Skip to main content

Full text of "Grand Jury reports"

See other formats
















Not to be taken from the Library 


May x 

3 1223 03657 9820 

4 W£ 


Ar\ \ k Aw^.c O ; 




m&M® mm 



JUN 1 9 1970 





J ex- j J. a 

1969 San Francisco County Grand Jury- 
January 8, 1970 

Honorable Edward F. O'Day, 
Presiding Judge of the Superior Court, 
Room 450 City Hall, Civic Center, 
San Francisco, California. 

Dear Judge O'Day: 

The 1969 Grand Jury is happy to present to you the enclosed reports 
of its chairmen and committees. Accompanying these reports is a 
transmittal letter by the foreman representing some of his personal 
thoughts . 

Let me say at the outset, that all of the members of this Grand Jury 
have worked hard and diligently in the process of this year's work. 
They were an outspoken, independent thinking group of people, who, 
nonetheless, adopted these reports as an entity. Therefore, these 
reports are the combined thinking of all of our members. I offer my 
congratulations to them for a constructive job, well done. 

We were deeply saddened during the latter part of this year by the 
loss of one of our jury. Arnold Devoto passed away on Friday, 
October 17. He was a warm, sensitive human being, who was loved by 
his fellow jurors. We miss him very much and are sorry he could not 
have lived to see the fruits of his labor on this jury. 

There are a few matters that I feel ought to be given special atten- 
tion by the political structure of San Francisco. I call these to 
your attention for special emphasis and in the hope that the 1970 
Grand Jury may have a starting point to look at certain matters. 

First and foremost, I believe the report of our Civil Service Com-, 
mittee should be studied in depth. I feel a complete restructuring 
of this department is in order. 

It needs a thorough overhauling. Automatic pay increases should not 
be made. There should be an incentive program initiated. The salary 
of top management people should be more in line with private industry, 


Digitized by the Internet Archive 

in 2010 with funding from 

San Francisco Public Library 

Honorable Edward F. O'Day. 

The next matter of importance is the matter of our Police Department 
and its relationship to the Fire Department. I believe that the 
Supervisors should initiate action to separate the departments as 
to their pay scales. Each should be on its own. The defection of 
policemen to firemen is too great. In today's urban crisis, there is 
a need to meet the full complement of police. Pay raises may be a 
way to do this. The city should not be obligated to raise the fire- 
men to accomplish this. 

The Supervisors and department heads could possibly consider using 
outside contractors to a larger extent instead of maintaining city 
departments. There may be some savings made by using this method. I 
also feel that the Supervisors should get on with their work of pro- 
viding freeways and recognizing that we do have automobiles. The cars 
should be moved around the city and not through its city streets. 
Furthermore, I believe that the Supervisors should have a budget 
analyst. If we are ever going to control the tax situation in San 
Francisco, we must have more and better controls on city spending. 
The work is too great for the average Supervisor to study. A budget 
analyst is needed to help. 

The menace of drugs is paying an important part in the crime wave 
that has hit major cities throughout the country. A great many of 
the criminal cases we heard this year were the results of drugs, drug 
traffic, and drug abuse. I hope the Mayor and Board of Supervisors 
will note well our special committee's report on this matter. 

Oar Public Utilities Department has grown to such proportions that it 
may now be advisable to break it down into several departments. I 
recommend very strongly that the Mayor and Board of Supervisors take 
a long, hard look at this problem and make these necessary changes. 

The members of this Grand Jury and past members are a dedicated group 
of private citizens who have given much of their time and energy to 
help the city. I believe these people, the knowledge they have gain- 
ed and their talents, should not be wasted in the future, but used as 
members of commissions and committees to help the city further. 

I and members of this Grand Jury offer our help and assistance to the 
1970 Grand Jury in any way possible. I hope they will call on us at 
any time if they wish our assistance. 

Our jury, as in the past, is deeply indebted to Ralph Sheehan for his 
excellent help, advice and assistance during this year. Our thanks 
also go to your able staff of court attaches. 

