plans up to state 
and federal standards so that the City and County of San Francisco 
may be fully reimbursed by both agencies. During this fiscal year, 
the emergency programs continued to be fully approved by state and 
federal governments. Approval of our program is required to main- 
tain eligibility for receiving federal matching funds. The federal 
matching funds provide 50% reimbursement to the general fund for 
staffing and administrative costs. 

The office of Emergency Services has moved to its new 
office located at 814 Mission Street with a substantial savings 
in rent from its previous location at 6221 Geary Blvd. 

As mentioned in last year's Grand Jury report, Mr. Joyce 
feels that there is a great need for a central location to house 
all communications, i.e., Fire Department, Police Department and 
Ambulance Services. There has been a study made on a potential 
site. As of this report, this is still being reviewed. It is the 
recommendation of this Grand Jury that a central location would 
better control and coordinate departments that would be involved 
in an emergency situation, and we consider this to be top priority. 

We would like to commend Mr. Joyce for his fine efforts 



in maintaining such high standards for this office for the pro- 
tection of the people of San Francisco. This jury learned from 
Mr. Joyce that he will be retiring at the end of this fiscal 
year and we hope that his successor will continue to serve this 
office and the people of San Francisco as effectively as Mr. Joyce 
has during his time as Director. 


Under the direction of Mr. Richard Heath, we found the 
Airport to be a very well managed department and this committee 
received a most courteous and organized tour. 

We visited the newly completed North Terminal. The main 
tenant is United Airlines, which unfortunately had been on strike 
for several months causing substantial loss of revenue to the Air- 
port. The new North Terminal itself will be the tenth largest in 
the world. 

The break-even operating budget for this fiscal year is 
approximately $76,000,000. The Airport is expected to handle 
24,000,000 passengers by the year 1982. With the new addition to 
the parking facilities it will be able to handle up to 7,000 cars. 
The target date for completion of the additional parking is 1981. 

The medical facility at the Airport is headed by Dr. 
Lawrence Smookler. We found the medical services available at the 
Airport very impressive. San Francisco is the only airport that 
has a full medical clinic. They average 50 people per day for various 
medical treatments. They also give examinations to airline personnel. 
They can respond to any portion of the Airport within minutes with 
a portable ambulance that Dr. Smookler has devised. This ambulance 
is equipped with the most sophisticated life saving devices avail- 
able. We felt that with the increase of traffic that is expected 
in the near future, Dr. Smookler' s clinic is in great need of more 
space and we hope this can be achieved in a short time. 

We also met with Chief Dempsey who at the time of our 
meeting was in charge of Airport Police. There was at that time 
some conflict with the San Mateo Sheriff's Department as to who 
has jurisdiction. We have since learned that the Airport Police 
have been taken over by the San Mateo Sheriff's Office. The Air- 
port Police Force presently has 207 officers and does a fine job. 

The people of San Francisco should take pride in the very 
efficient manner in which the Airport is being managed by Mr. 
Heath and his staff. Our feelings are that Mr. Heath is very 
dedicated in maintaining the best possible facilities to keep the 
Airport at its now high standards. 



We would like to make mention of one area that we feel 
could use some improvement. This jury was able to attend a yearly 
disaster drill held to evaluate the performances of each depart- 
ment that would be called upon if an air disaster should occur. 
Although we do not have the expertise in this field, viewing the 
sequence of events and responding times, we felt that the exercise 
could and should have been handled more efficiently. This area 
should be further looked into by next year's Grand Jury. 

We would like to thank Mr. Heath and his staff for trying 
to help us understand the mechanics of operating a very complex 

Flora Aramian 

Vivian Kalil 

Edith Griego, Chairman 



The police perform an essential and most difficult role 
in the community every hour of the day and every day of the year. 
They serve the people, enforce the laws, and arrest those who 
violate them. In order to function properly they require train- 
ing, organization, and strong leadership. 

The morale of the police officers was noted to be very 
low from rank and file members through the middle staff. There 
seems to be a lack of cooperation, communication and respect 
within the ranks. The suit by the Officers For Justice is now 
settled. Promises of pay raises and new recruit classes should 
improve morale. We found many departments short of personnel, 
but still trying to keep up with their work load. The crime lab is 
short of expensive instruments and needs more storage space. The 
unit answered 8,304 calls in 1978. The crime lab is satisfied 
with their present technical staff. The new space for finger- 
print files is progressing nicely. Much time is lost testifying 
in court. 

The recruit training in the Police Department deserves 
special commendation. It shows the Department understands the 
necessity for police officers to have adequate academic and field 
experience before they are expected to perform this vital job 
independently . 

The current training program was initiated in San 
Francisco in March 1977. Since then, 230 recruits have partici- 
pated with one academic failure and 30 street failures to date. 

The basic training program consists of eighteen weeks 
of study at the Police Academy, currently located on Treasure 
Island. Classes beginning in late 1979 will be conducted at 
the presently vacant Fremont School. Successful completion of 
the Academy phase of training is based solely on examination 

After successful completion of the Academy training, 
the recruit participates in field training and evaluation pro- 
grams for fourteen weeks. Recruits are assigned to a Field 
Officer at either Mission or Northern Stations. Then they are 
assigned to three different officers, one for each month. 
Recruits are assigned to a police car with a Training Officer. 
Specific aspects of Police Field Training are measured daily 
by the Training Officer. Bi-weekly, the Training Officer or 
Sergeant and the F.T.O. (Field Training Officer) staff meet 



to discuss the recruits' progress. If not satisfactory, remedial 
action is planned and undertaken by the Training Officer. There 
have been eighty Field Training Officers in the Department, but 
their number has been reduced by transfers and promotions. 

We thank the F.T.O. personnel and the Academy for their 
excellent work in the past and we look forward to their future 
success in training 640 recruits in the next two years. 

We recommend Pre-Test Training before Academy; more 
performance under stress; and testing for proficiency in reading, 
writing, reasoning, and decision making. Driver's Training 
should be performed in the same type of vehicle that is used in 
the field. The cost of training an Officer is approximately 
$30,000. The next Grand Jury should inquire into the progress 
of the studies underway for psychological screening of police 

Congratulations to the 174 police officers who were 
promoted to sergeants and assistant inspectors in June, 1979. 
These were the first promotions to these ranks since 1976. 

Elizabeth A. Dowd 

Marvin Jones 

Frank Harrison, Chairman 



Mr. Philip Siggins is the Executive Director of the Board 
of Permit Appeals. He was appointed by the Commission and his salary 
is set by the Board of Supervisors. 

The Department is an Administrative Hearing Board to help 
citizens who apply and are denied a permit. These permits are turned 
over to the Board of Permit Appeals and are acted upon by the board. 
These appeals sometimes take from three to four months before a permit 
is granted or denied. 

The function of the Board of Permit Appeals is to hear all 
appeals from issuance or denial of any permit, license, variance or 
any other specified land use entitlement. A permit is a form of 
regulating the use of; a license is a form of raising taxes and a vari- 
ance is a city planning term which is a deviation from a strict plan- 
ning code. There is a $10.00 fee for a regular permit, $25.00 for a 
cab driver or street vendor and $100.00 for a variance permit. The 
applicant has not less than five nor more than fifteen days to file his 
appeal. The Board of Permit Appeals must act within forty days or the 
permit expires after the filing date. There are usually two public 
hearings for each appeal. A licensed contractor does not have to take 
out a permit, but a property owner must take out a permit for any re- 
modeling or repair, etc. Smoke detectors must be installed by 1980 
in all properties new and old. 

The budget for 1978-1979 was $55,000. The Mayor recommended 
a budget for $53,000 for the fiscal year 1979-1980 which was approved 
by the Board of Supervisors. 

Mr. Siggins has a staff of three; a very efficient Secretary, 
Mrs. Mattox, two CETA Administrative Aides, one has a law degree and 
the other a Bachelor's degree. The CETA employees handle 90% of the 
telephone calls. 

This office has a critical acoustical problem which creates 
difficult working conditions. Carpet runners are being installed to 
help solve this problem. The office is crowded and is in need of 
filing cabinets for storage of records presently being kept in Bekins 
boxes. The purchase of an electric typewriter has been approved for 
the office but only $400.00 has been appropriated. 


Mr. John Frantz was appointed City Librarian in February 
1977 and is an asset to the San Francisco Public Library and the public 
at large. Mr. Frantz has three major subordinates, Chief of the Main 



Library (William Ramirez) Chief of Branches, (Karen Scannell) and Chief 
of Technical Services (Mrs. Vivian Goodwin), who has retired recently 
and her job as of this date has not been filled. The budget for the 
fiscal year was approved by Mayor Dianne Feinstein for $6,947,300 
which is approximately 98.8% for the year of 1979-80. The Library 
will loose 20 CETA employees out of 100 by September 30th of this 
year. The position of Assistant City Librarian has been abolished. 
The public relations position and some clerical positions will be 
abolished on July 1st, according to Karen Scannell, Chief of Branches. 

There are 26 branches in the City. The downtown Kearney 
Library which serves mostly Law Firms, Business Executive Organiz- 
ations and Corporations. This Library is heavily used and extremely 
important and much needed in the Financial District. Books and refer- 
ence material may be rented from the Kearney Library. Many of the 
same basic reference materials can be obtained from the Main Library 
but the Kearney Downtown Library is more conveniently located for 
the people who use it the most in the financial district. The public 
Libraries serve the City and County Jails, also the women's prison. 
Books and films are sent by the Bookmobile to the jails on a regular 
basis and specific requests from inmates may be made which the 
Librarian in charge of the Bookmobile endeavors to meet. 

In each area of the City more than one branch library may- 
be located. In an effort to meet the need of the citizens in a 
given area one or more of the branch libraries may emphasize part- 
iclar uses, for instance the Richmond Library is known as a basic 
reference library while the Presidio Branch Library is known as a 
Communication Center with emphasis being placed on the needs of the 
handicapped citizens. The Library endeavors to meet its budget 
restrictions while allowing the greatest access possible to each 
Library by having the Libraries scheduled to open and close at 
various times on a rotating basis. 

The Library payrolls are now on the City's Electronic 
Data Processing System and it is now working satisfactorily. 

One of the greatest problems the library faces and which has 
a direct effect on its budget is the problem of the theft of books and 
materials from the libraries. In an effort to minimize this problem 
several libraries have installed a theft detection system, much like 
that used by department stores to counteract shoplifting. There is 
less theft since this system has been installed which proves that the 
expense of installation has been worthwhile and the system is effec- 
tive. Vandalism still occurs to a greater degree than desired and 
guards are needed in the areas where the incidence of vandalism 
remains high. 

There are many different programs for adults and children 
which are specially funded. The Friends of the San Francisco Public 



Library is an organzation that provides volunteer services and helps 
promote events by the sale of books to the public. These books are 
donated by organizations, estates or individuals. They are reviewed 
by the Librarians before going on sale and those that can be used are 
sent to the various branches and the balance is sold. Revenues from 
the sales finance purchasing of needed books for the library. 

The Presidio Branch houses a Communication Center which is 
an advanced electronic system which was built for the handicapped by 
Roberto Esteves, director. Grants were obtained in January of 1978 
and expire on June 30th of this year. The money from the two grants, 
which was $209,000, was spent for electronic equipment and salaries 
for two staff employees. The center accommodates the deaf, blind, 
wheelchair handicapped citizens, and those with speech defects. 
There are 25 to 30 handicapped citizens a week using the services of 
the center, and those in wheelchairs are unable at present to enter 
through the main entrance. A ramp and elevator are in the process 
of being installed. They are to be completed by September of this 
year. Special toilet facilities are also being installed. As soon 
as these projects are completed increased usage of this branch is 
anticipated. Until this occurs, the staff carries on an extensive 
mailing program to accommodate requests by telephone from those citi- 
zens who are unable to enter the library. Pamphlets are sent out 
from the center to notify the handicapped of the latest books and 
materials on video-tapes and records. There are 10,000 volumes of 
talking books, video tapes, audio-cassettes and records, all catalogued. 
There are 1600 cards in braille for the blind which were typed by 
a very capable blind CETA employee. This branch has a TTY system 
which enables deaf citizens to contact the library and make requests 
for books and other materials. Some films are captioned in order to 
provide wider usage for the deaf. The blind citizens who use the 
library can attach earphones and listen to the tapes, cassettes or 
recordings they wish to hear. 

There is a sophisticated video system devised by Roberto 
Esteves which enables the library to show films and cassettes on 
several different channels simultaneously throughout the library as 
well as enabling the staff to produce its own film. 

A federal law now requires all public buildings to provide 
ready access for the handicapped. The San Francisco Public Libraries 
are in the process of endeavoring to meet this requirement. 


Mr. Edward L. David was appointed Port Director on October 
4, 1978 after eighteen years service with the Port. He had been Acting 
Port Director since November 1977. He is ably assisted by Mr. Tony 
Taormina a Port employee for five years, as well as a staff of 35 to 



40 out of a total of 191 employees. The Port of San Francisco is 
now focusing on expanded usuage of maritime facilities south from 
China Basin to Hunters Point. This area of the waterfront has modern, 
well maintained facilities to handle containerized cargo, modern grain 
elevators and good access to rail services and one switching line, 
which serves all deep draft facilities. The Port handles the largest 
percentage of break-bulk cargo on the West Coast, 60% of all the 
Port's cargo is break-bulk. Break-bulk is loose cargo which does 
not include dry or liquid bulk. 

There are two Auto Terminals: one at Pier 70 presently 
being utilized by the Fred F. Noonan Company Inc., which brings in 
mostly European imports, the other at Pier 92 is not utilized at present 
however. The Port has narrowed down three potential users and it will 
be utilized within a short period of time according to Ms. Krista 
Fugelstad, Marketing Research Specialist, who came aboard in November 

The Southern waterfront is equipped and has the capacity to 
handle approximately 5,000,000 tons a year according to the Port 

The Port has acquired two new major shipping lines: Lykes 
Brothers Steamship Company, Pier 80 (an American Flag Company) 
with a total of eight ships, four sailings per month, Evergreen 
Steamship Company, Pier 96, which has four container ships en a 
twelve day cycle into and out of San Francisco. Revenues from both 
shipping lines should be approximately $1,350,000 a year. Evergreen 
is the first shipping line to return to San Francisco from the Port 
of Oakland. This is due to considerable efforts made by the new Port 
Management and makes it appear probable that other shipping lines which 
do not have long term leases with the Port of Oakland may be in- 
duced to return. Delta Steamship Line is the only American steam- 
ship line based in San Francisco. Water channel depths of thirty- 
five feet are maintained at the Northern waterfront and depths of forty 
feet at the Southern waterfront, Piers 70,80,94,96 and Islais Creek. 
San Francisco, being a natural deep water port, does not require the 
constant dredging to maintain its depths as a Port such as Oakland does. 

The budget of $18,000,000 has been approved for the fiscal 

Maritime revenues are approximately $2,000,000 a year. Park- 
ing meter revenues bring approximately $200,000 a year to the Port. 
These funds are retained by the Port since all Port lands are still in 
trust from the State for a period covered by a sixty-six year lease. 
There are seven hundred (700) parking meters on waterfront property 
which are controlled by the Port. Revenues from Fisherman's Wharf are 



approximately $3,000,000 a year and the fines from the parking meters 
on Port property go directly into the City General Fund. 

The fireboat Phoenix is still being maintained by the Port. 
The San Francisco Fire Department has not made any contribution for 
this year, but is to pay the cost of the fireboat for the last quarter 
of the fiscal year. The cost of operating the Phoenix is $1,200,000 
a year. 

Mayor Dianne Feinstein, Mr. David and two transportion 
employees plan to travel to Shanghai and Beijing to promote foreign 
maritime trade. There will be one representative from Southern 
Pacific Railroad and a representative from the stevedores. 

Non-Maritime Developments: Pier 39, which is a Warren 
Simmons Project, has had many problems since beginning its operation 
in October 1978. Litigation involving the Port, and Pier 39 is 
currently being handled by the City Attorney and the District Attorney. 
The rent paid the Port by Pier 39 based upon revenues earned by the 
Pier, as well as taxes paid to the City by Pier 39 through its 
corporation, and the structure of this tax base are among the items 
under investigation. 

The Ferry Building which will have a refacing, a Promenade 
Deck which will start at the Agriculture Building down through Pier 
22, target date 1980, will help to improve the waterfront, and hope- 
fully will bring additional revenues to the City. Pier 35, the only 
passenger pier will be refurbished by money from the Head Tax. All 
passengers are taxed $3.00 a head for debarking and embarking. The 
Head Tax was approved March 10, 1979, and became effective April 12, 
1979. First revenues from this tax are expected to be received by 
June 30th, according to Mr. Toni Yerkes. 

Recommendations for the Port are: Promote Maritime business 
to increase Port revenues by additional traveling to actively seek 
new tenants for the presently vacant excellent facilities, augmented 
by a concentrated advertising program at home and abroad. Rent 
unoccupied buildings on Port property where appropriate and feasible. 
Improve the deteriorated Commercial Fishing area. Commercial fisher- 
man have been requesting for twenty years that a breakwater be built 
which would protect their vessels. It is this committee's recommend- 
ation that a breakwater be constructed without further delay. 


The War Memorial, Herbst Theatre, Green Room and Museum of 
Modern Art are located in the Veteran's Building. The Opera House 
and the Veteran's Building occupy the same block bounded by McAllister, 


WAR MEMORIAL (continued) 

Van Mess, Grove and Franklin. The Louise M. Davies Concert Hall is 
now under construction and hopefully will be completed in 1981. The 
Concert Hall will be under the jurisdiction of the War Memorial. The 
Zellerbach Rehearsal Hall will be behind the Concert Hall. The Perform- 
ing Arts Center will be the second largest in the nation. The cost of 
the new Performing Arts Center will be approxmately $34,000,000. 
This cost is being met by private funding and some federal funding. 
The addition to the Opera House will cost approximately $4,200,000, 
which is funded by the federal government's EDA program applied for by 
the City. There is $31,000 left from grants for the Herbst Theater. 
These organizations function under the City Charter. 

Mr. Michael J. Raines was appointed the new Managing Director 
of the War Memorial on November 13, 1978. Mr. Frederic Campognoli, 
President of the Board of Trustees, and Board Members were pleased 
with the appointment. Mr. Raines has been associated with the Arts 
since early childhood. He is considered by the Board to have outstand- 
ing qualifications for this job. 

The budget for fiscal year 1979-1980 has been approved by 
the Mayor and Board of Supervisors for approximately $1,161,151; this 
is the Mayor's recommended 95% budget. Revenues are collected from 
rentals from the Herbst Theatre, Opera House and Greyhound Concessions 
which go into the General Fund. 

The four and one half CETA employees and six guards will 
remain on the payroll. Several positions will be eliminated. The 
Louise M. Davies Concert Hall when completed, will create 23 new 
positions which are not included in the 1979-1980 budget. The firm 
of Heidrick and Struggles, Incorporated, will conduct a national search 
for candidates for the new General Manager for the Performing Arts 
Center. Mr. Raines is also a candidate for the position. Purported 
salary for Managing Director will be approximately $60,000 to $100,000 
a year. 

The remodeling of the Herbst Theatre was completed in June 
1978, and went into revenue producing usage immediately. It has a 
seating capacity of 900 and is used for music recitals, acting groups 
and Junior Leagues' , films and film festivals. 

The lobby and the storage area of the lower level of the 
Museum of Modern Art are being renovated and the elevators automated; 
one elevator operator's position will be eliminated. The financing 
for the automation is to be provided by the Bank of America. The 
Museum of Modern Art has an international reputation and attracts 
many visitors to the City as well as providing the citizens of the 
Bay area their best museum of Modern Art. 

Vandalism and crime still occur to a greater degree than 
desired and remain high in the entire area. Vandalism and crime are 


WAR MEMORIAL (continued) 

reported to the Mayor's office and the Police Department. 

There are ramps in the last two rows of the Herbst Theatre 
accommodating handicapped patrons in wheelchairs. They are hoping 
the wheelchair patrons will be able to attend rehearsals as well as 
the performances. 