We were pleased to have worked earlier this year with Francis Mayer 
of the District Attorney's office and were especially pleased to see 
him elevated to Superior Court Judge. His successor, Walter Giubbini, 
has done a fine job and we know he will carry on in his usual effi- 
cient way. Frank Shaw, who acted as an assistant in the District 
Attorney's office and presented many cases before us was appointed 
to the Municipal Court. We offer him our congratulations. 


Honorable Edward F. O'Day. 

My sincere thanks go to Mrs. Dobbs, our efficient Secretary, for all 
her help and devotion during the year. 

To you, Judge O'Day, thank you for all your help during this year and 
special thanks for giving me the privilege and opportunity to be of 
service to this great city as foreman of its Grand Jury. It has been 
one of the finest and most rewarding experiences f m y life'. 


Melvin M. Swig, Foreman 
1969 Grand Jury for the 
City and County of San 


Members of the 1969 Grand Jury- 
City and County of San Francisco. 

Mrs. Marie A. Bruce 
John J. Casey- 
John P. Cordoni 
Norbert Cronin 
George C. Denend 
Arnold F. Devoto 
John J. Enright 
Eugene R. Erigero 
Henry E. Fourcade 

Melvin M. Swig, Foreman 

Impaneled January 10, 1969 

Joseph M. Hannan 

Nicholas J. Klunis 

Mrs. Nancy B. Knickerbocker 

Charles G. Landresse 

David Morris 


Frank J. Smith 

Joseph C. Tarantino. ' 

Mrs. Annette R. Dobbs, Secretary 
Discharged January 14, 1970 



I Foreman's letter to the Presiding Judge, 

31 Adult Probation 

99 Art Commission 

17 Assessor 

#5 California Academy of Science 

91 Chief Administrative Officer 

67 City Attorney 

38 City Planning Commission 

75 Civil Service Commission 

21 Controller 

80 Coroner 

9 County Clerk - Recorder 

109 Data Processing 

14 De Young Museum 

15 District Attorney 
33 Disaster Corps 

69 Economic Opportunity Council 

101 Education, Department of 

70 Electricity, Department of 

9 Finance and Records, Director 

87 Fire Department. 

1 Health Department 

73 Health Service System 

40 Housing Authority 

42 Human Rights Commission 



Table of Contents (continued) 

60 Juvenile Department - Youth Guidance Center 

32 Law Library 

97 Libraries 

94 Mayor 

29 Municipal Court 

46 Narcotics 

45 Palace of the Legion of Honor 

24 Parking Authority 

37 Permit Appeals Board 

55 Police Department 

48 Port Authority 

65 Pornography 

36 Pound 

9 Public Administrator-Public Guardian 

12 Public Defender 

26 Public Utilities 

6 Public Works, Department of 

7 Purchasing Department 
72 Real Estate Department 

92 Recreation - Park Department 

23 Redevelopment Agency 

10 Registrar of Voters 

107 Retirement System 


Table of Contents (continued) 

51 Sheriff 

105 Social Services Department 

29 Superior Court 

84 Supervisors, Board of 

10 Tax Collector 

63 Treasurer 

100 War Memorial 

10 Weights and Measures, Sealer of. 



San Francisco has three hospitals: The San Francisco Gen- 
eral, Laguna Honda Hospital, and the Hassler Health Hospital; and 
five emergency hospitals. These are under the jurisdiction of the 
Department of Public Health, and under the direction of Ellis D. Sox, 
M.D. All these facilities provide a wide range of specialized ser- 
vices which, in some cases, are not obtainable elsewhere in this im- 
mediate area. 

This Committee would like to take this opportunity to 
praise the services of Dr. Sox and commend him and his staff for 
their service to San Francisco. Too often we tend simply to look at 
and seek out criticism of our public servants and overlook their 
special efforts and sincere work . Doctor Ellis D. Sox arid members of 
his staff deserve the appreciation of the City as a whole. 