The acoustics of the Herbst Theatre have brought criticism 
from some sources. The entire acoustical system is being re-eval- 

The function of the Friends of the War Memorial is to 
seek grants, private contributions and funds from private foundations. 
The funds are used for maintenance and improvements. They also 
provide assistance for neighborhood groups and organizations that 
wish to use the Performing Arts Center. They are a private non-profit 

It is this committee's recommendation that better Police 
patrol and protection to and from the Opera House and War Memorial be 
given priority attention. The Concert Hall should maintain and project 
an image which will draw a greater number of patrons especially those 
in San Francisco, and the Bay area. 

Mildred Rogers 

John Collins 

Blossie Williams, Chairman 



In a cover letter accompanying the Municipal Railway 
Five Year Plan '79- '84, a study sponsored and partially funded 
by the Urban Mass Transportation Administration (UMTA) , General 
Manager Curtis Green states: 

"The uniqueness of San Francisco as a civilization 
owes a lot to the presence of pervasive public 
transportation in the City. The human scale, the 
concentration of activities, and the delicate 
balance of topography and neighborhood structure 
could only have occurred through the transporta- 
tion service provided by MUNI and its predecessors 
and can only be sustained by the wise use of the 
limited transportation resources we have available 
to us today and for the future." 

Because of the importance of MUNI to the daily life of 
San Francisco, it is imperative that some hard choices be considered, 
and the indicated actions taken, as soon as possible. In addition 
to internal problems, events out of control of MUNI and the City, 
such as Proposition 13, increases in diesel fuel prices, and general 
unabated inflation, are rending the fabric of the MUNI Railway 
to the point where serious dislocations of service, safety and 
maintenance will become manifest. 

It behooves not only the management of MUNI and the 
Public Utilities Commission, but the Citizens of San Francisco 
as well, to immediately address themselves to the present critical 
situation, with an aim towards planning' and implementing desperate- 
ly required actions. 

Curtis Green further remarked: 

"No business can, and no public service should, 
continue indefinitely to produce a product 
without occasionally redesigning that product 
to reflect changes in the market." 

To this end, under the auspices of UMTA, the -MUNI has created a 
separate and new department called the Planning Division, in order 
to examine the present MUNI system, and to determine and recommend 
changes in a unified and comprehensive fashion. 

This division is under the extremely capable direction of 
Tom Matoff, an energetic and devoted public servant, whose quali- 
ties of intelligence and drive, along with those of Peter Strauss, 
have resulted in the aforementioned Five Year Plan. This study is 
extremely thorough and specific, and is essentially sensible in its 



recommendations . 

The analysis and conclusions drawn in the Five Year Plan 
are the product of over 70 presentations by the planning staff be- 
fore neighborhood associations, employment groups, and community 
organizations during the period August 1977 to April 1978. Work- 
shops in all eleven supervisorial districts were held to discuss 
route changes and design alternatives, explanations given, 
questionnaires distributed and assessed, all of which culminated 
in the proposed Five Year Plan. 

A summary of the plan in tabloid form is available by 
mail, while full copies of the report have been placed in all 
branch libraries, and are available to organizations on request. 
The report is quite exhaustive and touches on, among other things, 
how the plan was developed, service standards for transit, 
deficiencies of the present system, an evaluation of alternatives, 
downtown services, regional access to other carriers, fare collec- 
tion, transit preferential streets, recreational services, system 
improvements, MUNI Metro and related rail services, the cable 
cars, the trolley coaches, motor coaches and the service quality. 

As a result of the extensive public participation by 
citizens, groups and merchants, and because a branch of the 
MUNI itself, as opposed to outside consultants, worked directly and 
intimately on it, this report should meet with little resistance in 
effecting its recommendations. 

Although the Five Year Plan is quite broad in its scope, 
another report entitled Financial Strategies For the Municipal 
Railway, prepared by a private consulting group, Gruen, Gruen & 
Associates , addresses itself to finances. It projects that the 
cost of operating present and planned MUNI services will grow from 
1979-80's of $94,900,000 to $108,800,000 in 1988-89, while revenue 
for 1988-89 will be only $108,200,000, if MUNI continues to be 
funded on the same basis as at present. The report suggests alter- 
natives for increased funding, including increased federal or state 
support, increased City support, further cost reductions over those 
already projected, reductions in service, service improvements which 
increase revenues more than costs, and probably most significantly, 
increases in fare levels or changes in the fare structure which 
increase fare revenue and trigger the release of State AB 1107 
funds (monies which come from the State when a transit district 
shows that it is internally generating at least 33% of its own 
costs through fare collection) . 

Gruen, Gruen & Associates feels that MUNI is receiving 
as much federal and state aid as can be expected at the present 
policy levels, and doubts that the City's General Fund will 
substantially increase its contributions. Short of enacting new 



taxes, it is felt that additional funding will have to come from some 
sort of adjustment to the fare structure and transfer system. The 
report presents scenarios showing the socio-economic impact of 
proposed rate structures and service changes. 

Some particular problem areas were noted by the Grand Jury 
in its attempts to delve into the labyrinthian MUNI. The very size 
of MUNI, in fact, is one of the problems. It was frequently heard 
throughout numerous departments, especially the Cable Car Division 
and MUNI Metro Task Force, that huge gaps of understanding and 
accepting responsibility exist between those at the working or im- 
plementing level and those in top management, with much of the blame 
being placed in the middle. Often there was a duplication of posi- 
tions, at least decision making-wise, leading to conflicts in 
authority. The Rulebook for Platform Employees (governing the opera- 
tors of the various transit vehicles) is rife with contradiction 
after contradiction, thereby allowing for interpretation by whim, 
and resulting in a decrease in employee morale. Admittedly, an 
organization with as many divisions and employees as MUNI can be 
difficult to oversee, but it was nonetheless felt that a basically 
inadequate middle management was at fault much of the time. 

Under the direction of new PUC General Manager Richard 
Sklar, a new streamlining of accountability is becoming evident. 
For instance, in the area of Equipment Maintenance, which deals 
with keeping the rolling stock operative, the person in charge 
there, Mr. Baggetta, is now directly answerable to Mr. Sklar, 
thereby bypassing two levels of MUNI hierarchy. This undoubtedly 
has helped get and keep more streetcars and buses back in service 
and reduced missed runs. Hopefully, Mr. Sklar will continue this 
approach, putting aside political considerations and maintain his 
emphasis on performance over excuses. 

Too long the MUNI has existed unto itself, acting in its 
own bureaucractic self-interest, and thus discouraging the good 
intentions and productivity of its many capable workers. There 
seems to be a new breed of employee coming into MUNI in recent 
years, such as those in the Planning Division, and a group of 
dedicated electronics wizards at the LRV streetcar maintenance 
facility, who are anxious to make their contribution to improving 
transit in San Francisco, if allowed to do so. Additionally, there 
are many seasoned workers in such areas as cable car design, main- 
tenance, and operation, and fabrication of streetcar parts, whose 
experience and resourcefulness are undervalued and underutilized. 
An unfettering of the latent talent within MUNI could significant- 
ly affect for the better the overall operations, and should be 
strongly encouraged, rather than actions to the contrary being 

We suggest that to the extent possible, Mr. Sklar enlist 
pro bono the aid of management consultants to determine and evaluate 



the necessity of much of MUNI middle management. If solid 
responsibility for results, in lieu of excuses, can be sub- 
stituted as criteria for career advancement, much of MUNI, 
and the riding public at large, should benefit. 

Charles K. Desler 
Genelle Relfe 

William D. Kremen, Chairman 



The Department of City Planning, is organized under the City 
Planning Commission. Mr. Rai Okamoto, the Planning Director, has an 
excellent knowledge of his department and continues to run his office 
efficiently. His staff is comprised of two-thirds CETA and part-time 
workers and one-third civil servants. 

To meet demands due to proposition 13 Mr. Okamoto now finds 
that the continued increase of workload in his department necessitates 
a substantial increase of staff. The training program of CETA also 
requires staff teaching. He has been much concerned with the shortage 
of staff. 

Security Officers are required to prevent loss of office 
equipment. The Department has three separate locations, and it was 
sugguested by past Grand Juries, and this present Grand Jury will again 
recommend that this department be quartered in one building so that 
services can be made more efficiently, quickly and economically. This 
no doubt requires space. 

The Planning Director makes reports to Mayor Dianne Feinstein 
and the Board of Supervisors of all City Planning Programs. If Neces- 
sary, they may have open public meetings with interested neighborhood 
individuals on any future planning affecting their areas. 

Due to Proposition 13, financing and budgeting matters on various 
improvements, and future developments of planning of the City nave become 
rather restricted. 


Thirty years ago the State Legislature recognized that there 
was a need for an authority to function as a public corporate body known 
as the Parking Authority of the City and County of San Francisco. ( Calif- 
ornia Streets and Highways Code. Sec. 32501). The San Francisco Board of 
Supervisors recognized the need for such a parking authority and the 
Administrative Code, chapter 17, expressed this need and assigned juris- 
diction over parking projects to the Parking Authority of the City and 
County of San Francisco. The State Code (Sec. 32656, Streets and High- 
ways) mandated a five-Member authority. 

The five present members are Donald Magnin (Chairman), Richard 
J. Guggenhime, Francis H. Louie, Michael J. Mc Fadden, M.D., and Achille 
H. Muschi. 

The Staff is composed of three members including Mrs. Margaret 
L. Brady, Director. 



There is a constant public demand for garages and parking me- 
ters. The Parking Authority has or is constructing new garages at Moscone 
Center, the Performing Arts Center and parking meters in the North Point 
and Richmond districts. 

Mrs. Margaret L. Brady, Director, has run her office most 
efficiently and this committee commends her for the work well done. 

We the Grand Jury believe that this Department should not be 
allowed continued operation as a separate entity but should be absorbed 
by the Department of Public Works, the City Planning Department, thereby 
eliminating its present duplication of the work effort, and making smaller 
the large bureaucratic governmental structure that is City Government. 


In spite of the many tasks that are required of this department, 
the performance under the able management of Mr. John J. Spring as General 
Manager, his technical assistant Tom Mallory and the Recreation and Park 
Commission guidance and control by Mr. Eugene L. Friend have been most 

This agency covers many responsibilities, such as the main- 
tenance of Yacht Harbor, Recreation and Park General, the Zoo, Candlestick 
Park, golf courses, swimming pools, camp sites, and open space areas as 

Funding has become quite an important matter for consideration. 
Fees, for example, in the use of golf courses, and stables for the upkeep 
of horses for private owners are being studied, as well as others such as 
for maintenance and other repair work. 

We were told of the many functions of the department, such as 
classes for Arts and Crafts, Drama, Dancing, Music, Photography, services 
for the handicapped, services to promote various activities for the 
Community. Some of the teachers and others in the neighborhoods have 
volunteered their services. To cover some of the incidentals a nominal 
charge is levied for students that are taking various classes given by 
the Recreation and Park Department. 

Application has been made to the Board of Education for lease 
of a vacant building which has not been utilized and has been vacant. 
The purpose is to use it for the Senior Hobby Activities Center. The 
School District may lease it to the Recreation and Park Department for 
k2% lower than leasing fees that are charged to private individuals. 

Since November 1974, the Funding of $9 million has been increased 
each year by $1 million but will not be possible now, because of a drastic 



cut due to Proposition 13. The staff of 163 has been reduced to 133. 

The maintenance and upkeeD of the parks, and heating and lighting of 

the buildings, will suffer due to a shortage of gardeners, painters, 

and equipment. 

This department has done so much to benefit the morale of the 
community and it is most desirable for the City and County that it should , 
continue to function Just as well as before Proposition 13. 

Firm System 

The computer system which started In September, 1978, seems to 
be running well. Computing weekly salary of the employees of the 
Recreation and Park Department. This record is filed In the City Hall 
at E D P Department and Controller's office for salary research, budget, 

To meet with various department heads, Department of Public 
Works, Police, City Planning, Controller, Computer Deoartment, Assessor, 
(re-ieasing and renting of place for Park and Recreation Department.) 

Obtaining new grant for funding 100 CETA employees. 

June 1, 1979 - Special Art of King Tutankhamen 

Vendors have erected tents for the sale of hamburgers, hot-dogs, 
and refreshments, etc. Contracts for renting spaces at Recreation Park and 
outside areas of Art Museum, will provide an estimated income of $22,000.00 
of 9% of the amount required for the leasing. 

Volunteers or part-time workers provide security services and 
they do not carry arras, but then have the mounted police on horses to 
back up and check that every thing is all right in various areas of 
Golden Gate Park or the other playground areas, as well. 

Candlestick Park was replacing its baseball field with grass 
turfing this year for the opening game of the baseball season for the 
San Francisco Giants. 

The Recreation and Park Commission and department are very 
thorough and cautious in conducting their public hearing of neighbor-* 
hood committees and coming up with fair and wise decisions on various 
things that were brought to their attention. 

This committee is very appreciative of the cordial reception 
and the cooperation received from the Department Heads, especially from 
the General Manager, Mr. John J. Spring. 

Flora Aramian 

Morris Rabkin 

Olimpia M. Xavier, Chairman 


The Social Services Department is made up of 1^7^ perma- 
nent employees, 110 temporary and 63 CETA and 5 commissioners. The 
diversity of their backgrounds, education and professional experi- 
ences has been of great value to both department clients and staff. 
The staff continue to support the sound proposals for all projects 
and grants. They have expanded the program of emergency shelter 
care program for dependent, neglected or abused children. The de- 
partment has provided on-site training so that employees can obtain 
Master's degrees in Social Work. All hiring is done by the department's 
own Personnel staff. The department has put great effort into trying 
to place many of the 1^00 children in emergency care shelters back 
into their own homes. The in-home services for elderly and disabled 
citizens has been approved by the federal government at $7.98 per hr. 
The agency has been able to place under contract service for 1300 
elderly people, disabled and blind. Of the whole caseload of people 
with in-care services ^500 are still not under contract. The contract 
agencies provide trained, reliable workers who neither neglect nor 
"rip-off" the patients. 

The past fiscal year the department has been able to decrease 
the caseload of people on general assistance. This has been accom- 
plished by a better screening program of all applicants. The Aid to 
Families with Dependent Children showed a decline in caseloads. Also, 
the Medically Indigent Adult program provides Medi-Cal for many adults 
in the City. Eligibility factors are income, property and residence. 

The Department of Social Services provides many services to 
the citizens of San Francisco. 

Congratulations to the staff and Director Mr. Edwin S. 
Sarsfield, who seems to be both capable and innovative in his direction 
of this very important department. 


The policy of this Commission is action to obtain equal 
rights for every inhabitant of the City and County of San Francisco. 
The Commission is made up of 15 Commissioners, 2^4 staff, of which 18 
are professional Legal Investigators and 6 are administrative and 
clerical. The Commission has established 6 Standing Committees which 

1) EMPLOYMENT - The affirmative action program monitors 
City Contractors because of City money paid for services, to see that 
minorities are hired. During this year this Commission has made a 
great thrust in this program. They have obtained commitments from 
38 major City agencies to follow H. R. C. affirmative action of all 



contracts awarded. Also, a new policy has been established that all 
user agencies pay fees to H. R. C. for affirmative action programs. 
Some already are paying fees namely, Hetch Hetchy, Waste Water, Airport, 
and possibly Moscone Convention Center. The Commission is working 
towards having other agencies pick up affirmative action costs. 

2) GAY ADVISORY - This committee recognizes the good faith 
efforts fo the Gay Community and urges public understanding and po- 
sitive social attitudinal changes. The committee has answered approx- 
imately 3*10 Gay-oriented complaints. This year they assisted in 
obtaining approximately $50,000 in back pay adjustments for persons 
discriminated against because of sexual orientation. 

3) HOUSING AND URBAN DEVELOPMENT - This committee has been 
active in supporting legislation to help provide and maintain fair 
practices in renting and buying housing with concentrations on minor- 
ities, elderly, and low income people. This committee has been 
successful in obtaining fees for H. R. C.'s monitoring of Housing 

4) POLICE LIAISON/SOCIAL ISSUES - This committee is involved 
in helping police and citizens develop block clubs which are instruct- 
ed in crime prevention and citizen's safety awareness, such as,I.D. to 
protect valuable property and training citizens which emphasizes pro- 
viding information to police in the apprehension and arrest of criminals, 

5) YOUTH & EDUCATION - This committee is concerned with all 
phases of education, students, teachers, Youth Guidance Centers, Juve- 
nile Court Study, Health and Family Life Education, Bilingual Education, 
student discipline and many other programs which help educate todays 

6) ORDINANCE REVISION - This committee submits Resolutions 
to both City, State and Federal Governments recommending support of 
special Senate Bills such as Gun Control, Resolutions of Commendation, 
and Statements of Concern. 

The Human Rights Commission because of budget cuts, has been 
affected most drastically in the areas of Education, Police Liaison, 
Housing-Urban Development, and Gay Advisory. Chapter 12-A (which 
supports Human Relations Issues passed by the Board of Supervisors 
in 196*1) is the initial mandate to reduce inter-group tensions between 
the peoples. It has been reduced considerably. We recommend that the 
board of Supervisors fund the Commission for additional staff to meet 
the requirements of Chapter 12-A, to help alleviate inter-group ten- 
sions. We further recommend that the Board of Supervisors and Mayor 
encourage City agencies to pay H. R. C. fees for their affirmative 
action requirements. 



This Commission Is run by a very capable and dedicated staff 
who are concerned with the well-being of our Senior Citizens. The 
staff monitors all programs that are aimed to help elderly people, 
making sure that all monies spent provide a little extra benefit for 
the elderly citizen. 

The past fiscal year, 1978-79, they have extended the nutri- 
tion program from 5 days to 7 days a week, also covering holidays, 
which now provides a free meal each day for our Senior Citizens. The 
Gold Card is a service available to the Senior Citizen which entitles 
them to a discount for many services that are provided to the general 
public Most of these services are available through a number of 
compassionate and concerned citizens who realize that we cannot shut 
out these well deserving citizens. 

The Commission has a program that supplies information for the 
elderly. They advertise in a pull-out section of the Progress, which 
makes available listings and telephone numbers of services such as 
housing, health care, employment, and sometimes Just plain conversation 
when desired. The telephone information line still operates 2k hours 
a day. The Commission publishes bilingual pamphlets and fliers of 
services available - also social and cultural programs which might in- 
terest our Seniors. 

The Outreach Program is funded by the Commission and opera- 
ted by staff and many volunteers who help train older people to obtain 
more skills enabling them to help each other and preparing some for 
Job opportunity. The Senior Age Employment Agency offers Job place- 
ment for elderly citizens enabling them to supplement their income so 
that they too might try to cope with our steadily rising inflation. 

With rising costs and reduced budgets, we, as some of the 
people of San Francisco, are surprised that one spare change operation 
such as this Commission has successfully provided so many humanities. 
Therefore, we recommend that the Commission be granted the additional 
funds requested from the parking tax that will enable them to hire two 
additional staff members so that more programs can be made possible 
for the Senior Citizens to help ease the fears, financial, medical, 
loneliness and some rejection that often comes with old age. 


This Commission consists of two permanent staff, some part 
time volunteer help and 11 commissioners who meet the second Tuesday of 
every month. They have assisted in placing women in various positions. 



Since all agencies in the City and County are monitored by 
another department and no tax monies are spent for the Status of Men 
nor the Status of Gay Peoples we recommend that this department be 
discontinued and placed under a Commission concerned with all Human 

Genelle Relfe 

Rebecca S. Turner 

John S. Collins, Chairman 


The continuity and success of City programs are dependent 
on City employees performing their jobs, day in, day out. The de- 
partments that exist exclusively for the purpose of ensuring that 
City employees receive the benefits due them are all performing 
adequately considering the restrictions of the City Charter and the 
severe budget cuts placed on all staff departments. 


The Health Service System, under the able leadership of 
Philip J. Kearney, Executive Director, is responsible for providing 
the best possible medical coverage, at a reasonable cost, to all 
members of the Retirement System not exempt due to adequate outside 
coverage, religious belief, or annual salary. Temporary employees 
are not covered by the Retirement System and thus are not covered 
by the Health Service System, per Charter. 

The City's payment for health benefits is $40.08 per month, 
per covered employee, effective July 1, 1979. This payment is for 
one of the following health plans: 1) City Administered, 2) Kaiser 
Foundation, or 3) Children's Hospital. The City payment covers the 
employee only and pays for medical care. Eight of the ten most 
populous counties in California subsidize medical care for the 
employee's dependents as well as for the employee; they also provide 
subsidized dental care. Charter revisions would be necessary to 
provide such coverage for City employees. 