The San Francisco General Hospital is a joint effort of the 
City and County of San Francisco and the University of California 
Medical School. It is providing a much needed service to the people 
of San Francisco and we believe the operation is run to the best of 
the ability of the men who are supervising this facility. It is an 
acute hospital, basically responsible for providing medical and sur- 
gical care to any person requiring medical attention. The University 
of California has a responsibility of providing sufficient and com- 
petent professional staff so that the hospital may continue to be 
approved for intern and resident training. 

The new hospital project is a major item of importance. The 

present hospital consist of large fifty year old buildings sprawled 

over a twenty acre space. In 1965, the voters of San Francisco 

approved a $33.6 million bond issue for a new medical center to re- 
place San Francisco Hospital. 

On June 2, 1969, the members of the 1969 Grand Jury recom- 
mended in a separate resolution that the $33,000,000.00 Bond Issue 
should not be sold. 

The committee had a series of meetings in reference to the 
above. It was concluded that in order to have a fully accredited 
hospital, the present structure cannot be remodeled, a new hospital 
must be built in order to meet wi til full accredidation. 

Four important years have elapsed since the passage of the 
bond issue. Political and economic developments affecting health 
care have had, and are still having a profound effect. The ultimate 
effects are not yet in sight. 


The construction of a new San Francisco General Hospital 
and Medical Center is an issue which has become clouded by many 
related factors. These include rising cost, the role of the Univers- 
ity of California, economics and geography. 

This year a project coordinator was appointed to reconcile 
the different views of the medical staff, city officials and archi- 
tects. The first schematic drawings, a high rise building, was re- 
jected by all parties concerned. The second was accepted. 

Some $7 million has already been spent on architect fees, 
surveys and feasibility studies. This extensive advance planning 
and our discussion with various doctors convinces us that San Fran- 
cisco General Hospital should remain at the present location. 

We stress our point of view that if an administrator is not 
immediately appointed that our Grand Jury could not recommend to 
those in authority that any more monies of the taxpayers be spent. 

In our interim report we took a strong position in refer- 
ence to an administrator and we find that an Ad Hoc Committee of 
five doctors and five laymen were qualified in our opinion for the 
finding of an administrator and we feel that our Grand Jury Committee 
has made a substantial contribution to this effort. 

In mid-term our committee submitted the following list of 
recommendations : 

1. That the San Francisco General Hospital engage the services 
of a non-medical, full-time director and that his compensation be 
comparable to that received for similar services in other hospitals 
in San Francisco. 

2. That the fence at Laguna Honda Hospital be installed as 
soon as possible for the safety of the old people, the staff and the 
visitors. We notice that past Grand Juries have made similar recom- 

3. That the Hassler Hospital be phased out by moving their 
patients into the San Francisco General Hospital, or into Laguna 
Honda Hospital, as both institutions have ample facilities. The feas- 
ibility of the sale of the Hassler Hospital property should be , 

4. That an Emergency Hospital Facility should be incorporated 
into all of the District Health Centers and then the older, anti- 
quated Emergency Hospitals could be closed. 

5. That a three-man, qualified Lay Commission, which will act 
as an Operational Review Committee, should be appointed to supervise 
the Health Department. 

6. That an audit be conducted at least once a year on all of 
the hospitals under the jurisdiction of the Health Department . 


Health Department continued. 

7. That an adequate billing system be immediately established 
to insure the collection of money for all health services rendered 
at our hospitals. Our investigation disclosed that in excess of a 
half million dollars is being lost to the City and County of San 

8. Medical care for all detention facilities should be en 
trusted to the Department of Public Health. 

Supplemental information relating to the foregoing Item 2 . 

The matter of a fence at Laguna Honda Hospital was to be 
taken care of by an emergency appropriation after a visit by this 
committee to the Chief Administrative Officer, Thomas Mellon. 

Supplemental information relating to the foregoing Item 3. 

This committee visited Hassler Hospital in Redwood City 
and we toured the 304 acres of ground and the hospital that houses 
182 patients. Most of the patients have a chronic illness. There ■ 
are 150 people on the staff with a budget of $1,700,000. 

This committee feels very strongly that this hospital 
should be a part of Laguna Honda Hospital or San Francisco Genera" 1 
Hospital, and effect a savings to the flan Francisco taxpayer. 

Though we believe that Hassler Hospital should be phased 
out, as do some other agencies, we note that in the new budget 
request that the department asked for an increase of 12 new pos- 
itions and an increase of $208,481 of its budget. It is obvious thst 
there is a conflict in views here and the city's policy makers 
should make note of this. 

In its response to our suggestions of Hassler Hospital, 
the Mental Health Advisory Board stated the operation of Hassler 
Hospital does not cost the city any money since it is financed from 
State and Federal funds. This is a tjme honored rationalization 
that shifts responsibility from one level of government to another. 
This process merely avoids mention of the fact that the taxpaper is 
still paying the bill. 

The Mental Health Advisory Board further states the Hos- 
pital should be kept in case the alcoholism program or the care of 
the mentally ill persons program is expanded, or taken over. This 
hardly seems sound business practice and any experienced person can 
well project to the day this occurs and a request comes for add 
itional funds "to convert the facility to the new program." 


Health Department continued. 

The same advisory board stated as follows: "San Francisco 
has some of the most serious mental health problems in the United 
States. In the area of alcoholism, suicide, drug abuses, and mental 
illness, the city outstrips all other metropolitan areas in the 
country . 

The board, through Dr. Alfred Auerback, Chairman, goes on 
to say: "To reduce the proposed personnel who would be working with 
sick people, suffering from the effects of drug or alcohol abuses, 
mental or emotional illnesses, is both inhumane and unacceptable". 

This appears to our committee to be an unacceptable twist- 
ing of the facts and a statement so far remote from any of our in- 
tentions as to be grossly unfair. The Health Department has a bud- 
get of over $10 million dollars for 196"9> and this budget has been 
increased regularly. No one had any intentions of reducing proper 
medical or psychiatric services, and any logical person would cer- 
tainly accept that. 


We feel that the Alemany and Park Emergency Hospitals are 
really old buildings and should be incorporated into new Health Pre- 
ventive Centers, and antiquated emergency hospitals should be phased 
out. As a further suggestion, we think it would be advisable to in- 
volve all medical facilities in San Francisco, private, public and 
non-profit, in order to update and modernize the excellent emergency 
medical care afforded by the City and County of San Francisco. 

Our Emergency Hospital service is an excellent one and 
its reputation and service should be maintained on its high stand- 
ard. Care is rendered at five Emergency Hospitals on a 24-hour 
basis, with a minimum of one doctor, one registered nurse, one med- 
ical steward and one ambulance driver on duty 24 hours daily, 3^5 
days a year. 

NARCOTICS: We have found the narcotics situation in San 
Francisco to be such an alarming problem that we refer you to the 
Grand Jury Special Report on Narcotics. 

We find that one of the major problems of the San Fran- 
cisco Hospital is to try and live within its budget. There is a 
constant problem of keeping in supply such items as drugs, hospital 
supplies and x-ray films. New and better drugs are being introduced 
and these new drugs are expensive. Newer and better products, such 
as the use of disposables, are gaining wider acceptance among mod- 
ern hospitals and this is an added expense. The need for x-ray films 
increase with the increase of accidents and crimes of violence. 

This committee also investigated the problem of the delay 
involving prisoners brought to San Francisco Hospital and also the 
delay involving all patients being processed through the Emergency 
Ward at the Hospital. 

The difficulties are complex and occur at several stages 
in the patient's evaluation. 