City employees have desired subsidized dental coverage for 
several years, but the voters have not yet provided enabling legis- 
lation. Therefore, employees will pay for a dental plan themselves, 
with no City contributions, effective July 1, 1979. In a strictly 
advisory capacity, the Health Service System analyzed the benefits 
and rates payable for several dental plans; the Health Service Board 
then determined that Safeguard Health Plan was the best for City 
employees. Employees covered by the Retirement System may choose 
whether to participate in the plan. If they so choose, premiums will 
be paid by payroll deductions. Retired City employees who desire 
this dental coverage may choose the coverage by authorizing that the 
premiums be withheld from their retirement checks. Mr. Kearney, 
Executive Director of the Health Service System, will personally do 
the necessary coding to implement initial enrollment. Thus, the 
retired employees' voluntary dental coverage under this plan should 
be effective in approximately September, 1979. 

The automation of the Health Service System is nearly com- 
plete. Funds from the System's Reserves account paid for the imple- 
mentation of the new system. When it is completely effectuated, it 
should save processing time on Plan I (City Administered) claims. 



Phoenix Mutual has been dropped as the carrier of Major 
Medical benefits under Plan I because the company's new rates were 
too high. The Health Service System will assume the entire risk 
for major medical benefits under Plan I and will process these 
claims . 

Because of new regulations by the Department of Labor, 
Public Service Employees ,who have participated in the CETA program 
for eighteen months or more, will be terminated September 30, 1979. 
Therefore, the Health Service System will lose four or five employees, 
including the mail man. Some of these employees may be replaced by 
new Public Service Employees, but in any case, the Grand Jury recom- 
mends that the Health Service System be provided with a permanent 
position for a mail person. We think it extremely inefficient that 
a $40,000,000 insurance company should be expected to operate with- 
out the services of a permanent mail person. We also recommend that 
the Health Service be provided with additional office space; card- 
board boxes which hold files on the top of filing cabinets is an 
example. It would be foolish to provide new filing cabinets unless 
there is space to hold them. 

We compliment the Health Service Board members on their 
cooperation with each other and on the business-like manner in which 
they conduct their meetings, the Retired Employees of the City and 
County of San Francisco for their continued interest and helpfulness, 
and the employees of the Health Service System for their hard work 
and their attention to the necessity of privacy when dealing with 
medical records. 


The Retirement System, through Mr. Daniel Mattrocce, 
Secretary-General Manager, under the direction of the Retirement 
Board, has exclusive control of the administration and investment 
of the funds derived from contributions of member employees, who 
numbered 26,188 on June 20, 1978, and from contributions of the 
City and County of San Francisco. Temporary employees are excluded 
from membership in the system and therefore are not covered under 
Social Security for this temporary City employment, either. 

The City's contribution to the System is paid into the re- 
tirement fund each pay day; the employees' share takes six to eight 
weeks to reach the fund. However, the Comptroller earns interest 
on these funds from the first day. The Retirement System is current- 
ly negotiating with the Treasurer about the collection of this 
interest. This interest on employee contributions should be de- 
posited in the Retirement Fund. 



In San Francisco, Retirement System costs are financed over 
the average working lifetime of an employee — fourteen years after 
retirement. Therefore, San Francisco, unlike some other cities, 
is not spending current income to cover payments it has already 
made to employees who have been deceased for several years. 

Retirement System investments as of March 31, 1979 were 
as follows: 

Bonds and Notes 
Real Estate Equity 





Bonds are not floated until the Retirement Board gives 
its financial statement; therefore such a statement is given every 
time a bond issue is pending. 

Investments are made based on geographical diversity, life 
expectancy, rate of return, and the limitation on the amount of the 
Retirement Fund that can be invested in a single part of the port- 
folio. In 1978, the System first invested in real estate via a 
limited partnership. The return on the investment is expected to 
be between 8.5% and 8.8%. The recent suggestion that Retirement 
System funds be invested in low cost housing will be evaluated by 
the Retirement Board when a written proposal containing information 
regarding the rate of return on the investment and identifying the 
title holder of the involved property, is received. 

Worker's Compensation claims are also processed by the 
Retirement System. Every City employee is covered by Worker's 
Compensation. Because of the high incidence of injuries by tempo- 
rary employees, pre-employment physical examinations are required 
of all temporary employees, including those in the CETA program, 
effective February 9, 1979. Brian Narlock, Claims Manager, is res- 
ponsible for the administration of Worker's Compensation claims. 
His staff works at the Franciscan Treatment Room in St. Francis 
Hospital. This is the place where most City employees are treated 
for industrial injuries; in 1973, employee groups decided they no 
longer wanted to go to San Francisco General Hospital for treatment. 
Furthermore, costs to the City are less at the Franciscan Room than 
they were at San Francisco General Hospital. In late 1978, the 
Worker's Compensation department had one bill clerk to handle 15,000 
unpaid medical bills. Since then, with the help of CETA employees, 
the backlog has been reduced. Increased automation in some of this 
department's procedures would save employee time and effort. For 
instance, checks to entitled employees are prepared by the computer 
without an address, so the staff at the Worker's Compensation de- 
partment must address the envelopes. If addresses were printed, 
window envelopes could be used. In fiscal year 1978, the City paid 
approximately $6,000,000 in Worker's Compensation claims. The amount 



paid increases about 17% per year. That the City has no organized 
Safety Committee and that the Municipal Railway has a deferred 
maintenance plan contribute to the number of job injuries. 

Regarding disability decisions rendered by the Retirement 
Board — 90% of the denied cases that are appealed to the Court 
result in reversals of the Retirement Board decision. Therefore, 
it appears inappropriate to hire an independent hearing officer 
to replace the Retirement Board in an effort to decrease the number 
of disability retirements allowed. 

The Grand Jury recommends that the Retirement System be 
made a formal trust so that funds will remain protected for the 
retirement of City Employees, that the Retirement Board become 
its own budget setting authority, and that the Retirement System 
be allowed to offer options, if necessary. These changes will re- 
quire Charter Amendments. 

Commendations to the Retirement Board for conducting 
meetings in an organized manner and for showing respect to the 
employees involved. Mr. Dan Maguire of the City Attorney's office 
also exhibited extreme fairness and thorough preparation at these 
meetings. Finally, thanks to Mr. Mattrocce for sharing his ex- 
periences and insights as a veteran City employee with us. 


The Personnel Department is responsible for rendering 
service to departments and employees through the implementation 
of salaries and the examination, selection and appointment of em- 
ployees. This department is managed by John Walsh, under the 
authority of the Civil Service Commission. The Commission is com- 
posed of five members, all of whom are appointed by the Mayor; 
Carlotta del Portillo and Allen Haile were appointed in 1979 to 
replace two Commissioners who resigned their positions. 

The Civil Service System in the City is archaic; budgetary 
and Charter restrictions prevent the department from operating in 
a modern manner. The budget for the fiscal year, beginning July 
1, 1979, is 78% of the budget for the year beginning July 1, 1977. 
The number of employees in the department ranks 212th of the 238 
cities surveyed. There is one training officer for 25,000 City 
employees. As long as these conditions exist, there will continue 
to be a long time between examinations. The line item budget used 
in the City is another cause for the long delay between a depart- 
ment's request for an employee and receipt of the employee. The 
FIRM accounting system which will be effectuated during 1979-80 
should greatly alleviate this problem. 



In spite of these conditions, the Civil Service Commission 
has made progress in achieving the following goals: 

1. Proposition B, approved by the voters in November, 
1978, allows performance evaluations to be considered in promotions, 
allows the Civil Service Commission to review and take action on 
discrimination allegations against appointing officers, allows the 
Civil Service Commission to continue test procedures in spite of 
certain protests, and extends the probationary period for new 
employees . 

2. Civil Service rules are being updated at the rate of 
two rules every three months . 

3. The performance evaluation system will be effective 
July 1, 1979. 

4. The conversion of time roll audit and certification 
to electronic data processing should be complete by October, 1980. 

5. Pre-employment physicals are now required for all new 
employees, including temporary and CETA employees. 

6. Per the Comptroller's Office, "anticipated" time rolls 
should be eliminated in September or October, 1979. 

Other important items include the following: 

An appropriate Annual Supplementary Affirmative Action 
Plan for Equal Opportunities, which includes goals and timetables, 
should be effectuated promptly. Such a plan was referred to the 
Commission by staff on March 20, 1978 . To date, a plan has not been 
adopted. If the Board of Supervisors and the Civil Service Commission 
agree, the City may have a plan by November. 

The current entry level examination for Q2 Police Officers 
should be re-evaluated. The test has not been technically updated 
since 1974. Parts of the test should be eliminated. Of the 162 
items on the present test, only 107 will be used to determine the 
score. Correct answers to 60% of these items is passing. Thirty 
items on "Report Writing" will be used in scoring the test, but 
only five of the 15 questions on reading comprehension count in the 

Because of the many complaints about the police applicants' 
inability to see and/or hear the film at the various test locations, 
Mr. Walsh has assured the Grand Jury that if an audio visual test is 
used again in future years, the test will either be administered at 
a single location which has adequate equipment, or new equipment for 
showing the film will be rented. 



Many employees and some supervisory personnel do not have 
an adequate understanding of the City's Civil Service regulations. 
Employees often depend on their unions for knowledge of their 
rights and responsibilities. They are not aware, for example, 
that the Charter prohibits night time differential and time and a 
half overtime pay for members of the Police and Fire Departments. 

Some supervisors are apparently unaware that the Depart- 
ment of Public Health and the Department of Social Services, rather 
than the Civil Service Commission, are responsible for entry level 
tests for their own employees. Negotiations are currently underway 
for the Airport and Police Commissions to have responsibility for 
tests for entry level positions in those departments. 

Also, if a department requests that a potential employee 
not be appointed due to the results of a background investigation, 
the investigation must have been conducted in a thorough manner; 
the results presented to the Civil Service Commission must be proven 
facts rather than allegations. The Grand Jury recommends that 
Civil Service be funded and staffed so that a Civil Service news- 
letter can be issued regularly; the newsletter should explain Civil 
Service rules accurately and as simply as possible. 

There is an ordinance before the Board of Supervisors 
which could be approved by July 1, 1979. It would provide that all 
full time temporary employees (with five years of service) would 
become members of the Retirement System and Health Service System. 
These employees would still be considered temporary for pay purposes. 

The situation of the other temporary employees (about 
6,000) should be improved. These people perform work for the City, 
but are not members of either the Health Service or the Retirement 
Systems; their pay is for the Step I (lowest) grade of their class. 
The permanent staffs of the departments should either be increased 
or the unused money from the permanent accounts should be used to 
fund temporary jobs rather than giving the departments special funds 
for temporary employees. There are some cases in which this recom- 
mendation should not apply, i.e., employees who are really tempo- 
rary -- those that are employed for six months or less. 

The Grand Jury also recommends that public meetings of 
the Civil Service Commission should begin at a scheduled time, 
proceed with efficient speed, be conducted in a manner which exhibits 
respect to the participants, and always be equipped with an operating 

The final recommendation of this Jury is that the Civil 
Service Commission be allocated seven additional personnel to staff 
a test validation unit. When this unit is operational, the depart- 
ments' criticisms about the reliability of Civil Service tests 


should be extensively reduced. 

Our commendations to Mr. Walsh for his cooperation with 
the Mayor's Office of Employment and Training and with the Chief 
Labor Negotiator of the Employee Relations Division, as well as 
his efforts to personally visit City departments to learn about 
their problems with Civil Service. 


Because the Mayor's Office of Employment and Training 
(MOET) is principally funded by the Federal Government, civil grand 
juries do not usually report on it. However, due to the Labor 
Department's regulation that certain employee participants in the 
Public Service Employees program will be terminated on September 
30, 1979, and the corresponding complaints by City Departments 
that they will lose necessary employees due to this regulation, 
this Grand Jury visited Mr. Bob Won, Coordinator of the Public 
Service Employees Division. We learned that: 

1. Mayor's Office of Employment and Training is funded 
by the Department of Labor, through the provisions 
of the Comprehensive Employment and Training Act - 
CETA. MOET is called a prime sponsor. 

2. Public Service Employees program is part of the 
CETA program. It provides training and job place- 
ment in public agencies and private, non-profit 
agencies for eligible persons who are unemployed 
due to "bad times" (the general economic situation) 
or due to being either unskilled or structurally 
unemployed. The structurally unemployed are those 
who are skilled for a specific job, but who are un- 
employed because positions in their fields of skill 
are not locally available. 

The City and the School District currently have 
approximately 2,600 Public Service (CETA) employees . 

3. The Department of Labor determines the amount that 
a prime sponsor receives for this program. The 
amount is based on the unemployment rate. In 
fiscal 1978, the Mayor's Office of Employment and 
Training received $33,000,000 for the program; 
this money funded jobs in City, State and Federal 
Government and in private, non-profit agencies. 

4. Persons employed through this program receive the 
benefits due other temporary employees. Therefore, 



when they work for the City, CETA's are not 
members of the Health Service System or the 
Retirement System and are not covered by Social 

5. The Public Service Employee (CETA) receives the 
same pay as other employees in Step I of the same 
classification. The amount of salary that is not 
funded by CETA is paid by the employer, 

6. The 

CETA position, out. it win not pay more than 
$8,935 average to fund all the CETA employees hired 
after April 1, 1979 through a single prime sponsor. 

7. Effective September 30, 1979, all persons who have 
been employed through the Public Service Employees 
program (CETA) for at least eighteen months, will 
be terminated from the program. Therefore, the 
City and County of San Francisco will lose approxi- 
mately 2,00 CETA employees. 

8. The program is regularly monitored by the Depart- 
ment of Labor and was audited by the General 
Accounting Office three years ago. 

9. Some positions that are currently filled by CETA 
employees who will be terminated on September 30, 
1979, will thereafter be filled by CETA employees. 
However, due to the average $8,935.00 that the 
Department of Labor will fund per position, most 
future CETA employees will fill the lowest paying 
City positions. For example, there are currently 
110 members of the Transit Police Force; all except 
one of these are CETAs . Seventy of them will be 
laid off on September 30, 1979. They each received 
a salary of $13,200.00 effective July 1, 1979. 
Therefore, if all 70 vacant positions were to be 
funded through the CETA program, approximately 420 
junior clerk positions would have to be funded by 
CETA in order to maintain the Department of Labor 
"average" provision. 

It appears that the City may be using the Public Service 
Employees (CETA) program to save salary money rather than to achieve 
the goals of the program. 



Our thanks to Mr. Won for his patience and cooperation. 

Frank Harrison 

Blossie C. Williams 

Elizabeth A. Dowd, Chairman 



The office of the Chief Administrator of the City and 
County of San Francisco seems designed to provide the amalgamating 
force which can bring cohesive and cooperative order to many of the 
City's important "housekeeping" departments. This, however, comprises 
only a part of the responsibilities with which the CAO is charged. 
There are special projects under his jurisdiction ( such as the Moscone 
Convention Center, waste water management and solid waste disposal) 
as well as division of funds from the hotel tax and managing the 
City's insurance program, while also maintaining positions on the 
Planning Commission, the Capital Improvements Advisory Committee, 
Refuse Collection and Disposal Rate Board, EDP Priority Committee, 
and the California Academy of Sciences. It is obvious that the proper 
functioning of this office requires superior executive ability. The 
CAO is appointed by the Mayor, subject to confirmation by the Board 
of Supervisors, and serves at their pleasure for a period of ten 

Mr. Roger Boas was appointed Chief Administrative Officer 
during the 1976-77 fiscal year, and in the past year appears to have 
made considerable strides in bringing the diverse duties of the office 
under better control pointing toward increased efficiency and progress 
for the City. 

A great attribution toward this goal has been his aiding 
in the resolution of legal difficulties which have beset the Yerba 
Buena Project (now named George R. Moscone Convention Center) and 
prohibited the sale of revenue bonds to finance completion of the 
project. This is no small accomplishment when it is realized the 
project was first proposed 24 years ago, and for the period from 
January, 1977 to June 30, 1979 alone the sum of $835 > 000 in legal 
fees has been paid (including anticipated payments). Payment includes 
services of the City Attorney's office, fees to the firm of Morrison 
& Foerster relating to trial expenses, and fees for bond counsel to 
the firm of Orrick, Herrington, Rowley & Sutcliffe. Once the legal 
cases in which the project was entangled were resolved, the bonds 
could be marketed. They received an A rating, went on sale April 11th, 
and the entire issue amounting to $97 million was over subscribed. 

Mr. Boas has since turned more attention to the waste water 
management and sewage disposal projects in support of the Plans of 
the Department of Public Works and Planning Commission to wire approv- 
al of the State Coastal Commission. This approval was obtained 
June 6, 1979 subject to strict conditions set by the Coastal Commis- 
sion. The CAO's office is currently working to determine the proper 
interpretation of the language used to set out the requirements of 
the Coastal Commission in an effort to facilitate meeting their 



The CAO was criticized in the 1977-78 Grand Jury report 
for not providing sufficient communication opportunities between 
himself and department managers under his jurisdiction. In an effort 
to meet this criticism and improve the then existing procedures while 
endeavoring to manage his own time as efficiently as possible, he 
has made the following changes in informal reporting to him of each 
department. Weekly written reports are given to the CAO from brief 
written reports provided by each department head and which are chan- 
neled as follows: 

Public Administrator/Public Guardian} 

Registrar /Recorder ) via Wallace Wortman, 

Agriculture/Weights & Measures ) Head of Real Estate 

Purchasing j Department 

Real Estate ) 

Coroner ) via Dr. Mervyn Silverman, 

Public Health ) Head of Dept. of Public 


Electricity ) via Jeffrey Lee, Acting 

Public Works ) Director Appointed Head 

of the DPW in the Past 


Weekly reporting meetings are held with the CAO. 

For the most part, this updated procedure seems to be work- 
ing more satisfactorily. In the event there are questions with regard 
to the weekly reports of the department heads or last minute changes 
or additions, the CAO or a member of his staff is always available 
by telephone, as well as the department heads. 

Two additional measures toward greater efficiency, as 
suggested in the previous year's Grand Jury report and approved by 
the electorate in last November's election, will be instituted at the 
beginning of the new fiscal year. The Tax Collector is removed from 
the jurisdiction of the CAO and placed with the Treasurer, and the 
County Clerk is removed from the CAO's office and placed under the 
jurisdiction of the Superior Court. 

There has also been criticism of the CAO in the public press 
contending that he is proposing Charter amendments designed to expand 
his "executive suite". It should be made clear that no new positions 
are being requested, rather that certain currently designated Civil 
Service jobs be made appointive. This is an effort to bring into 
City Management at the upper levels, especially in the Departments of 
Public Works and Public Health personnel of professional capabilities 
to improve the over-all performance of those departments. It should 
be noted here that specifically in the instance of the Department of 
Public Works this is one of the results of recommendations made by 



the firm of Touche Ross & Co., which was employed to provide an objec- 
tive analysis of the department directed toward its long-term effi- 
ciency and effectiveness and which, Touche Ross & Co., states, if 
implemented could provide an annual net benefit of approximately 
$6.7 million. 

It is appropriate at this juncture to take note of a signif- 
icant contribution Mr. Boas had made in the last year. At his instiga- 
tion private industry has been persuaded to offer to the City the 
services of some of its employees considered experts in given areas 
to form teams which have gone into selected departments (such as 
Purchasing and Real Estate) to objectively analyze subject departments 
and make recommendations as to improvements which could produce greater 
efficiency and effectiveness aimed toward dollar savings. Companies 
which have participated in this effort are Crown -Ze lie rbach, Pacific 
Telephone, DelMonte Corporation, the PG&E, Coldwell -Banker, Coopers & 
Lybrand, Chevron, U.S.A. and Bank of America. These organizations 
and their representatives are due sincere appreciation and thanks 
from all citizens of San Francisco, and Mr. Boas is to be commended 
for his astuteness in instituting this procedure and his effective 
persuasion in bringing about its implementation. It is to be hoped 
that an even wider application of the program throughout other City 
departments will be encouraged and utilized. 

In light of Proposition 13 cuts there has been speculation 
that the City's arts and cultural programs will suffer from short- 
sighted economies. Partial support of many of these programs comes 
from the City's Publicity and Advertising Fund. Some were dropped 
completely. The CAO requested that the Board of Supervisors restore 
this Fund to pre-Proposition 13 levels. This has been approved. 