Health Department continued: 

Prisoners are customarily brought to the Hospital in the 
middle of the morning, which is a busy time in the Emergency Ward. 
The congestion causes a delay before they have their initial history 
and physical examination by the attending physician. Usually some 
laboratory work is necessary which requires time to obtain specimens 
and to perform the necessary determinations. Another point is that 
a large proportion of the prisoners require x-ray examination. This 
generally results in a long wait because the x-ray department is run- 
ning at full capacity with scheduled examinations on hospitalized 

Most frequently, consultation with other services, especi- 
ally the psychiatric service, is required. Since the psychiatric 
staff coverage is barely adequate it is difficult to provide immed- 
iate consultation . when requested during the daytime. 

We were satisfied to note that as a result of a communica- 
tion from our committee, Dr. John F. Murray of San Francisco General 
Hospital set up communication with Chief Thomas Cahill with a point 
of view of streamlining procedures to seek some solution. 

This Committee is disturbed at the increased problem of 
venereal disease in San Francisco. This increase has come to be ex- 
pected annually since the removal of the venereal disease threat in 
the middle 1950' s. The report of the Division of Venereal Disease Con- 
trol shows the number of cases diagnosed and treated in 1968 increas- 
ed by almost one-third over the previous year, and the increase in 
1967 was 40 percent more than that of the previous year. The number 
of new patients in 1968 was 17,346, which was an increase of some 40 
percent over the previous year. The total number of patient visits 
in 1968 was 52,602, making it one of the largest outpatient clinics 
in San Francisco. 

This Committee is pleased at the Health Department's role 
in providing psychiatric service with the operation of a detention 
facility through the provision of a team approach that will intervene 
at the time of the crisis. In the last three years, this crisis in- 
tervention on outpatients has decreased the number of patients admit- 
ted for in-patient care by 40 percent, and as a result of a change in 
Court policy as well as improvement in our services, the percentage 
of cases hospitalized in San Francisco that were committed to State 
Hospitals has in three years dropped from 48 percent to 5 percent. 
The shift in pattern now will be for the Health Department to move 
from crisis intervention to community psychiatry through the decen- 
tralization services and a team approach. 

Henry Fourcade 

Nicholas J. Klunis 

Joseph C. Tarantino, Chairman 



This department is under the direction of Mr. Myron Tatar- 
ian as Director. 

The Department of Public Works is one of the major depart- 
ments in the city. The current annual budget is approximately $35 
million dollars. 

They have about 1,800 employees, such as full crews of 
union carpenters, plumbers, electricians, steam fitters, and many 
other trade specialists. 

The following departments are under the jurisdiction of 
the Department of Public Works. 

Bureau of Architecture 

Bureau of Building Inspection 

Bureau of Engineering 

Bureau of Permits 

Bureau of Accounts 

Bureau of Building Repairs 

Bureau of Water Pollution Control 

Bureau of Street Repair 

Bureau of Street Cleaning and Planting. 

It also operates the telephone center which is responsible 
for the operation of the City Hall Centrex Telephone System, which 
serves all of the administrative departments of city government. 

The 1968 Grand Jury made a recommendation that two-way 
radio communications be installed on trucks used in the street main- 
tenance, so that trucks do not have to come back to the repair yard 
for reassignment. In checking this with Mr. Tatarian he informed this 
committee that this has been taken care of. This should be a big 
saving both in time as well as cost per job. 

Mr. Tatarian also informed us that the delays involved in 
issuing building permits has been corrected. This in the past often 
delayed permits for weeks and months. 

As a whole this Grand Jury Committee feels that Mr. Tatarian 
is doing an excellent job operating the Department of Public Works. 




This department is under the direction of Mr. T.P.Conway, 
Purchaser of Supplies. 

Besides purchasing all materials and supplies it also 
operates the Central Shops that repair most of the city's rolling 
stock, such as Fire Department, Police Department vehicles, ambulances. 