The CAO intends to continue to take an active role in plann- 
ing for the top-side development of the block above the Moscone Conven- 
tion Center, and a secondary role in the planning for usage of sur- 
rounding property under the control of the Redevelopment Agency. How- 
ever, now that the Moscone Center, the waste water management and solid 
waste disposal programs have progressed substantially in the last year, 
it is hoped that the CAO will turn even more of his time, energy and 
considerable talents to areas which he considers of prime concern to 
the City, namely, development of competent middle management in all 
departments operating under his jurisdiction, the acceleration of 
adoption by all departments of the new accounting system and related 
problems involving EDP, City and County debt retirement, and promotion 
of departmental efficiencies directed toward providing funds for 
repairs to plant and capital improvements. It is this committee's 
recommendation that he do so. His allocation of more of his time to 
discussions with each of the department heads serving under him would 
be beneficial to them as well as an effective means of aiding in the 
resolution of some of the problems outlined above. 



Mr. Boas has attracted to his aid in carrying out the duties 
of his office a hard-working, able, well-informed and courteous staff. 
He is to be congratulated for this accomplishment, and they are to 
be complimented for their achievements in the administration of a 
complex office. 


The Department of Electricity headquartered at 901 Rankin 
Street, is the vital communications branch of City services. It is 
headed by Mr. Burton H. Dougherty who has been its General Manager 
since 1966 and does an outstanding job in spite of the ever-increas- 
ing problems occasioned mainly by budget restrictions. The depart- 
ment is under the jurisdiction of the Chief Administrative Officer, 
and the General Manager reports to the CAO through the Director of 
Public Works. This is a change effected this year from his report- 
ing to the CAO through the Manager of the Real Estate Department. 
The new arrangement seems to be working satisfactorily. 

The department is charged with the installation and main- 
tenance of radio, electrical and wire communications systems of the 
Police, Fire and Health Departments, installation and maintenance of 
fire alarm boxes, parking meters and traffic signals. These services 
are instituted through work orders issued to the department from 
other departments. 

Although the department operates efficiently and provides 
good service to other departments with a minimum number of people, 
there is a general feeling among all personnel that they are fall- 
ing behind in general maintenance on a regular basis due to lack of 
funds for adequate staffing and lack of time to accomplish repairs 
as well as routine maintenance. The workload of the department 
increases in direct proportion to the increased number of installa- 
tions required by City growth. For instance, there are currently 
15,600 parking meters in the field and the number grows. The same 
situation prevails with regard to traffic signals. The operating 
people currently are on a seven hour day due to budget limitations. 
Neither is it possible to attract additional competent electricians 
and/or machinists to fill approved but vacant positions since the 
current pay scale is below what such a worker can command in private 
industry . 

The General Manager still attends meetings of the Disaster 
Council, chaired by Mayor Feinstein, and works with the Director of 
Emergency Services, Edward Joyce. The State has approved the plan 
for Emergency Operations under which the 911 emergency number is 
the first step. Although the Mayor has not yet applied for State 



Funds to implement this operation and the Police Department has not 
yet given Pacific Telephone a firm plan as to its needs, Mr. Dougherty 
feels that the 911 number will be put in service within a year. 

The General Manager has been advised that there is a rec- 
ommendation being made to the Finance Committee of the Board of 
Supervisors to eliminate the police call box system in an effort to 
cut the Electricity Department budget by the amount of the main- 
tenance costs of the system - some $56,000 a year. It consists of 
467 call boxes on the street, ^7 located in the Hall of Justice, and 
27 located outside the Hall of Justice in such places as the Fire 
Chief's office, the Mayor's office, Health Department, etc. The 
system is used daily not only by the Police Department, but by the 
Fire, Health, Sheriff's Department and Department of Electricity. 
It has consistently proven to be a valuable aid to all departments 
in maintaining communication with each other, and in time of emer- 
gency is a major supplemental communications system, a vital addition 
at such times when the regular telephone system inevitably becomes 
overloaded. It is a dependable alternate system and has often proven 
its worth to all departments. Mr. Dougherty is not in agreement 
that this system should be eliminated and is recommending that it be 
continued. It is also the feeling of the Grand Jury that this in- 
stallation should be retained. 

The committee found the scope of the work performed by 
this department to be impressive and it is accomplished in an out- 
standing manner. A general spirit of cooperation pervades this 
service group fostered by the knowledgeable administration of the 
General Manager. 


While the Coroner's office does an admirable job under 
difficult circumstances, it appears that unless it receives adequate 
City support its functioning will be severely impaired. The Coroner 
and his staff have worked hard to build, and do enjoy, a reputation 
for accurate, dependable and unbiased reporting which redounds to 
the benefit of the City and County of San Francisco. Yet, due to 
limitations being imposed upon the office by severe under-budgeting 
and short -stopping, it is inevitable that this may not continue. 
This is a situation which pre-dates Proposition 13 cuts. 

The Coroner's office operates under the jurisdiction of 
the Chief Administrative Officer. The Coroner, Dr. Boyd G. Stephens, 
currently reports to the CAO through the Director of Public Health 
as a means of conserving the time of the CAO. This is a change 
effected this year from his reporting through the Manager of the 
Real Estate Department. It is yet to be seen if this is an 



improvement for either the CAO or the Coroner. 

The Coroner accepts for medical examinations an average 
of 2,000 cases a year; that is, the investigation of deaths open 
to question in the City and County. While this is not the extent 
of his duties, it is one of his primary functions. Currently, the 
office is running approximately 150 cases behind in written reports 
of its autopsies and four to six weeks behind in issuance of death 
certificates. While this is a situation which should not be allowed 
to continue, that these numbers are no greater is a credit to the 
industriousness and diligence of the office given the difficulties 
under which it strives to carry out its functions. 

Under a new State law a dental chart on each case the 
Coroner handles must be filed in Sacramento. Were it not for the 
fact that the State will pay the costs of these charts, the require- 
ment could not be met as there are no funds in the Coroner's budget 
for such. As importantly, were it not for the work contributed by 
a volunteer forensic odontologist, the work .would not be accomplished. 
A retired employee contributes 4 to 7 hours office work a week. 
The Coroner's office receives the benefit of an average of 200 hours 
a month contributed by a dedicated and interested group of volunteers. 
Every member of the staff consistently works 4 to 6 hours overtime 
a week even though there is no money in the Coroner's budget at the 
moment to pay for overtime. All that can be offered is compensatory 
time off; however, due to short-staffing this is not a realistic 
probability. Also, vacations are not presently being scheduled due 
to lack of funds in the budget to replace the staff member. 

A full-time taxicologist is an urgent need. The staff 
presently operates with a part-time taxicologist and full-time tax- 
icologist 's assistant. After a period of nine months, the position 
of Administrative Coroner was filled in February. Of the 30 people 
on the Coroner's staff, there are 10 investigators who are licensed 
embalmers. It is the only uniformed group in the City which does 
not receive a uniform allowance. The employee is required to bear 
these costs personally. When it is realized that the office operates 
24 hours a day, 7 days a week, in fair weather and foul, these costs 
are not inconsiderable. Such items as rain coats have been cut from 
the budget. Even batteries for flashlights are not furnished. 

Equipment in the office continues to be outdated and 
undependable, impairing the capabilities of the office. A typewriter 
in satisfactory working condition would be considered a boon of 
inestimable value in this department, not to mention sophisticated 
instrumentation essential to improved performance. 

The Coroner and his staff seek every means to stretch the 
limited budget of the office. To provide only a few examples of 
this effort, the following are set forth: paraffin blocks (tissue 



samples) are stored in dozens of cigar boxes contributed by the 
concession in the Hall of Justice so filing cases will not have to 
be purchased; a staff member with a flair for electronics helps to 
repair instruments so that "down-time" will be shortened and costs 
minimized; the Coroner helps repair equipment and routinely takes 
home surgical knives and repairs them in his spare time, the depart- 
ment does its own laundering of such items as surgical gowns. These 
may not be the most important re source -saving devices the staff 
employs but are presented here to illustrate the valiant but losing 
battle the staff fights to keep the office functioning as efficiently 
as possible. 

The Coroner also expends time and effort seeking outside 
funds through grants to supplement the capabilities of the office 
and reduce costs to the taxpayers. Chemicals and materials purchas- 
ed through grant funds allow the office to run some City tests along 
with tests required under the grant. The National Institute of Health 
this year has funded a research study in the area of Sudden Infant 
Death Syndrome in the amount of $200,000. This is the only office 
in the United States to receive such a grant thus far. 

The Coroner also tries to improve investigative techniques 
and clinical procedures for the good of the City by lecturing, attend- 
ing seminars and participating in discussions at meetings of such 
bodies as the University of California Medical Students, San Francisco 
General Hospital Pediatrics Department, San Francisco College of 
Mortuary Sciences, San Francisco Dental Society, San Francisco Depart- 
ment of Public Health and more than 50 other groups. This year he 
was requested to address (for the first time in six years) the students 
at the Police Academy, and did so on March 23rd. 

The potential of the office, however, is largely unused and 
undeveloped for basic research in fields which could improve the quality 
of medical and community care. Yet there are no funds provided for 
training personnel to these ends. This is a disservice to the City 
and County in the long view. The office is a necessary service to 
the living, and its potentialities should be fully explored and devel- 

Due to such reasons as the constantly expanding medical facil- 
ities located in the City and the increasing older population in the 
area, the workload in the Coroner's office accelerates accordingly. 
Due to this as well as some of the numerous problems delineated in the 
foregoing, it is increasingly improbable that qualified, competent 
employees will be allocated to the office. Perhaps more importantly, 
it will be increasingly difficult to retain qualified, competent 
employees now in the office. 

If the Mayor's recommended budget cut of 5$ is approved, 
coupled with Proposition 13 cuts and the previous year's cuts, it will 



mean that this department's budget will have been cut 45# in two 
years. Given such a restrictive basis on which to function, it 
is not reasonable nor realistic to expect that the office can 
achieve its designated purpose. If it were not for the dedication 
and loyalty to the office exhibited by the Coroner, Dr. Boyd G. 
Stephens, his staff and the invaluable volunteers the office could 
not today perform as well as it does. A lack of attention to the 
needs of this department from the Mayor, the CAO and the Board of 
Supervisors seems evident. Though invitations are not needed, in- 
vitations have been issued to each of the City servants to visit 
the office of the Coroner at any hour of the day or night any day 
of the week for a personal evaluation, yet not one has found the 
time nor demonstrated enough concern to inspect the facility. 

By not adequately supporting this mandated office which 
provides a vital service which by law cannot be dispensed with, it 
appears that the City and County of San Francisco is failing to 
carry out its duty, but rather is depending upon the good will and 
largess of others to meet a responsibility which rightfully resides 
with it. 

Edith T. Griego 
Vivian M. Kalil 

Mildred D. Rogers, Chairman 



During the term of this Grand Jury the Department of 
Finance and Records administered and serviced the activities of 
the Commissioner of Agriculture, Sealer of Weights and Measures, 
County Clerk, Recorder, Registrar of Voters, Public Administrator, 
Public Guardian and the Tax Collector. The acting Director was 
Mr. Thomas Miller who was appointed by the Chief Administrative 


Except for a brief period during the parking meter 
collection scandal, Mr. Thad Brown has been Tax Collector of San 
Francisco for nine years. The Tax Collector's Office is divided 
into seven departments: Cashier, Licenses, Business Tax, Real 
Estate, Investigation and Delinquent Revenues. The Tax Collector's 
principal function is the collection of taxes and license fees. 

The Tax Collector has aroused a great deal of attention 
the last few years because of the parking meter collection scandal. 
The collection is now being handled by Brinks and the Bank of 
America, with a significant increase in the amount of revenue 
collected. This entire matter has been given a great amount of 
coverage in the news media and various persons have been in court 
on charges relating to the scandal and hopefully this entire matter 
is now in the past. 

Over the years the staff and the workload of the Tax 
Collector has grown. Part of the reasons for this growth are the 
new assignments which have been directed at the Tax Collector. In 
1968, the institution of the business tax generated a need for an 
increased operation and more staff. More recently the Tax Collector 
has been held responsible for issuance of preferential parking 
stickers. The Tax Collector is also responsible for the delinquent 
collection procedure for San Francisco General Hospital bills. But 
for all of these income generating procedures and activities, this 
department is still liable for budget cuts. This must be very hard 
for the Tax Collector to understand because Mr. Brown states he can 
document the fact that with a larger staff he could bring in more 
money. He also feels that he could recruit better people than those 
being brought in by Civil Service. It seems absurd to cut the staff 
of departments which carry out procedures that generate revenue if 
the director of these departments can demonstrate that increased 
staffing would lead to more funds being generated. 



Mr. Thomas Kearney is the Registrar of Voters and County 
Recorder. The registrar of Voters is required to: Register 
voters, prepare and disseminate voters' handbooks and sample 
ballots, conduct the elections, and register candidates. 

This Grand Jury had received a complaint that during 
election day officials at various polling places were perhaps 
intoxicated, drugged or just not all that efficient. Mr. Kearney 
operates the Registrar of Voters with just 18 permanent people. 
He must hire and train over 3,600 temporary employees to work on 
election day. This appears to be a tremendous task which is per- 
formed as well as could be expected. However, with all the people 
hired it is almost inevitable that mistakes are bound to be made 
in the hiring process. Before election day, ads are run in the 
news media, recruiting workers for election day. For better 
elections and better polling place workers more people in San Fran- 
cisco need to offer their services for work on election day. 

The County Recorder is required by State and County laws 
to receive, record, index and preserve papers such as property 
documents, tax liens, death certificates, military discharges and 
upon request to issue certified copies of them. The Recorder's 
Office has the same age old complaint that the people in this 
office are overworked. With budget cuts it is difficult to remedy 
this situation. 


Mr. James Scannell is the Public Administrator and the 
Public Guardian. As the Public Administrator he administers the 
estates of those deceased persons having no executor and in some 
cases administers estates as ordered by the Court. The fee for 
the administration of these estates is set by the Court. His 
office has a big backlog of estates, 1100 estates four years or 
older when we visited him, which because of insufficient staff 
he has not been able to handle. 

Most of these estates are rather small monetarily. He 
currently has four attorneys working in the Public Administrator's 
office. This office has never been self-sufficient but Mr. Scannell 
feels it should be, in fact he feels he could make money. We 
believe the City government should listen to and support people 
such as Mr. Scannell when they feel their departments can be self- 

As Public Guardian, Mr. Scannell is appointed by the courts 
to serve as guardian of persons or estates. He was legal guardian 
to 385 people when we visited him. Mr. Scannell appeared to be a 



very resourceful person with some new ideas for his departments. 
We hope he continues with as much enthusiasm as he showed when we 
visited him and would hope he gets all the support the City and 
County government can supply. 


The County Clerk, Mr. Carl Olsen, is the ministerial arm 
and record keeper of the Superior Court. As such the Clerk's Office 
receives, indexes, files and retrieves legal documents for the 
Superior Court. These documents also serve the need of litigants, 
attorneys and the general public. The Clerk's Office is also res- 
ponsible for court clerks to the Superior Court. In this area, 
Mr. Olsen feels that the Civil Service is a thorn in his side. He 
believes that the Civil Service cannot determine who will be a good 
court clerk and that it can only test this area superficially. 


This department is under the direction of Mr. Raymond L. 
Bozzini and is composed of three units: 

1. Agriculture. 

2. Sealer of Weights and Measures. 

3. Farmer's Market. 

As Agricultural Commissioner and Sealer of Weights and 
Measures, Mr. Bozzini is primarily involved in consumer protection. 
The Agricultural Commissioner is responsible for the administration 
of County, State and Federal laws which provide protection to the 
consumer, the environment and the agricultural industry. An example 
of the type of service is the spot-checking of fruit in retail markets. 

The Sealer of Weights and Measures is responsible for seeing 
that all scales and measuring devices in the County of San Francisco 
show the proper net weight, measure or count. This responsibility 
also extends to package goods. They must also show the correct 
measure or weight. 

The Sealer of Weights and Measures is also responsible 
for testing the meters on taxicabs. There are 900 cabs in San Fran- 
cisco so all of the meters are not tested annually, although the 
meters are tested after complaints to the Police Department. Because 
of budgetary problems this office has been unable to test electric 
submeters in the City and County of San Francisco. Consumer pro- 
tection groups in San Francisco should be alerted to this situation 
since there are estimated to be 15,000 to 20,000 of these meters in 
San Francisco. 



The Farmer's Market is located at 100 Alemany Boulevard 
and is operated by the City and County of San Francisco so that 
farmers or growers can sell what they grow directly to the con- 
sumer. A fee is charged to the grower for the use of a booth on 
the premises. The year of 1977-78 saw the first year the Market's 
operating expenses exceeded revenue. Hopefully, this will not 
be a growing trend but Mr. Bozzini does not believe the Market can 
continue operating as it is now. 

We recommend that some sort of group be set up to study 
what kind of future a Farmer's Market in San Francisco might have. 
It appears that this type of market is very valuable to our area 
and hopefully our Farmer's Market can be improved and developed. 

Frank Harrison 

William D. Kremen 

Charles K. Desler, Chairman 



The goal of the San Francisco Department of Public Health, 
under the direction of Dr. Mervyn F. Silverman, is to ensure maximum 
levels of physical and mental health in the community. To reach 
this goal, each section or division of the Department is utilized. 

The Grand Jury of 1977-1978 presented a detailed explanation 
of each of these sections or divisions; therefore, this Jury will 
only report on certain sections of the Department. 

Community Public Health Services 

The Public Health Programs division of the Department, 
under the dedicated leadership of Dr. Lorraine Smookler, exists to 
protect and promote the health of all San Franciscans. No other 
agency in the community provides such public health services, yet 
the budget for this section for 1979-1980 is 78% of the budget for 
1977-1978. The City should set priorities regarding what are the 
most important services to the people of the community. For example, 
it has been said that the animals at the S.P.C.A. get more medical 
care than the juveniles at Youth Guidance Center. The City also 
sponsors the Civic Center Art Fair and puts red tile crosswalks on 
Ocean Ave, while some of the Venereal Disease follow-up programs have 
been eliminated, regardless of the fact that San Francisco has the 
third highest rate of V.D. in the United States. The reduction 
in the number of Public Health Nurses has also caused the diminished 
effectiveness of school health programs. 

The five District Health Centers (Mission, Westside, South- 
east, Northeast, and Sunset-Richmond) provide chiefly preventitive 
medical services such as general physical examinations, immunizations, 
glaucoma screening, blood pressure screening, birth control advice, 
bady clinics, and nutritional advice. At the present time, there is 
no charge for these services because the people most in need of the 
services either can't afford to pay for them or would not participate 
in the programs if they had to pay. 

We visited District Center #1, located at 3850 17th Street; 
this is one of the largest in the City, under the direction of Dr. 
H. Corey. The Center appears to be well operated but does not 
truly reflect the needs of all the people in the District. This 
Grand Jury recommends that some of the special services given at this 
center should be handled in a more discreet manner. 

Laguna Honda Hospital 

Laguna Honda Hospital has approximately 900 patients; 60% 
of these are over 60 years of age. Medi-Cal pays $29.43 per day, 



per eligible patient, but the cost of regular care is $36.00 per day 
and the cost of heavy nursing care is $83.00 per day. The counties 
of San Francisco, San Mateo, and Alameda have presented a paper 
to the State Health Department to explain the real costs of nursing 
care and to attempt to initiate legislation to increase the Medi- 
cal rate payable. 

To bring the hospital up to safety standards, $3.5 million 
has already been spent on fire protection; an additional $4 million 
is needed for further building repair. Claredon Hall should be ready 
for occupancy by the end of 1979. It will provide skilled nursing 
care for 170 patients, 2 patients per room. 

The patient care at Laguna Honda is very good; we were 
especially impressed by the staffs on the critical care wards. 

We recommend that the hospital's administrative staff become 
more attentive to responding to questions from the public by tele- 

San Francisco General Hospital 

Programs operating effectively at San Francisco General 
Hospital include the medical library, the dental program through 
the U.C. Dental School, the Rosalind Russell Arthritis Foundation, 
research on Cardiac cases and sickle-cell anemia and the EKG & LVN 
program, which operates in conjunction with City College of San 

We suggest that the 1979-1980 Grand Jury intensely investi- 
gate several areas at San Francisco General Hospital. It appears 
to us that the hospital is operating deficiently. We would like 
to see realistic resolution of these problems: the long waiting 
time for patients in the emergency room, the loss of accreditation, 
the poor moral and lack of training of the staff, and whether the 
Administrator can adequately perform that job with the restrictions 
of the current Charter. 

The Emergency Service -Ambulances- 

Under the direction of Mr. Robert Butcher, San Francisco has 
a favorable ambulance service taking into consideration the inadequacy 
of necessary equipment with which to accomplish the job they are call- 
ed to do. 

This department receives about 60,000 calls per year. The 
necessary amount of servicable ambulances needed to answer these calls 
should be : 



8 at day time and 6 at night, but the department only has 12: 
6 of them are from 1972 with 150,000 miles 
4 of them are from 1976 with 60,000 miles 
2 of them are from 1977 with 50,000 miles. 

This Grand Jury highly recommends that steps be taken to improve this 
department by giving them 8 new ambulances to replace those that are 
often out of service. 

The ambulance personnel from the medical point of view 
is very efficient. However, the driving skills need improvement. This 
Grand Jury recommends that special driver training be given to the 
ambulance attendants in order to cut down the number of accidents. 
We also disagree with the Board of Supervisors' recent action to 
charge $68.00 per ambulance trip. The real cost to the City of 
each trip should be investigated by the next Grand Jury. 

Hall of Justice Jail 

We visted the jails on the 6th and 7th floors of the Hall 
of Justice on April 12, 1979, because of last year's Grand Jury report 
about the drug problem. Prior to and during our visit, we were 
assured by the medical staff that there was no problem with the dispens- 
ing of drugs by the medical staff. 

Then on April 28th we read in the paper "A Big Drug Bust in- 
side San Francisco ]ails," at that time and now we have been unable 
to investigate this problem. We feel it is very important that next 
year's Jury look further into the control, if any, used in dispensing 
of drugs thru the medical staff. 

Also the doctors' and nurses' office is kept in a very 
disorganized manner. Possible there could be more space, if avail- 
able, that could be given to the medical staff. 

Elizabeth A. Dowd 
Edith T. Griego 

Clara T. Delgado, Chairman 



The Purchasing Department serves all the City depart- 
ments except that of the San Francisco Unified School District 
in purchasing, repairing and maintaining all vehicles and other 
equipment as well as ordering all materials and supplies. 
There are five separate divisions within this Department: 
1) Central Shops, responsible for all maintenance and 
repairs; 2) Stores and Equipment Division which operates and 
maintains a central warehouse and additional storage areas. 
This division also transfers and disposes of equipment which is 
either no longer useful or obsolete; 3) The Buying Division, 
responsible for actually ordering and obtaining all supplies, 
equipment, contractual services, and insurance; 4) Reproduction 
Division which operates a central printing facility which 
services all City departments; 5) Personnel and Accounts, which 
handles bids, accounts payable, payroll and accounting. 

For nine years an adequate, accurate, effective and 
definite physical inventory has not been accomplished, nor is 
there a strict control of inventory levels which seem to be 
determined by budget allotments. The past three grand juries 
have strongly recommended that a thorough physical inventory 
of all City owned supplies and equipment be high on the list of 
priorities. (Reference is made to the report of 1975-76 which 
stated that an inventory had not been done in over six years; 
the 1976-77 and 1977-78 Civil Grand Jury reports reflected simi- 
lar findings.) Although a chief of inventory and sales has not 
been employed for the past four or five years, a possible re- 
structuring or shifting of middle management might help fill 
or alleviate this great void. A physical inventory should be 
done on a calendar basis by each individual department. 

This past year the City was particularly plagued with 
the contractual services of its tow-away operation. In January 
one tow service could not perform its duties because of lack 
of sufficient tow trucks. Lack of storage space has been a 
stumbling block for many tow companies. Finally, a six month 
contract was signed with Community Towing on a trial basis. 
(Normally this contract runs for five years.) There were initial 
problems of adequate radio communication from the towing vehicle 
to central headquarters. The results of an audit on responses 
of pickups to tow calls by the Police Traffic Department is 
currently underway and the results should be known in July, 1979. 
The study is examining the statistics of tow-aways on primary 
and secondary streets as well as those made on accidents, block- 
ing of driveways, and abandoned vehicles. Because of the nature 
of the towing business (the constant movement of vehicles) care- 
ful watch should always be kept regarding a proper check of 
vehicle ownership as well as length of storage before dismantel- 
ing operations commence. This Grand Jury recommends that in the 



future this department physically and thoroughly investigate 
the ability of each company to render the services contract. 

With the exception of Muni, the Central Shop at Quint 
and Jerrold Streets maintains and repairs approximately 3,000 
City-owned automotive vehicles, 815 of which are automobiles 
with an average age of 8 years (including approximately $300,000 
worth of new ones which were purchased in 1977) . There are only 
about 90 employees who actually service, repair and maintain 
all vehicles. This number in personnel has not grown commen- 
surately in size with the automotive fleet. The emergency service 
vehicles of the Police and Fire Departments and ambulances receive 
top priority. However, even 80 new police cars have to await 
delivery of special equipment due to a six to eight month de- 
livery delay. Often little preventive maintenance is done 
on other departmental vehicles because of the length of time the 
vehicle may have to remain but of service. Consequently, much 
of the automotive fleet is sorely in need of repair or replace- 
ment. Because of the age of some vehicles, parts have to be 
found in junkyards or hand cast and forged within this division 
in order to make needed repairs. There is not presently a compre- 
hensive maintenance or replacement program. A system of regular 
replacement such as three or four vehicles every year rather than 
all twelve in one year should be high in budgetary priorities. 

Title II federal funds in the amount of $728,000 have 
now been depleted, however these funds made it possible to place 
on EDP all of this division's information on accounting, usage, 
accidents, breakdowns, and preventive maintenance work. This 
information should be available July 1, 1979. 

According to Mr. Joseph Gavin, Director of Purchasing, 
there has not been a forms analyst to review and monitor the 
reams of paper consumed in all departments. The Reproduction 
Division uses over 5 million sheets annually, which seems like 
an astronomical amount of paper for a city of approximately 
700,000 people. However, with seemingly little effective control 
of inventory levels and only a reduction in budget as an in- 
centive to reduce expenditures or inventory, it is little wonder 
that much overlap and duplication are bound to result. This 
Grand Jury recommends that a forms analyst might be retained on a 
pro bono basis as were management consultants from Chevron USA, 
Crown Z, Del Monte Corporation, and Coopers & Lybrand who, on 
May 21, 1979, completed a preliminary study of the Stores and 
Equipment Division of the Purchasing Department. The expertise, 
guidance and assistance these companies have given on a voluntary 
basis could prove invaluable. If the recommendations affecting 
cost reduction and improved efficiency are implemented, and if 
the City and County of San Francisco follows these general 
industrial organizational guidelines for all phases and functions 
within the Purchasing Department, there could be a substantial 



savings in one division alone. These companies are to be 
congratulated for performing this much needed service and 
thus making a most valuable civic contribution. It is this 
Grand Jury's recommendation that the incoming Grand Jury 
follow closely the progress reports made on the first phase 
of this important study. 

We wish to thank Mr. Gavin and his staff for their 
help and cordial reception and cooperation at all times. 


The Department of Public Works, consisting of several 
bureaus: Street Cleaning and Planting, Street Repair, Water 
Pollution Control, Building Repair, Building Inspection and 
Property Conservation, Central Permit, Bureau of Engineering, 
and Bureau of Architecture, has operated in 1978-79 with a budget 
of about $35.8 million dollars. 

Sources of Budget: Sewer Service Fund $ 10,548,000 

General Fund 10,046,000 

Road Fund 15,141,000 

Uses: Equipment 1,190,000 

Materials 4,086,000 

Personnel 29,703,000 

Other 869,000 

A management review study of the Department of Public 
Works was initiated more than a year ago and completed by Touche 
Ross & Co. in March 1979. Although it cost approximately $200,000, 
if correctly implemented it may save the City in excess of 
$6,000,000 annually by 1982. As of this report most of the 
suggestions made in the study are being effectively implemented. 
The cooperation which Mr. Jeffrey Lee and his staff gave Touche 
Ross management consultants during the study reflects their 
willingness to expedite steps which lead to a more efficiently 
run department. Most of the recommendations made regarding 
operating improvements and allocation and utilization of bureau 
resources should be completed by December, 1979. 

As a direct result of the management study, the building 
permit processing time has already been reduced by one-third. 
All permits are now issued from one division. Plans are now reviewed 
simultaneously by various units of the Department of Public Works. 
Consequently, citizens should be notified more quickly of incom- 
plete documents or other problems. The City should receive in- 
creased revenue of approximately $2,245,000 if building permit 
fees are raised to reflect the true costs of checking plans and 
providing inspection. (Heretofore, the Department of Public Works 



has also absorbed the overhead in billing State and Federal 
agencies for services provided.) 

Mechanized street sweeping on a City-wide basis could 
mean a 7 to 1 savings. (The three year program will ultimately 
cost $3 million dollars, including equipment and installation 
of controlled parking signs.) Controlled parking, necessary 
to effectively implement mechanical sweepers, has, when proper- 
ly enforced, proven to be an effective source of revenue as well. 
In January the Board of Supervisors approved $1 million, and at a 
cost of approximately $45,000 to $50,000 each, 23 mechanical 
street sweepers are presently in operation. In 1978-79 $80,000 
has already been saved. Ultimately the manual sweeping program 
will be reduced by 111 positions. (There will, however, always 
be a nucleus of a manual crew since there are areas where mechani- 
zation is not practical.) It must be noted that the average 
life of mechanical sweepers is only four to five years before 
replacement. However, this is still much less expensive and much 
more efficient. 

Improvement of field crew scheduling could reduce the 
street repair staff. Already crews of smaller numbers are replac- 
ing larger ones to handle pot holes and small emergency repairs. 
The crews needed for each sewer repair job will be scheduled so 
that only one is on the site at a given time. The sewer repair 
staff would eventually be reduced as well. (The two afore- 
mentioned scheduling changes could bring about a savings of 

The sum of $880,000 could possibly be saved if the 
amount of staffing closely reflects operating needs. Reduction 
of the staff of three city drawbridges by ten (five already have 
been reduced) would be a great savings since some evening shifts 
have as few as two bridge openings per month. 

Eight positions of the sewage treament plant have been re- 
directed due to closing and automation of one plant. 

This year $30,000 - $40,000 could be saved if the 
Board of Supervisors approves an independent janitorial con- 
tract. The Department of Social Services was not cleaned for 
two weeks in October, 1978, due to the indecisiveness of the 
Board of Supervisors regarding these privately contracted 
janitorial services. 

Traffic painters in the Bureau of Engineering could be 
contracted and will be tested. If acceptable, the Department 
of Public Works will seek full approval of the Board of Super- 
visors. Both of the above could take effect in September of 
1979. If the Hall of Justice janitorial contract proves 
successful, then the Department of Public Works may ask approval 



to contract City Hall. 

By reassigning clerical work in the Bureau of Building 
Inspection, a considerable saving of $305,000 could result. 
(Clerks in the Division of Apartment and Hotel inspections 
could do the paperwork presently done by inspectors.) 

Most of these management recommendations made in the 
Touche Ross study, are presently being carried out to the most 
reasonable degree possible. We recommend that the incoming 
Grand Jury monitor the results and effectiveness of this im- 
portant study. 

With the restrictions of the 1978-79 budget, only one 
and a half miles of sewage repair could be accomplished this 
year. There are 900 miles of sewers in the City of San Fran- 
cisco, 125 miles of which are brick and which conceivably may 
need much repair in the future. 

It is the feeling of this Grand Jury that many of the 
duties and responsibilities of the Department of Public Works 
could be handled more expeditiously and cost effectively if it 
were given greater flexibility in hiring and firing many blue 
collar workers as needed for various jobs. 

Last fall when it was discovered how potentially 
dangerous the chlorine stored in tank cars on the waterfront 
might be, the Board of Supervisors voted to switch to a more 
expensive sodium hypochloride at a cost of 1.8 million, thereby 
adding $1.96 to the sewer service charge on the average bi- 
monthly home water bill. 

The Grand Jury wishes to thank Mr. Lee and his entire 
staff for promptly responding to requests for information, as 
well as their courtesies and cooperation extended during our 
visits . 


The Real Estate Department is responsible for the acqui- 
sition, disposition, management and recommended demolition of all 
City-owned property as well as the appraisal, negotiation and prepa- 
ration of all leases entered into by the City and/or any department 
thereof (with the exception of the Water Department and Airport 
which manage their own realty affairs in consultation with the Real 
Estate Department) . 

Now that the City's Westside Sewage Wastewater project 
has been approved, the Real Estate Department will complete the 
applications and negotiations with state and coastal land commis- 
sions as well as obtain and negotiate rights with approximately 



400 property owners under whose properties the pipes will be placed. 
(Most of the pipeline will run beneath City street which, of course, 
are City-owned.) In addition, the Real Estate Department must now 
relocate 8 units of Army housing as well as the National Guard Armory 
at Fort Funston. (A suitable location in the Presidio is presently 
being looked into for the latter.) 

The Charter and Administrative Code often mandate rules 
which are difficult to carry out, i.e., for nearly a year the State 
of California wanted to lease Hidden Valley Ranch from the Hidden 
Valley Ranch could not get money for the work order to have the 
Department of Real Estate handle and expedite these negotiations. 
(Only recently has this been accomplished.) Due to this unwieldy 
and slow process, the City is losing revenue from properties which 
might otherwise be leased. Clearly the Real Estate Department and 
the Charter Revision Committee should work closely together in sug- 
gesting changes which might handle these matters more expeditiously. 

The Real Estate Department has been waiting for over 
a year to effectively rent most of the presently vacant schools. How- 
ever, since the School District has been slow in paying for the work 
order, very little has been accomplished as of this writing. With 
the great demand for idle school properties, this Grand Jury suggest 
that the School District move more swiftly in its attempt to fill 
these vacant buildings. (Presently only non-competitive agencies and 
services may use these premises, thereby preventing private or paro- 
chial schools from doing so.) 

At the time of this writing, the Police Department, 
Hetch Hetchy, and the Department of Social Services are interested 
in leasing space from the School District. This Grand Jury feels 
that the needs of local City and County governmental agencies and 
departments should be given first consideration in these rentals. 

The Grand Jury suggests further that a very careful 
analysis be made of all City departments and agencies presently 
occupying buildings which are privately owned to determine if money 
might be saved in the long run by moving certain department activities 
into those presently vacant schools without losing public and inter- 
departmental accessibility. The initial cost, of course, is that of 
moving which is a one time only cost. 

Many vacant schools have fallen into disrepair through 
lack of use and vandalism. Should City departments and/or agencies 
lease these premises, this Grand Jury strongly suggests that the 
office of Mayor and the Chief Administrative Officer look into the 
possibility of obtaining the pro bono services of private industry 
in rehabilitating such buildings, i.e., paint, supplies and labor 
with which to accomplish this end. 



It is important to note that the Real Estate Depart- 
ment has had only five fully funded employees since 1965, 
including its very able Director, Wallace Worman, an outstanding 
record to be sure. Since nearly all of the department's work 
is done by work orders and the work must be done regularly, 27 
employees (85% of the department) are interdepartmentally funded. 
When budgets are made or cut, as the case may be, careful atten- 
tion and special consideration should be given to very small de- 
partments, such as Real Estate, which have so little flexibility 
in shifting workloads in employment. Departments which are de- 
pendent on interdepartmental funding, in order to perform the 
required services, can ill afford any cuts. 

Coldwell Banker examined, pro bono, the operations of 
the Real Estate Department and found its leases and appraisals to 
be fair and reasonable. Mr. Wortman is to be congratulated on 
his control and the direction given his department, particularly 
in view of the added responsibilities he has assumed under the 
direction of the Chief Administrative Officer. (See report on 
the Chief Administrative Officer.) We are most appreciative 
of the time and complete cooperation Mr. Wortman and his staff 
extended his Grand Jury. 

William Noaks 

Mildred D. Rogers 

Genelle Relfe, Chairman 



Mr. John Molinari was sworn in as President of the Board of 
Supervisors on January 8, 1979 when the current president, Dianne 
Feinstein, became acting Mayor following the deaths of Mayor George 
Moscone and Supervisor Harvey Milk. As a result of this tragedy, 
three new supervisors were appointed by Mayor Feinstein to fill the 
empty chairs of Districts 2, 5 and 8. The Grand Jury commends the 
entire Board for their strength and ability to carry on business 
during a time of great sadness and confusion. 

According to Mr. Molinari, the three major concerns for 
the supervisors during this past year have been: 1) housing; 
2) crime; and 3) middle class flight to the suburbs. In addition 
to these three concerns, the supervisors have carried the added 
burden of reducing departmental budgets due to Proposition 13. 
Also, in 1979-80 a severe loss of trained personnel will take place 
in most City departments due to new federal regulations for CETA 
employees, which limit CETA personnel employment to 18 months. 
Mr. Molinari could not offer any solutions to these problems at the 
time of our visit with him in May, except that all departments would 
have to cope, and individually manage to carry out the same amount 
of productivity with less staff and fewer funds. 

Aside from trimming each department's budget, the Board 
has chosen to contract out janitorial services since their budget 
analyst, Harvey Rose, has recommended that this would be a cheaper 
means of providing this service than the present system of City- 
employed personnel. To date, four departments have contracted 
janitorial services, and the report has been favorable. Mr. Molinari 
assured us that in negotiating the contracts with the private firms, 
a verbal agreement is made by the firm to employ a mutually accept- 
able number of the City's unemployed janitorial personnel. We 
strongly urge the Board to maintain fairness to the City's employees 
when negotiating these contracts. 

The subject of rent control had been a major issue since 
last November. On June 12th of this year the Supervisors unani- 
mously approved a rent control plan. This plan limits rent increases 
to 7% annually unless a landlord can justify an amount above that. 
Landlords were allowed an automatic 7% increase immediately following 
the signing of the new law. Those who had not raised rents since 
April 15, 1978 were allowed a 13% increase, and those who had not 
increased rents since April 15, 1977 were allowed a 19% increase. 
This new law also establishes a tenant/landlord mediation board 
comprised of two tenants, two landlords, and one neutral member. 



Another major issue, in May, was gas rationing. We feel 
that the Board was slow to act in implementing the odd/even gas 
rationing plan. We agree that the odd/even system may not have 
been the most desirable plan, but the temporary uncertainty caused 
some concern for the citizens of San Francisco and placed them 
in a vulnerable position for several days, since most of the 
surrounding counties had already adopted the plan. We understand 
the Board's desire to exercise the City's legislative independence, 
however, they should not have allowed that type of political city 
versus state tug-of-war to take place during an emergency situation 
such as that. 

With regard to the question of full-time supervisors as 
opposed to part-time supervisors, we recommend that the position 
remain part-time as it presently is. We feel the Board is doing 
an adequate job, and in light of the necessary budget and personnel 
cuts due to Proposition 13, salary increases to cover full-time 
supervisors would not be appropriate at this time. However, when 
the budget can more easily withstand it, the Grand Jury would be 
in favor of placing this proposition on the ballot. 

In closing, we would like to recommend that the Board of 
Supervisors direct their attention toward the following summarized 
list of suggestions, and departmental needs: 

City Hall (in general) 

Budget Priorities 
(in general) 

Electric Data 
Processing (EDP) 


Superior Court 

Municipal Court 

Law Library 


Implementation of fire alarms/smoke de- 
tectors/sprinkler systems. 

The Board should give special attention 
to smaller departments when cutting 
budgets, since these departments cannot 
absorb a cut as easily as a larger one 

Additional space required. 

Additional space required. 

Additional space required. 

Space and security problems for many 
courtrooms. Additional supervision at 
Hall of Justice because of insufficient 
number of bailiffs to perform this job. 

Additional space required. 



Sheriff's Department 

City Attorney 
District Attorney 
Public Defender 
Fire Department 

Emergency Services 

Police Department 
Parking Authority 

Commission on 
the Aging 

Human Rights Commission 

Purchasing Department 


Additional space required. Need for 
female officers/deputies. 

Additional space required. 

Additional space and personnel required. 

Additional space required. 

Need for budget allotments for Emergency 
Medical Technician training for personnel 
because of a 75% increase in resuscitation 
calls . 

Central communications center needed. 

Additional space required for medical 
facility because of projected major 
increase of foot traffic due to opening 
of the new terminal. 

Pre-Test Training needed before Academy. 

Investigation to determine if Parking 
Authority can be combined with another 
department such as City Planning or 
Department of Public Works. 

Grant Commission additional funds re- 
quested from parking tax. 

Additional funds needed to meet require- 
ments of Chapter 12-A. 

A complete inventory is badly needed of 
all City department supplies and equip- 
ment. Restructuring of middle manage- 
ment needed to alleviate the vacant po- 
sition of Chief of Inventory & Sales. 

An annual emergency vehicle replacement 
program should be initiated. 

Forms Analyst on a pro bono basis should 
be sought. 

When a contract has been granted (i.e., 
janitorial, tow-service) a personal 
inspection of the company's facilities 





Purchasing Department 
(cont. ) 


California Academy 
of Sciences 

Asian Art Museum 
Fine Arts Museums 

Art Commission 

Animal Control Center 

Civil Service 

Health Service System 

Retirement System 

should be done to ensure that this com- 
pany is capable of effectively rendering 
the services contracted. 

Fare adjustments needed. Investigation 
of middle management area needed. 

Renegotiation of Sunday park closure 
should take place until an equitable 
solution is reached. Additional police 
presence needed during special events. 

Additional space badly required. 

MUNI transportation to the Legion of Honor 
(perhaps three times daily) would be a 
tremendous help to this museum. 

Amend Ordinance No. 30-69, Section 3.13: 
"Appropriation for Adornment of Proposed 
Public Structures" to give the Art 
Commission more authority, so that 
conflicts between the Commission and 
various departments can be eliminated. 

A multi-year contract should be negotiated. 

Additional funds and staff needed to pro- 
duce a Civil Service Newsletter which 
would be issued on a regular basis and 
explain Civil Service rules accurately 
and as simply as possible. Additional 
personnel should be allotted to staff a 
test validation unit to reduce criticism 
regarding reliability of Civil Service 

Permanent mail person position needed. 
Additional space required. 

Should be made a formal trust so that 
funds will remain protected for the re- 
tirement of City employees. Should become 
its own budget setting authority. Should 
be allowed to offer options, if necessary. 
These changes will require Charter amend- 
ments . 





Department of 

Tax Collector 

Public Administrator/ 
Public Guardian 

Department of Agri- 
culture & Weights & 

Department of 
Public Health 

Commission on the 
Status of Women 

Emergency Services/ 


More attentiveness to this department's 
needs by the Mayor, CAO, and Board of 
Supervisors. Full-time toxicologist 
urgently needed. Typewriter of satis- 
factory working condition would be a 
boon of inestimable value. 

No elimination of police call boxes. 

Additional staff required. 

Additional staff would help this de- 
partment become self-sufficient. 

Study needed on current Farmers' Market. 

Public health should be a top priority 
in city planning. Health care is more 
important than red tile cross-walks on 
Ocean Avenue, for example. V.D. 
follow-up programs should be re- 
established since San Francisco has the 
third highest rate of V.D. in the U.S. 

This department should be deleted en- 
tirely, since the work they do is al- 
ready covered by the Human Rights 

Eight new ambulances needed to replace 
those that are often out of commission. 

John S. Collins 
Morris Rabkin 

Rebecca S. Turner, Chairman 



The California Academy of Sciences, under the direction 
of Dr. George E. Lindsay, is a combination museum, planetarium, 
aquarium, and scientific research department. Because of this 
multi-faceted personality it provides the San Francisco public 
as well as many out-of-towners with hours of educational pleasure. 
It is one of the most popular attractions in Golden Gate Park. 
In Fiscal Year 1978-79 over 1.7 million people visited the Academy. 

Steinhart Aquarium, under the direction of John E. 
McCosker, is the fastest growing attraction of the Academy, with 
a fish collection rated third in the world, and housing one of the 
only two manatees (a giant sea-lion type mammal) in captivity. One 
of Mr. McCosker 's newest creations is the aquatic "petting pond," 
a beautifully arranged display where children (and adults) not 
only can observe harmless sea creatures in their natural habitat, 
but can actually touch and handle them as well. 

The Scientific Research Department, directed by William 
N. Eschmeyer, publishes several scientific journals and does ex- 
tensive research in eight different areas, including anthropology, 
geology, entomology and ichthyology. The Entomology Department 
contains over six million species of insects, and the Ichthyology 
Department houses over 175,000 species of fish, some dating back 
over a century. The most recent and valuable discoveries of this 
department concerned the finding of high mercury content in tuna 
as far back as 100 years, thus concluding that the mercury found 
in tuna today is not the result of man-made pollutants. 

Yet another important facet of the Academy is the Junior 
Academy, where parents can enroll their children in scientific 
educational programs. The Junior Academy will be developing 
additional programs for the summer due to increased summer school 
closings as a result of Proposition 13. 

This Grand Jury found the staff at the California 
Academy of Sciences to be extremely qualified and dedicated to the 
purpose of the Academy, and we therefore urge the cooperation of 
the Park and Recreation Department, Police Department, and Board 
of Supervisors with regard to the following departmental problems: 

Park Closure to Automobiles on Sunday . This has been a critical 
problem for several years, not only for the Academy of Sciences, 
but also the entire cultural center of the Park, including the 
Asian Art Museum, de Young Museum, and Japanese Tea Garden. 
Because of this, the Academy reports a gigantic 25% decrease in 
visitation on this day. 



Recommendation : We understand that several debates took place 
regarding this matter but no equitable plan was ever reached. 
We recommend that this issue be renegotiated until a mutually 
acceptable solution is achieved. 

Additional Police Security for Special Events . The Academy praised 
the Police Department for its support, but feels that additional 
police presence is needed for special exhibits that are prone to 
larger crowds. 

Recommendation : We recommend the continued support of the Police 
Department in providing additional guards for the Academy during 
these special occasions. 


The Fine Arts Museums, consisting of the de Young Museum 
and the California Palace of the Legion of Honor, operate on a 
budget of approximately $3.1 million per year. Just over two- thirds 
of this amount is City funded. The rest comes from private donations, 

The Museums' functions are to preserve, collect and 
exhibit objects of art, but they provide many other educational 
services as well. Among them are the following: 

Library : The Library, housed in the de Young Museum, contains 
20,000 volumes, plus numerous sales and auction catalogues and 
bound periodicals. 

Art School : The Art School conducts four programs: 1) The de 
Young Museum Art School is committed to providing low-cost classes 
taught by professional artists. Over 100 classes, workshops, and 
field trips are offered in four quarter semesters. The school 
is a non-profit corporation entirely supported by student's fees; 
2) "Trip-Out Trucks" visit school classrooms four times each year 
in an effort to integrate art into the school curriculum through 
studio art classes, lectures and demonstrations, and to initiate 
the teacher to use the museums as an educational resource; 3) The 
Downtown Center, established in 1976, is a branch gallery of the 
museums located in the downtown business district; and 4) the Museum 
Internship Program selects individuals from the Western United 
States to work and study at the museums. Funded by the NEA and 
the Rockefeller Foundation, this program assists the museums in 
achieving national visibility for its education programs, and 
helps other museums initiate programs for their communities. 

Dr. Ian M. White, Director and Chief Curator, and the 
entire Fine Arts Museums staff are to be highly commended for the 
two spectacular international exhibitions presented this fiscal 
year . The Splendor of Dresden: Five Hundred Years of Art Collect - 



ing was shown at the Legion of Honor, and Treasures of Tutankhanum 
was shown at the de Young. Nearly two million people attended that 
exhibition. In preparation for these two major exhibits capital im- 
provements were made on both buildings. New flooring, roofing, 
lighting, climate control and moveable walls were installed at the 
de Young. A similar climate control system was installed at the 
Legion of Honor. These improvements will also enhance the museums' 
ability to attract future exhibits. 

Problem : The Legion of Honor is not near a regular bus route. Atten- 
dance is not as high as it could be if better transportation to the 
Legion was provided. We recommended that a MUNI bus route, possibly 
the "2 Clement," be revised so that public transportation to the 
museum door would be provided at least three times daily. This would 
only require a few additional minutes to the MUNI schedule, and the 
benefits to the museum would be bountiful. 


The Asian Art Museum, directed by Rene-Yvon Lefebvre de ' 
Argence, was built in 1959 to house a gift of 4,500 art objects by 
Avery Brundage. A second contribution by Mr. Brundage in 1969 
doubled this amount. Thanks to additional contributors, the museum's 
collection is now approixmately 10,000 items worth over $400 million. 

One of the biggest highlights of this fiscal year was the 
exhibition 5,000 Years of Korean Art . This exhibit was made possible 
through negotiations with the National Museum of Korea. Our Asian 
Art Museum will organize and supervise the tour of this fabulous 
collection when it leaves San Francisco to make six additional stops 
in the United States. 

One of the most significant aspects for the museum's docents 
this fiscal year was the implementation of a new administrative 
structure in the Docent Council. This new structure provided for an 
elected Vice Chairperson who would be spokesperson for Asian Art 
Museum docents, plus be responsible for the daily administration of 
docents, and for implementation of Asian Art Museum educational 
policies and requirements as they affect the Asian Art Museum docents. 
Because of this, a new level of administrative efficiency has been 

To mitigate the financial impact of Jarvis-Gann, the museum 
has applied for a federal "challenge grant." This grant provides 
$1 of federal money for each $3-$4 the museum can provide. At the 
time of this writing, it is not yet known whether the Asian Art 
Museum's application has been accepted. 

Problems : 

1. Personnel . A request for a part-time assistant for the 
Education Curator was approved, but was not funded by the Board of 



Supervisors. Also, a vacant preparator position was not refilled 
because the position was deleted. Without additional help, the 
Asian Art Museum is seriously hampered from extending the quality 
of their services to the public. 

2. Space . Because the Asian Art Museum was originally 
built to house the 4,500 items of the Avery Brundage collection, 
only 10%-13% of the museum's present holdings can be displayed at 
one time. The rest remains unseen by the public and is crowded 
in storage. This space problem also affects new acquisitions, 
loans and temporary exhibitions. This Grand Jury highly recommends 
the exploration of additional space possibilities for the Asian Art 


Health and safety hazards caused by a high population of 
unsupervised or abandoned domestic animals is a problem often under- 
estimated. In 1977 there were 50,358 cases of dog bites reported in 
the State of California alone.* This Grand Jury commends the Animal 
Control Center, operated by the San Francisco Society for the Pre- 
vention of Cruelty to Animals (SF/SPCA) , for performing services 
above and beyond its designated civic duty. 

The SPCA, directed by Richard Avanzino, is privately funded 
by its members. The Animal Control Center is the only aspect of the 
SPCA which receives City funds. Its duties are to schedule, dispatch 
and conduct patrols throughout the City, providing trained, experienced 
animal handlers to serve as uniformed Deputy Animal Control Officers 
in specially-equipped, radio-dispatched vehicles; to impound stray 
dogs; issue citations for violations of animal control laws; and pick 
up confined and injured stray animals. 

The Center's total City budget of $205,300 for 1978-79 
covered the following: 

a. salaries of 10 employees 

b. taxes/fringe benefits 

c. insurance/maintenance/repair 

d. utilities/supplies/training/informational material 

e. auto expenses 

f. accounting/miscellaneous support services 

g. equipment rental 
h. facility rental 

Although the Animal Control Center's major duty is to im- 
pound stray animals, the self-appointed task of finding homes for 

* 1978 statistics were not available at the time of this writing 



unclaimed animals serves a financial purpose aside from the obvious 
sentimental one, since all adoption fees are immediately turned 
over to the City and County. This year the adoption rate reached 
an all time high - 95% for cats, and 78% for dogs - which is a 15% 
increase over last year. The national average is only 10%. Revenues 
received from owner-redemption and adoption fees totalled approxi- 
mately $50,000 this year. To perpetuate the exceptionally success- 
ful adoption program a variety of services directly related to 
animal control are provided by the Society at no additional cost 
to the City. These additional services, totalling $180,000 this 
year include administrative services; an infirmary and treatment 
for stray, injured animals; veterinarian-supervised staff examina- 
tions to determine condition and adoptability of Shelter animals; a 
fully equipped Rescue Ambulance; a privately-funded low cost spay 
and neuter clinic to cut down the number of unwanted animals; and 
a public information program teaching pet owner responsibility and 
obligation to City and State law. In addition to these services, 
two new services will be added in the upcoming year: 1) a full- 
time groomer to make animals more desirable for adoption, and 
2) a "Petmobile" to be used in a satellite adoption program, 
carrying animals to shopping centers, parks, street fairs, etc. 
Both of these new services will help increase adoptions, adding 
the fees to City revenue to underwrite some of the costs of animal 

Also, 1978-79 saw the debut of the Hearing Dog Training 
Program, a most ingenious plan designed to stimulate adoption 
while providing a valuable service to citizens of the deaf 
community. Selected, abandoned dogs are trained to respond to 
noises such as a doorbell, ringing phone, baby cry, etc., and to 
alert the owner. The dogs are given to their new master free of 
charge. Already the success stories of this new program are 

New plans for the Animal Control Center include: 1) a 
disaster program, a cooperative effort with the Red Cross whereby, 
in the case of a disaster such as an earthquake, the SPCA would 
handle the rescue and sheltering of animals as the Red Cross does 
for humans, and 2) computerized dog licensing. This year an 
estimated $200,000 was received in revenues from dog licensing 
fees, and Mr. Avanzino predicted that this amount could double 
if dog licensing was computerized. The SPCA would be willing to 
fund a percentage of the computer costs, but no formal discussions 
with the Board of Supervisors have yet taken place regarding this 

Recommendation : The SPCA presently operates the Animal 
Control Center on an annual contract. Each year the question 
arises as to whether or not the contract will be renewed. This 



seriously hinders the development of long-range plans. Animal 
control is an ongoing problem in need of ongoing solutions, 
and this Grand Jury found the staff at the SPCA to be highly 
dedicated and qualified to perform this necessary function. 
Therefore, we recommend that the Board of Supervisors negotiate 
with the SPCA to develop terms for a multi-year contract. 

John S. Collins 
Morris Rabkin 

Rebecca S. Turner, Chairman 



The City Attorney's Office is located in Room 206 on the 
Second Floor of the San Francisco City Hall on Polk Street. 

This office is under the direction of Mr. George Agnost the 
elected City Attorney. Mr. Agnost, was employed by this office before 
being elected in 1978. 


The City Attorney's Office is often called the "City Protective 
Agency" since it is charged with the responsibilities of representing 
the City in all litigation, giving advise to all City departments in 
contract negotiations, and is primary legal advisor to the Mayor. To 
discharge this responsibility Mr. Agnost is assisted by two staff assist- 
ants, who act in his behalf when absent, and an Operations Officer, who 
handles the day to day administrative function. 


The City Attorney's Office received a budget of approximately 
$4.l| million for fiscal year 1977-78. Ninety-two percent of this budget 
was used for salaries, 8% went for other expenditures. The budget re- 
ceived was far less than that requested, due mostly to the passage of 
Proposition 13. 


This department is still understaffed for the volume of work 
it does. Its present staff consists of 60 attorneys and 30 other admin- 
istrative persons that handle more than ^4000 cases yearly. This rep- 
resents hundreds of millions of dollars of litigation. The ration of 
support staff to attorneys has not changed since the last Grand Jury 
report (1977-78). 


One of the most pressing problems of this department is that 
of equipment. Everywhere we looked we found the equipment to be out- 
dated or in short supply, such as: (1) Typewriters still in need of 
specialized characters needed for legal typing; (2) Desks were in short 
supply, and in need of repairs; (3) The outdated switchboard was still 
in use, and still inadequate to handle its assigned task. CO A short- 
age of typewriters has caused the creation of a "typing pool", which 
modern management systems consider inefficient for this type of 
administrative paper work. 

The only commendable aspect in this area is the installation 
of the Wang Word Processing System. This system, however, is on a 
rental basis that costs the City approximately $8,1*40 a year. 




This department is in need of office space as stated in the 
1977-78 Grand Jury Report. Many attorneys do not have desks at which to 
work. Most must use library tables. Those that do have desks are 
crammed into noisy, small offices with one or two other attorneys. The 
library is spread throughtout the offices and in corridors. It is diffi- 
cult to use, because of traffic interruptions. Filing cabinets are lo- 
cated wherever space permits; they are not readily accessible. The light- 
ing and ventilation are still substandard. 

The City attorney also has a branch office at the Airport. This 
is also short of office space, typewriters, desks, chairs, and needs a 
law library. This office is charged with the responsibility of defending 
the 1*12 lawsuits, referrred to in the 1977-78 Grand Jury Report resulting 
from Airport operations. This is a monumental task, involving millions 
of dollars, to have to perform under these circumstances. 


1. That the City Attorney's Office be allocated additional 

2. That the City Attorney's Office be given a one time in- 
crease in budget to allow for relocation, if necessary. 

3. Purchase of typewriters with Legal characters. 

We strongly suggest that consideration be given for movement 
of the Office of the City Attorney and that of the Public Defender into 
one of the vacant schools. 


This office is locatated on the third floor of the Hall of 
Justice at 850 Bryant Street, and is under the direction of District 
Attorney Joseph Freitas, Jr., an elected official. 

Mr. Freitas is charged with the responsibility of prosecuting 
public offenses committed within the City and County of San Francisco. 
In addition, the District Attorney has duties in mental health commitment, 
consumer protection, family support, Juvenile prosecution, and election 
and campaign law enforcemnet. To discharge his responsibilities effi- 
ciently the District Attorney's Office is divided into seven major di- 
visions: Criminal Prosecution, Administration, Consumer Fraud, Victim/ 
Witness Assistance, Family Support, Investigations, and the court system 
which includes: Superior Court, Municipal Court and Juvenile Court. 




The District Attorney's Office operates under the City Charter, 
receiving a major portion of its funds from the City. Some of its major 
programs, however, are federally funded by grants from the Law Enforce- 
ment Assistance Administration. A budget of $10.4 million was allocated 
for fiscal year 1978-79, with the major portion going to salaries. Mr. 
Freitas hopes to receive an increase in budget for fiscal year 1979-80, 
so that his office may make better use of Electronic Information Systems 
now available to other branches of law enforcement. 


The District Attorney's Office has a staff in excess of 220 
employees, including 85 principal attorneys, 30 investigators, and 105 
persons in miscellaneous administrative positions. The District Attorney 
states that his staff is adequate for the present. However, with the 
development of the Electronic Court Management System during fiscal year 
1979-80, some need for increased staff can be anticipated. 

Family Support Division 

The Family Support Unit was established in 1976 by state and 
federal mandates to recover support obligations owed to both welfare and 
non-welfare families by absent parents. This unit was expanded into a 
separate functioning entity with a staff of 122 employees. Supporting 
funds come from monies supplied by a combination of federal and state 
grants through Support Enforcement Incident Funding (SEIF), which pays 
San Francisco a bonus for every dollar collected. The federal govern- 
ment also reimburses San Francisco for 75* of the direct and indirect 
operating costs of both the Family Support Division and those Social 
Sevices employees involved in child support activities. The Family 
Support Division will collect approximately $300,000 during the fiscal 
year 1979-80. The 1977-78 Grand Jury reported that this division had 
problems in hiring adequate staff because of Proposition 13 induced 
cutbacks. However, This problem has been alleviated by the Board of 
Supervisor's vote to restore a portion of the District Attorney's budget 
for 1978-79. 


The Administrative Division plans, organizes and directs the 
administrative activities of the District Attorney's Office in all phases 
of its operations. It coordinates and provides all support services not 
directly related to case Investigation, preparation, and prosecution. It 
is also responsible for consultation and correspondence with various 
outside agencies, the general public, and the news media. This division 
consists of approximately 28 to 30 people assigned to general administra- 
tion, 16 people assigned directly to other organizational units, and a 
number of others (CETA employees) involved in various duties that fall 
under this division. 



The Administrative Division processes all filings, subpoenas, 
case files, and motions for more than 50,000 criminal and noncriminal 
filings; keeps personnel and pay records for the office's 220 plus employ- 
ees, and administers a sizable budget. Since the last Grand Jury report 
( 1977-7o ) a Word Processing System has Deen installed and the Computerized 
Court Management System (CCMS) is under development. This division is 
under the direction of Ms. Virginia McCubbin. 

Criminal Division 

The largest division of the District Attorney's Office is the 
Criminal Division, which includes all attorneys not assigned to one of 
the other seven divisions. This division has five organic units: 
Superior Court, Municipal Court, Juvenile Court, Special Prosecutions, 
and Career Criminal Prosecutions. This division with its organic struc- 
ture is responsible for a case, from its charging to its disposition. 
This system of case assignment is designed for overall improvement in 
accountability, accuracy, continuity, and technical competence. 

The success of this division is spelled out in performance 
statistics for fiscal year 1978-79, such as a 60? increase in State 
Prison commitments, an increase in felony arrest charges filed in 
Superior Court, and restraints on plea bargaining. However, this di- 
vision is under-staffed, because of the lack of funds and the inability 
of the District Attorney's Office to hire or keep experienced attorneys 
in City government. The income disparity between the public and private 
sector is great. A good attorney in private practice receives an annual 
salary of $22,000 and up, while the City's top pay scale is $16,000- 
$18,000 per year. 

Victim/Witness Assistance 

This program was established in 1977 under the direction of 
Ms. Sue Gershensen, who since has been replaced by Ms. Nancy Walker. It 
has offices at 560-7th Street. The program is administered by the 
District Attorney's Office as a matter of policy. The project is funded, 
however, by a Law Enforcement Assistance Administration (LEAA) grant, 
through the Mayor's Criminal Justice Council (MCJC). 

The program U3es volunteers extensively in discharging its 
responsibilities, which include: Assistance to elderly victims (over 55), 
assistance to rape victims and victims of domestic violence. Services 
to witnesses include: orientation as to courtroom procedures, and some 
transportation to and from court apperances. Other required services to 
the Victim/Witness Assistance Program are handled through other social 
and private agencies, whose chairperson serves on the Mayor's Committee 
on Victim/ Witness Assistance. This Grand Jury would like to commend 
the Mayor and the District Attorney for their foresight in establishing 
and managing a program of this magnitude. Too often in the Criminal 
Justice System, the victim or witness is the forgotten person in the ad- 
ministration of Justice. 



Consumer Fraud Dlviaion 

The Consumer Fraud Division was reorganized in March of 1976 
under the direction of Ms. Judith Ford, and has offices in the Hall of 
Justice at 850 Bryant Street. Its primary purpose is to protect the con- 
sumer and other legitimate businesses from fraudulent business praotlce 
through the enforcement of the California state consumer laws. Its pres- 
ent staff consists of eight attorneys, six prosedutor investigators, and 
30 plus interns, most of whom are on a volunteer basis and contribute a 
vast amount of free labor. 

The division collected fines of more than $300,000 in fiscal 
year 1978-79* handled some 3*000 complaints, and received awards of over 
$150,000 (awards represent actions settled out of court). The division 
also has at its disposal a "Complaint Mobile" staffed with bilingual law 
students and volunteers. It travels to neighborhood sites handling 
complaints of those persons unable to come to the Hall of Justice. Slnoe its 
Inception, the division has provided a much needed service to the people 
of San Francisco. It exposed, for instance a store in the Hunters Point 
Area that was selling spoiled meat products and had it closed. 


Some of the District Attorney's responsibilities, such as 
election and campain law enforcement, training, arbitration as an alter- 
native, bail bond collection, and psychiatric court, do not require the 
usage of additional staff members to warrant discussion in separate 
paragraphs. They are, however, being handled as additional duty assign- 
ments by various staff members. Some of these functions, such as bail 
bond collections, do include the handling of and accountability for a 
considerable amount of funds. The disposition of these funds are shown 
yearly in the District Attorney's Annual Report to the Mayor. 


1. We strongly recommend that a study be made to determine the 
steps needed to bring the income of attorneys in City government in line 
with that of the private Beotor. 

2. We also recommend that this office be allocated more space 
to alleviate overcrowding and cluttering of hallways. 


The Public Defender's Office, under the direction of Mr. Jeff 
Brown, operates according to the City Charter, and 1b governed by section 
27706 of the Government Code of the State of California. 



This office at present is located on the second floor of the 
Hall of Justice at 850 Bryant Street. 

Mr. Brown appears to be a very highly motivated public servant. 
The function of the Public Defender is to provide legal aid to those 
defendants who are financially unable to provide their own attorney in 
criminal matters. He mentioned a number of innovations and/or changes 
in organizational structure since the beginning of his administration in 
January of 1979. These include: 

1. An increase in services provided in misdemeanor cases; 

2. the establishment of a trained Investigator Section and; 

3. installation of a Word Processing Section where all 
admins trative paperwork will be coordinated. The old problems of lack 
of space, equipment, personnel and travel funds still exist. Some of 
these problems, however, have multiplied since the passage of Proposition 

The Public Defender's Office has two other major areas of 
responsibility. First, the Mental Health Section, located on the fifth 
floor of the Hall of Justice, is under the direction of Ms. Estrella 
Dooley. This section must handle all conservatorships involving civilly 
detained, mentally disordered or mentally disabled individuals. On court 
appointment, pursuant to mandates, this section represents actual or 
proposed probate wards/conservatees. In the criminal courts ii represents 
mentally disordered or mentally disabled criminal defendants. So far 
these cases have shown a 7 3% increase over 1978. Most of these cases 
involved some travel to and from places of confinement outside the City 
and County, and the problem of insufficient funds somewhat hampered this 
effort. Second, the Juvenile Com . Lotion, located at the Youth 
Guidance Center, 345 Woodside Avenue, is under the direction of Mr. 
Bonfilio and has a staff of five to ten law students, and five CETA 
Attorneys. Mr. Bonfilio must staff four courts to handle juvenile defen- 
dants. Since the City's new program to clean-up the streets, the work- 
load of this section has increased twofold, without the benefit of addi- 
tional staff. 


The Public Defender received a budget of $2.2 million for 
fiscal year 1978-79 with 92.535 going for salaries and 7.5* for other 
operational expenses. The budget request for fiscal year 1979-80 must 
be presented in three stages of 83* ($1,844,430), 88* ($1,949,439) and 
92* ($2,033,446) of last year's budget. With the approval of the 83* 
budget this office would lose 14 attorneys. With the approval of the 
88 J budget the loss would be approximately 4 attorneys. Approval of 
the 92* budget would result in a loss of only 2 attorneys. Any of the 
above mentioned budget cuts would cause great difficulty in providing 
proper legal assistance to clients, as required by law. 



As of May 30, 1979, a Budget of 95 % was approved falling far short of 
the required 107*. 

To underfund this department is a false economy! To do so 
would result in large future costs, spread throughout the entire Judicial 
system. Defendants who are insufficiently and improperly represented by 
this office will have valid legal grounds for appeal and reversal of 
verdicts, resulting possibly in expensive and needless retrials and a 
duplication of previous efforts, all at additional public expense. 


The Public Defender has a staff of 132 persons. Sixty- three 
are budgeted positions; 6k are CETA positions, which are funded by feder- 
al funds, and 5 are temporary employees. Mr. Brown states that he has 
ample staff with which to discharge his duties. This staff will be 
drastically reduced with the anticipated loss of the CETA personnel 
during the month of August. Another problem is the income disparity 
between CETA attorneys and principal attorneys. ($6,000 per annum) 


With only 7.5* of the total budget allocated for equipment 
and supplies, this office has been unable to by new and/or better 
equipment. Most effort in this area is based on preventive maintenance 
of outdated machines and other office equipment. The last new equipment 
purchased was the Word Processing Machine which cost approximately 
$67,000. Additional funding is badly needed in this area. 


This remains one of the major problems facing the office. On 
touring the facility we notice that all cubicles used by attorneys for 
interviewing clients were overcrowded. In all instances, two attorneys 
were sharing space designed for one; the hallways were cluttered with 
filing cabinets and other boxes which constantly caused traffic Jams. 
The front entrance was filled with persons seeking information and 
employees trying to use the Electronic Data Processing terminals. 

Recommendations We recommend the following: 

1. The budget for this office should be funded minimally at 
a full 100* of last year's budget for fiscal year 1979-80. 

2. This office should be moved from it's present location in 
the Hall of Justice, in order to conform with Federal Guidelines recommend- 
ing that the Public Defender's Office be separated from the District 
Attorney's Office and Police Department. 

3. Additional office space should be provided. The present 
office area was constructed to house 17 persons, and is overcrowded with 



4 . An effort should be made to retain those CETA persons 
scheduled to depart in September 1979. It is unfortunate and wasteful 
that so much time has gone into their training, only to be lost to 
private industry. 

5. Some type of advertising program should be undertaken to 
inform the public at large of the location of this office and the bene- 
fits provided. 

6. A background investigation should be conducted on all 
clients using this office for the purpose of being able to ascertain 
if clients are trully unable to afford their own attorneys. 

Marvin Jones 

William D. Kremen 

William Noaks, Chairman 



The Sheriff's Department Is responsible for the management 
and operation of the City and County Jails, courtroom security and 
its own Civil Division. 

The present Sheriff, Eugene Brown, was appointed by Mayor 
Moscone after the duly elected sheriff, Richard Hongisto, left the 
department on December 14, 1977. Sheriff Brown's appointment was 
confirmed on February 4, 1978. This jury feels that Sheriff Brown 
is a highly self-confident person with knowledge of his profession, 
having served with the San Francisco Police Department. 


The department was hit fairly heavily by Proposition 13 
cutbacks. A budget request for $11 million was submitted, but 
was reduced to $10.2 million, of which 85# was targeted for salary 
expense. At this writing, the department has 406 permanently 
budgeted positions; 334 of the 40o were eligible for deputization 
as peace officers under Penal Code Section 830.1. Of the balance, 
26 positions are being held vacant, and 46 positions are supportive 
civilian positions. In addition to its budgeted positions, the 
department employs some 90 CETA personnel in various projects 
which are federally funded. 

Space and Location 

This department, according to Sheriff Brown, is ideally 
located for the functions it performs. He is, however, somewhat 
crowded for office space, namely in the Civil Division. It is the 
opinion of this jury that more space should be allocated to the 
department. This would allow for supervisory personnel to have 
offices in which to transact business of a confidential nature. 

Programs (Old and New ) 

a. Food Service Program 

Prior to the arrival of Sheriff Brown there were many 
complaints about the quantity and quality of the food served in 
the City and County's jails. This type of problem has been the 
cause of many riots at other prisons in the past. To eliminate 
this problem the department has contracted its food acquisition 
and preparation to ARA, a commercial food preparer, with a savings 
to taxpayers of $25,000 yearly. 

b. Prisoner Assistance Program 

The Rehabilitation Division has been re-named the Prisoner 



Assistance and Service Division. According to Sheriff Brown this 
title aptly describes the functions of this division of the Sheriff's 
Department. Prisoner Assistance offers programs and counseling 
for the incarcerated who wish to increase their likelihood of 
successful assimilation upon release from the Jail System. It is 
the opinion of Sheriff Brown that this program will do much to 
reduce the prison population in the near future. 

c. Prisoner Education Program 

The department has a Prisoner Education Program for those 
prisoners in County Jail who wish to better their general education 
level in the "three R's". This program is coordinated through City 
College . 

d. Recreation Program 

Sheriff Brown stated that this is a neglected area in 
City Jails , due to limited funds and lack of available space. To 
institute a good recreation program that would be productive for 
the prisoners would cost the City somewhere in the neighborhood of 
$4 million. 

e. Drugs and Other Medical Facilities 

The previous Grand Jury mentioned in its report the im- 
proper distribution of drugs to prisoners, namely Darvocet. Sheriff 
Brown stated that his department has never been responsible for the 
dispensing of drugs or any other medication to prisoners and that 
the Jury had erred in its assumption. The blame for this situation 
should have been attributed to the Department of Public Health. 
After investigation into this situation a new program for safe- 
guarding the distribution of drugs and other medication has been 
undertaken in conjunction with the Department of Public Health. 
Whenever a prisoner is found to be in ill health he is immediately 
moved from his place of confinement to the hospital ward at San 
Francisco General Hospital. 

f . Prisoner Work -Furlough Program 

The department maintains a Prisoner Work-Furlough Program 
which includes both male and female prisoners. The male program, 
however, is better organized than that of the female. The male 
prisoner returns to a community house after his daily schedule of 
work while his female counterpart must return to her cell block. 
This situation creates ill-will among female inmates. The depart- 
ment is trying to eliminate this situation by procuring another 
community type house for female inmates. This has been hampered, 
however, by the lack of available funds and available secure housing 
and staff shortage. 



Prisoner Population 

As of October 30, 1978, there were a total of 1157 persons 
confined in the City and County Jails. Of the total, 1034 were men 
and 123 were women. The racial breakdown of males was 34.8$ White, 
42.9$ Black, Id. 7^ Spanish, 0.7$ Oriental, 2.3$ American Indian and 
0.75b Others. The female breakdown is approximately the same with 
43.0$ White and 46.0$ Black. 

The estimated cost to taxpayers to maintain a person in 
confinement is approximately $23.08 per day, and rising. 

Personnel and Equipment 

The department's personnel were discussed in the paragraph 
entitled "Budget 11 . 

The equipment most vital to this department are vehicles 
for transportation of prisoners. Sheriff Brown stated that his 
department maintains a fleet of 44 vehicles, of which 3 were under- 
going repairs. Forty-one were in running condition, however, these 
vehicles had very high mileage and did require some maintenance, 
but due to the overload of work orders at the City's Garage the 
work would have to wait. This department also maintains a radio 
control station, which was in good repair, but in one outer office 
we found a rug that was badly worn with two or three large holes 
that should be replaced as soon as possible. We suggest that a 
second hand rug be purchased from available funds. Not replacing 
this rug may cause the City a very large law suit. 

City Prison 

Mr. Noaks and Mr. Jones of this committee visited the City 
Prison located on the 6th Floor of the Hall of Justice on December o, 
1978, at approximately 1:00 p.m. We were met by Undersheriff Denman 
and Sheriff's Captain Sante, Supervising Officer of City Prison. 

The tour of the facility began with the front desk admin- 
istration and the booking procedure. This jail handles approximately 
90,000 persons per year who have been accused of misdemeanors and/or 
felonies. Here they await preliminary hearings and court dates. 

The December 6th visit revealed that the conditions noted 
in the 1977-78 Grand Jury Report had changed little or not at all. 
Prisoners in the "Topper" (Drunk) Tank were still using the concrete 
floor to rest while awaiting booking. Sheriff Brown made reference 
to his budget request for 1978-79, in tfhich he asked for $107,000 
for capital improvements in this area. It was disapproved and he 
sees no improvements without funds. In reference to the use of 
mattresses and blankets In the drunk tanks, the department is 
attempting to alter its policy to comply with the Grand Jury's 
recommendations . o_ 


The committee found the jail to be in a very untidy 
condition. There were milk cartons, cigarette butts and heavy dust 
on the floors. Food trays were still in some cells with leftover 
foodstuffs. On a tour of cell AH8, the isolation cell where mentally 
disturbed prisoners are confined (segregated), we found it to be 
very untidy and in complete disarray. One prisoner awaiting trans- 
portation to the Napa Facilities had undressed himself and wet his 
bedding and cell. The bedding had been removed and left in a pile 
at the end of the hallway. The lighting in this cell block was of 
the worst type and the smell was unbearable. None of the recommend- 
ations of the 1977-78 Grand Jury had been complied with, again be- 
cause of the lack of funds. Undersheriff Denman stated that some 
effort was being made to obtain monies for padding of doors and 
renovation of the lighting system. 

Recreation for these prisoners in isolation is not 
recommended; however, for others there should be some type of 


1. The unsanitary conditions at this jail could be some- 
what relieved by the utilization of the roof of this building with 
minimum cost to the City. By enclosing the roof with a mesh wire 
fence, it could be used as s sort of recreation area where prisoners 
could be moved daily while their cells are being cleaned and searched 
for contraband. 

2. A system of privileges should be instituted for 
prisoners. This would enable the department to obtain personnel 
from among the population for cleaning and maintenance of the cell 
blocks. The present system of letting those prisoners who wish to 

do small jobs on their own initiative is inadequate to say the least. 

3. A daily system of inspections by a Chief Deputy should 
also be instituted to check on sanitary conditions and to ascertain 
If the deputies on duty are taking responsibility for eliminating 
unhealthy conditions and performing other requirements of the job. 
We believe that a system of this type, where a deputy knows that 
his performance will be a matter of record that might affect his 
promotion to a better job level, he will take more pride in doing 

a better job. 

County Jail No. 2 


The County Jail at San Bruno, San Mateo County, was con- 
structed in 193^ by WPA Workers. The jail is a seven story structure 
built on 159 acres of rolling farm land designed to house at full 
capacity, some 650 persons. However, with some modifications its 



capacity is now approximately 700. On our visit the prison popula- 
tion totaled some 291 prisoners. The Acting Captain, Lt. Courtney, 
explained his organization and the functions of his administrative 
programs, such as, Prisoner Assistance; Farming Program; Education; 
Recreation and the housing of prisoners from other counties. We 
were then given a guided tour through the complete facility with 
emphasis on organic organizational functions. 


This installation is authorized by budget to have 65 
deputies, 1 building and grounds superintendent, 1 senior stationary 
engineer and 4 stationary engineers. However, this staff is short 
by 5 budgeted positions (deputies), which are being filled by 5 CETA 
persons, who are at best ill -trained or equipped to function as 
deputies in cases of emergency. The procedure for their use in 
filling these vacancies is illegal according to federal guidelines 
on the use of CETA personnel. The Supervising Officer, Lt. Courtney, 
stated that the department has been unable to fill the positions 
because of the low salary schedule of personnel coming into the de- 
partment. In further discussion he stated that he would lose some 
of his more experienced persons to the coming Police Department 
Recruitment Program . We also discovered that personnel already in 
the department were reluctant to take examinations for advancement 
because of the income parity between Sheriff's Sergeant and that of 
deputy. Some effort to improve the situation should be made during 
the next budget session. 

Food Program 

Since the last visit of the Grand Jury (see Grand Jury 
Report, 1977-78) the responsibilities of supply and/or preparation 
of foodstuffs at this installation has been contracted to a private 
management firm. This contract will enable the department to make 
considerable savings in its food budget. However, prisoners still 
complain of not getting enough to eat, which we found to be ground- 
less. In inspecting the evening meal of ravioli, broccoli with 
white sauce, garlic bread and assorted beverages, generous portions 
were available. The Supervising Chef was found to be a man of many 
years experience in the food preparation and distribution field. 
The kitchen was very clean and orderly. We find this situation to 
be greatly improved over the last Grand Jury Report* 

Medical Facility 

The Medical Section is staffed by 1 full-time physician, 
2 nurses and 3 intern-medical Persons from the Public Health Depart- 
ment which offers a twenty-four hour service. A schedule of hours 
for prisoners to visit the attending physician was posted in addition 
with a set time for prisoners to receive medication, called The Pill 
Hours . In reference to the usage of the so-called "Squirrel Cages", 



most of this practice has been discontinued as far as possible. 
Prisoners are allowed visitors while in medical confinement. 


The Education Program is an extension of the program at 
City Jail. It is staffed by teachers from City College and the Art 
Commission. This program offers courses in the basic skills, with 
added courses in basic and advanced music by the Art Commission. 
These courses are designed to assist the prisoner on his return to 
the outside environment. At the time of our visit there were some 
20-25 persons enrolled in a number of different subjects. This 
program is also made available to the women inmates of Jail No. 4, 
making it a coeducational program, which we find commendable. All 
classrooms were found to be very clean and in good order. 

Prisoner Assistance 

Under the direction of Mr. Ron Perez, Prisoner Assistance 
is currently involved in Bio-Feedback, Para-Legal Services, Child 
Support, Transcendental Meditation and Drug and Alcohol Abuse. 
During our visit Mr. Perez was involved in getting a prospective 
father a leave to visit his newly born child. We think this is a 
very commendable program, however, more emphasis should be placed 
on obtaining funds, office space and the keeping of adequate records 
for study in making this a model program. 


There is adequate space available for prisoner recreation 
at this installation. The Supervising Officer stated that prisoners 
can participate in most sports, such as, baseball, basketball and 
softball on an Intramural level during periods of good weather. 

Security Procedures 

We find the security procedures used at this Installation 
are excellent, with one exception. We somewhat question the method 
in which civilian personnel are allowed to roam throughout this 
installation without the use of any visible identification readily 
on display. We strongly recommend that badges of different colors, 
with photographs, be used to identify personnel from administrative 
sections, such as, green, for engineers; red, for medical personnel, 

County Jail No. 4 (Women's Jail ) 


At the time of our visit there were 26 inmates at this 



institution. We found the building to be in good repair and very 
clean. Most windows had curtains, made by inmates in a sewing class. 
The building was warm and very comfortable. 


This installation is authorised by budget to have a staff 
of 14 deputies. We found it to be short of 2 positions due mostly 
to the shortage of female personnel in the department. 


The discontinuance of the visitors' cages is an excellent 
idea, however, the practice of allowing persons to enter this prison 
without being searched is considered to be hazardous and should be 
stopped immediately. Weapons, drugs and other contraband have been 
found in cell blocks in the past. 

Re commendation 

The offices of this department should be moved to the Hall 
of Justice so the Sheriff would be close to his areas of respon- 

Marvin Jones 

William D. Kremen 

William Noaks, Chairman 



First of all, we appreciate the budgetary limitations 
caused by the passage of Proposition 13. With this in mind, we 
feel that any budgetary cuts in the Assessor's office that would 
not allow for the maximum net revenue for the county would be 
counter-productive. Unlike many other county entities, the 
Assessor's office is a revenue producing agency. According to 
the Assessor: "...the audit tax dollar recovery to expenditure 
ratio have ranged from $13 to $20 recovery to $1 expenditure." 

The Assessor considers these as being his critical needs: 

(1) Proper staffing of auditor-appraisers complimented 
by adequate clerical support. 

(2) Sufficient funds to perform out-of-state mandatory 
and priority audits. 

We feel that these needs should be met. 

We feel, as does the Assessor, the "overall audit program 
should be increased to ensure equal treatment of all taxpayers of 
the county. " 

Although most of the needs of the Assessor's office can be 
estimated there are at least two that are contingent upon future 
events . 

At this writing, the present CETA employees are scheduled 
for termination. The quantity and quality of their CETA replacements, 
if provided, are unknown factors. Even if we assume that the present 
number is replaced, extensive training will be required to bring such 
employees to an acceptable job performance level. 

When new legislation concerning the Assessor is enacted 
necessary adjustments must be made to reflect such legislation. 

We thank the Assessor, Mr. Sam Duca, and his staff for 
their cooperation. 


One of the principal duties of this office is to invest 
monies received as quickly as possible so as to ensure the maximum 
amount of interest from such monies. 

A substantial amount of the money received by the Treasurer 
is paid directly to individual county entities. Oftentimes, there is 
a delay between the time a county entity receives such monies and 


TREASURER (Continued) 

the time the Treasurer receives the monies from the county entity. 
This results in a loss of interest money to the county. 

To alleviate this situation, a cash manager will be hired 
for the fiscal year 1979-80. He will be hired on a one year con- 
tract. The cash manager will serve as a liason between the 
Treasurer and county entities receiving monies due the county. The 
cash manager will review all sources of monies due the county. He 
will try to determine better methods by which all such monies are 
turned over to the Treasurer expeditiously. 

He will be charged, further, with the responsibility of 
reviewing contracts between county entities and others. From these 
reviews he should be able to determine whether or not those con- 
tracting with county entities are paying on time. The cash manager 
will scrutinize these contracts and determine whether such contracts, 
as written, are in the best interest of the county. 

Another area of concern is where vouchers are given in lieu 
of payment. For example, a voucher is given to Hetch-Hetchy and 
Hetch-Hetchy gives the voucher to the Treasurer: The Treasurer 
must then return the voucher to the payor for actual payment. Such 
dilatory tactics by a payor result in a loss of money to the county. 
We feel that a cash manager will be able to solve these and other 
concomitant problems. 

As of this date, June 26, 1979, approximately $29,600,000 
have been realized in interest from the general fund. The rate of 
interest has been more than nine percent. Excellentl 

The Treasurer says that he has had a good working relation- 
ship with the Mayor's Office, both past and present. It seems that 
where the Treasurer has demonstrated a certain need the Mayor's 
Office has been very understanding. For these reasons, we do not 
make any recommendations. 

We commend the Treasurer, Mr. Thomas Scanlon, and his 
staff for the good job they are doing. 

Clara T. Delgado 
Olimpia M. Xavier 

Marvin Jones, Chairman 



As Executive Officer of the Superior Court, Frederick J. 
Whisman is responsible for administering the many functions of this 
department: the qualification and selection of some 30,000 to 40,000 
jurors a year, including two Grand Juries, Criminal and Civil; admin- 
istration of Juvenile Court, Mental Health Court, and ten court 
commissioners . 

The new section of the Hall of Justice, currently under 
construction, will provide additional space for Superior Court; four 
courtrooms for the Criminal Division, while this may solve the court- 
room crisis, additional office space is a top priority. Some of the 
rooms alloted to Superior Court look more like incubators than offices. 
The prime example of this problem is Room 165 where this Grand Jury had 
more than a few occasions to visit. Congratulations go to Mike Tamony 
and Gloria Clemis and the dedicated staff for being able to work in 
such a dismal, congested area. 

Thanks to Judge Mayer, Superior Court has made some progress 
in providing Room 417 of the City Hall as an Assembly Room for the 
comfort of San Francisco citizens who are called for jury duty. 
Prospective jurors now have a place to watch television or read until 
their services are required. 

Eight of the twenty-six Superior Court Judges handle criminal 
cases. Approximately 175 cases are pending at any given time. In 
criminal cases, the case is brought to trial within 60 days, once the 
plea has been entered. The complex Master Calendar continues to operate 

In civil cases there is a seventeen month waiting period after 
the filing of an "At Issue Memorandum," allowing attorneys discovery 
time. In criminal and civil cases, approximately 90# of all cases filed 
are settled out of court; 10# go to trial. 

Eighty per cent of all cases filed with Superior Court are 
disposed of for less than $15*000. Hopefully, by July 1st we will 
have mandatory arbitration. Every case worth $15,000 or less will go 
to arbitration, saving the court considerable cost. 

Several legislative changes affecting Superior Court have been 
made concerning civil claims as well as jury selection. No individual 
may be exempt from jury duty because of physical handicaps such as 
deafness or blindness. As of July 1978, and effective January 1979, 
Jury duty per citizen has been reduced to a maximum of ten days a year. 
This legislative change has put additional strain on personnel in 
processing the many prospective jurors. 


SUPERIOR COURT (continued) 

Having served Its term, this Grand Jury has become cognizant 
of legislative and organizational changes needed to achieve not only 
accurate and comprehensive investigative work but also the truth. 
Unlike the Criminal Grand Jury, the Civil Grand Jury is restricted 
in its reports to comments on persons not indicted (California State 
Penal Code 930) . The effect of Section 930 is to inhibit a true 
presentation of all the facts when the possibility of libelous action 
exists, even when groundless. We are of the very firm opinion that 
the removal of civil immunity from grand Jurors is a strong deterrent 
to the effective performance of their task. This law must be changed 
if any Civil Grand Jury takes its oath seriously, "i will investigate 
no person, department or governmental entity through malice, hatred 
or ill will, nor leave any uninvestigated through fear, favor, or 
affection..." We alert next year's Grand Jury to the implications of 
Section 930. 

We recommend the following: 

1. Amend Section 930 of California State Penal Code. 

2. Extend the Civil Grand Jury term to two years. The first 
six months should be spent studying procedures, acquiring needed in- 
vestigative skills and understanding the make-up of local government 
under the guidance of the previous Grand Jury. Thereby having gained 
sufficient background, knowledge, the jury can do more thorough 
investigations « 

3. Concentrate, early in the year, on specific departments 
with problems. The entire Grand Jury should investigate this problem 
area, not juBt the sub -committee. 

We thank the court for allowing us the educational experience 
we had this past year, a responsibility we took most seriously. We 
hope that needed changes will be seriously studied by the court as well 
as the next year's Civil Grand Jury in order to preserve the integrity, 
viability and usefulness of this important duty, so that this so called 
"watchdog" of local government will not be afraid to bark when nec- 
essary nor be unwilling to wag its tail. 

Clara T. Delgado 
Rebecca S. Turner 

Vivian M. Kalil, Chairman 



The Youth Ouidance Center, under the direction of Joseph 
Botka, Chief Probation Officer, provides youth services for those 
detained, court services and probation services. 

Alleged status offenders, children who are runaways, beyond 
parental control - are placed in the non-secure facilities, Cottage 2 
and Cottage 3, or in Shelter Care or Crisis Resolution Homes. There 
appear to be various opinions regarding the placement of status 
offenders. The Youth Authority recommends the removal of youths from 
the jurisdiction of the Juvenile Court and placement in other resources 
in the community. Juvenile Court feels that it must maintain shelter 
for these youths. This area of concern should be researched by the 
incoming Grand Jury. 

Children who violate the criminal laws are detained at 
Juvenile hall, a secured facility, designed for the temporary detention 
of youths involved in law violations. Artist Ruth Asawa has helped to 
reduce the institutionalized appearance of Juvenile Hall with the 
creation of murals on the walls. 

Thanks to a dedicated Volunteer Auxiliary, additional re- 
creational programs, gifts, and furniture are available to further 
serve the needs of children detained in this institution. The Volunteer 
Auxiliary also sponsors and manages a shop for visitors. Profits from 
this shop are used to further serve the needs of the children. The 
impact of Proposition 13 has resulted in the closing of Hidden Valley, 
a residential treatment facility for boys between the ages of 12 and 
15 who are law offenders. Some of the youngsters at Hidden Valley 
have been transferred to the nearby Log Cabin Ranch. The remaining 
youths who had less severe offenses have been released. 

Log Cabin, a ranch for boys between 16 and 18, located in 
La Honda, is directed by the dedicated James Licavoli. Youths are 
committed here from 90 days to one year. We found a most positive and 
enthusiastic staff who create a loving, caring, pleasant, non-threaten- 
ing environment at this facility. Here, youths are counseled and 
schooled with academic emphasis on reading and mathematics, preparing 
them hopefully for emancipation into the community. This program works 
strictly on behavior modification , and the building of self-esteem; 
perhaps this is the one time in a youth's life that he receives any 
level of success or support from what appears to be a surrogate extended 
family, dedicated to meeting the needs of disadvantaged youths. Log 
Cabin not only receives youths from San Francisco County but also 
receives some youths from Merced County, which pays $975 a month per 
child. These fees go into the City's General Fund. This involvement 
of Merced youths has served to provide a more racially balanced group 
of youngsters. One of the problems that exists for Log Cabin youths 
is boredom. While Log Cabin has facilities for swimming, football, 
and basketball, youths do need some vocational training - further 



assisting their emancipation into the community. For awhile, the auto 
shop remained closed because San Francisco Unified School District 
did not provide an auto shop teacher to replace the auto shop teacher 
who went out on disability. Finally, the CCC paid for the auto shop 
teacher. The CCC is currently using the shop for its own programs as 

Future plans include the development of a youth transition 
home for the boys released from Log Cabin. This program is a necessity, 
for the return of the youth to the home environment he came from will 
only expose him once again to the same peer pressures and family 
environment that may have caused his problem in the first place. 
Youths should have the opportunity to live in the community away from 
their homes before making their final step into society. 

We recognize the difficult circumstances under which Mr. 
Botka and his staff work at Youth Guidance Center in dealing with the 
problems of youths as a result of our complex society. 

Loss of staff and decrease in budget would further hamper 
them in a task already burdened with tremendous responsibility. 

Clara T. Delgado 
Rebecca S. Turner 

Vivian M. Kalil, Chairman 



The glories of ancient Egypt fly in and out of our fair city 
on man-made wings, new edifices are erected in the name of progress 
and civilization, trees are planted, cable cars hike hills ; glittering 
sights for tourists and inhabitants of San Francisco, the eighth wonder 
of the world. 

Amidst this veneer of civilization lies the Adult Probation 
Department at the Hall of Justice, headed by the capable and concerned 
Walter Morse, Chief Adult Probation Officer, whose responsibilities 
include: the surveillance of convicted felons and misdemeanants; 
deviants whom this department must somehow fit back into the mainstream 
of life; pre-trial investigations; counseling services. 

The aftershock of Proposition 13 registers a 7 on the Richter 
Scale for this department, serving to increase the pulse rate of per- 
sonnel with the threat of budget cuts, loss of probation officers, 
depletion of clerical staff and deletion of viable community programs. 
While San Francisco may continue to be an attractive city for tourists 
and inhabitants, it is increasingly becoming an unattractive place 
to work for employees in this department. 

While some organizational problems have been resolved with 
the filling of positions for Senior Probation Officers and supervisory 
positions, the remaining problem for journey men probation officers 
continues. Little chance for promotion, limited tenure positions, and 
the threat of dismissal are contributing factors to the disillusionment 
and low morale amongst personnel. 

Some organizational changes in the department have taken place 
over the past few years to clarify and formalize personnel policies, 
procedures, and management of this complex system. One such program 
is the Community Resource Management Team, designed to assist more than 
1,100 probationers to gain services from community agencies. This 
program utilizes community resources. A unit supervisor, eight line 
probation officers and a unit clerk assess the needs of the probationer 
for a particular type of service in the community such as employment, 
mental health, or a drug abuse problem. 

During the year 1977-1978 outside management was given to Adult 
Probation via the Pacific Telephone Company which loaned three of its 
managers to assist Adult Probation for six months in improving opera- 
tional efficiency, revising procedures and updating and developing a 
management manual. 

Aside from having to handle the organization and mangement of 
this department, investigative units, consisting of three supervising 
probation officers and 18 probation officers, offer services to the 
Superior and Municipal Courts with pre-sentence investigations as well 
a3 provide services to the District Attorney's office, Public Defender's 


ADULT PROBATION (continued) 

office. Police and Sheriff. These investigative unltB provide informa- 
tion on the background, bahavior and needs of individuals, making 
sentencing recommendations as well as recommendations as to the granting 
or denying of probation and conditions of probation. The Intake Unit 
of the Investigations Division was designed for persons granted pro- 
bation who had no prior referrall for a pre-sentence report. This 
unit functions to accumulate a case history, assess needs for services 
and schedule the individual for meetings with the probation officer. 
Cost per new case is $95.47. 

Of serious concern to the Qrand Jury Is the questionable 
statUB of needed programs already in existence. After the budget out, 
Adult Probation may lose the Drinking Driver Program, a program whloh 
enables persons arrested for drunk driving to retain their licences, 
provided they participate In a treatment program. Deletion of thli 
program restricts Adult Probation from performing one of its chief duties 
rehabilitation; offering the violator of the law a chance to be a part 
of his community. 

Other projects include Project 20, which involves persons who 
are referred by the Municipal and Superior Courts to do community 
service work assgnments with private and public agencies as an alter- 
native to a fine or penalty. The Work Furlough Program consists of a 
24- hour residential program which enables persons to work while in 
custody in order to partially reimburse the community for prison costs, 
yet gives the individual connection to his community by allowing him a 
means to earn wages and support dependants, as well as receive educa- 
tional and vocational training. This program assists selected County 
Jail inmates by affording them the opportunity of transition and 
assimilation into the mainstream of life. The above are only a few 
examples of the ongoing projects deemed necessary to achieve the goals 
and objectives of this department. 

With the extensive multi-services required by Adult Probation, 
the demands and needs have become great: 

1. Additional office space; 

2. Increased clerical staff to handle the mounds of paper 

3. PundB to preserve existing programs such as Drinking 

4. Administrators who are responsible for the performance 
ByBtems as well as instituting changes in the department* 



Under the capable administration and efficiency of the dynamic 
Judge Robert L. Dossee from mid-1978 to April 1979, nineteen Municipal 
Courts routinely handle civil, small claims, and criminal cases, in- 
cluding misdemeanors, felonies and traffic citations. 

With an increased number of civil cases filed in 1978 and 
pending Jury cases averaging 117 per month, the court calendar still 
continues to run smoothly with jury trials being set within M5 days 
of filing. Non-Jury cases under the civil division average 175 cases 
per month and are set for trial within 30 days. The most significant 
change in Municipal Court begins July 1, 1979. The claim limit will 
be increased from $5,000 to $15,000. Mandatory arbitration is a means 
of expediting potential court case backlog. 

The experimental state- funded program involving small claims 
court on Saturdays and at night ended on March 31, 1979* Two legal 
advisors were involved in personally interviewing approximately forty 
persons a day, advising the litigants on process and procedure of claims. 
Even though there was no significant change in the number of filings 
while this program was in effect, we hope Municipal Court will seek 
means to retain both the evening court sessions as well as the free 
legal advisors. We commend those Judges who volunteered to preside over 
the evening court sessions, thereby further serving the citizens of San 

The successful reorganization of the misdemeanor departments, 
instituted in December 1977 created four misdemeanor Jury trial depart- 
ments, plus a fifth department to handle motions. This greatly assisted 
in alleviating the increased misdemeanor caseload. The court calendar 
indicates that two months after filing the case goes to trial. 

Four felony courts handle arraignment cases. Despite the 15* 
increase in caseload, the 1978 court calendar of approximately 5,000 
cases ran very smoothly. 

Revenue obtained through traffic citations reached a new high 
of $12,959,606. In addition, no longer will unpaid traffic citations 
go to warrant, but instead will be recorded with the Department of 
Motor Vehicles, making it impossible for the offender to renew his 
license without having first paid for the citations. 

While we anxiously await the completion of the six courtrooms 
in the Hall of Justice, 4 for Superior Court and 2 for Municipal Court, 
the main problems of security and space continue to exist. Some of the 
main problems are found in existing courtrooms. Department 18, where 
serious misdemeanors go to trial, has no holding cell. The defendant 
has to be manacled to the chair. An escape attempt was made this year. 
This poses a dangerous situation for the Judge as well as the citizens, 
for not only is it easy to escape, but also an inadequate communications 
system makes one unable to respond to the immediate crisis. Department 


MUNICIPAL COURT (continued) 

20, Traffic Court, hears 240 cases a day, but only has a seating ca- 
pacity of 38. Department 19, a Felony Court, has a seating capacity 
of merely 23. 

Supervision at the City Hall is needed, since the eight courts 
at the City Hall have a limited number of bailiffs who float between 
courts during civil hearings. Municipal Court tries to restrict 
criminal jury trials to the Hall of Justice. If a trial must be placed 
in City Hall, the Sheriff is advised so bailiffs are assigned to the 
trial department. 

The diligent efforts of Judge Dossee to meet the increased 
needs of Municipal Court are noteworthy. Judge Raymond D. Williamson, 
Jr., was named as Presiding Judge of the Municipal Court in April 1979. 
We wish him much success in his new position. 

Clara T. Delgado 
Rebecca S. Turner 

Vivian M. Kalil, Chairman 



The San Francisco Law Library, administered by librarian- 
secretary, Harold Rowe, receives its financial support from the 
legal filing fees of the Superior and Municipal Courts. Interest 
from U. S. Bonds, Utility Bonds and interest in savings accounts 
provide additional revenue. 

In addition, the City and County of San Francisco appro- 
priates funds to be used mainly for salaries. However, a deficit has 
remained in the budget since 1972. An increase to $7.00 in filing 
fees from Superior and Municipal Courts took place on January 1, 1979; 
this will not however, solve the financial problems of the library. 
The library will most likely seek legislative means of further 
increasing the filing fees, perhaps to as much as $12.00 as well as 
research other means of finance, or limit its services. 

This library is frequented not only by attorneys, but also 
k5% by law students, paralegals, students, and local citizens who 
are able to research the most technical aspects of law as well as 
"how to do your own divorce." 

The combined collection of the Main Branch and Mills Branch 
consists of 25^,289 volumes, after the acquisition of new volumes and 
the selling of obsolete volumes. Sufficient space for the vast 
assortment of books continues to pose a problem. Mr. Rowe has done 
a commendable job in utilizing all available space to store the 
pyramid of books. 

Clara T. Delgado 
Rebecca S. Turner 

Vivian M. Kalil, Chairman