The shop is under the direction of A.M. Flaherty who works 
under Mr. T. F. Conway. We have made several trips to these shops 
and have come to the conclusion that Mr. Flaherty is doing an excel- 
lent job. 

They are still operating with the same amount of help that 
they had in 1952 but are maintaining about double the units they did 
at that time. 

After several visits with Mr. Conway we feel that this 
department is being run in a very efficient way. Mr. Conway informs 
us that the work-load has increased in his department since the city 
has taken over the port from the State and feels that he would like 
to hire one more person to the position of Supervisor of Division 
of Specifications and Standards. 

Mr. Conway states that this position is requested because: 

1. The work to be done is an absolute necessity if the Bureau 
of Purchasing is to function properly and to accomplish the efficien- 
cies which will result. 

2. The addition of the Port Authority to the departments they 
service will increase the work load by nearly ten percent. 

The duties and responsibilities of this division would be 
as follows : 


A. Review long existing specifications, particularly those 
used as a basis for substantial, periodic material and sup- 
ply purchases; revising them whenever desireable to stim- 
ulate competition and discourage collusive bidding with 
resulting savings of public funds. 

B. Develop specifications for equipment that will stimu- 
late competition and indicate clearly to prospective 
bidders what is required. 

C. Develop operating, laboratory, and other tests as a 
basis for evaulation of articles offered and purchased. 




The bulk of the equipment allowed by the budget review 
authorities is to replace equipment represented by the 
requesting department to be unsuitable for further use. 
Under these circumstances it would be desireable to pur- 
chase the new equipment as soon as possible. However, it 
is not possible to accomplish this to the extent desired 
because of the following: 

A. PERSONNEL. Thr\ purchasing staff is just adequate to 
purchase their yearly requirements of materials, supplies 
and equipment in a year's time. Purchases of materials and 
supplies, items required continuously and that are con- 
sumed in use, must be kept current. 

After several discussions with Mr. Conx^ay it is the rec- 
ommendation' of this committee that this new position be created. 

Joseph M. Hannan 

Charles G. Landresse 

Arnold F. Devoto, Chairman 



This department is ably administered by Mr. Virgil Elliott, 
Director of Finance and Records. The following report to the Chief 
Administrative Officer through the Director of Finance and Records: 
Agricultural Commissioner, County Clerk-Recorder, Farmers Market, 
Public Administrator-Public Guardian, Sealer of Weights and Measures, 
Registrar of Voters, and Tax Collector. 


This department does an outstanding job in enforcing the 
provisions of the State Agricultural Code; through its inspection 
services, a high standard of quality is maintained in the area embrac- 
ing fruits, nuts, vegetables, eggs, poultry, meat and honey. 
Inspections are conducted at the wholesale produce terminal and loca- 
tions wherever produce is offered for sale. 

Seeds, plants and nursery stock shipped or transported 
into the county as well as plants in nurseries are also inspected. 

Pest surveys and controls are maintained. 

Commissioner Raymond Bozzini and his highly qualified staff 
maintain an efficient operation and this committee commends them for 
the service rendered to the county. 

FARMERS MARKET : This self-supporting activity is also 
administered by the Agricultural Commissioner and returns a small 
excess over operating expenses to the City each year ($67,216.04 to 
date after payment of cost of the land and capital improvements). 
The operation appears to be well regulated and efficiently organized. 

This committee feels that a revolving fund for minor main- 
tenance and repairs could well be considered in view of the public 
exposure and location of the market. 

COUNTY CLERK-RECORDER . A functional branch of City and 
County Government operating well, serving the public and courts with 
limitations imposed by obsolete equipment and archaic methods. We 
recommend a survey be conducted to determine ways and means of up- 
dating the various processes in accordance with today's technology. 

supporting office under the competent and efficient administration of 
Mr. Con S. Shea and staff. Periodic audits are made by certified 
public accountants. Their recommendations for improvements in record 
keeping and accounting procedures have received cooperation consistent 



with provisions of applicable statutes and cedes. While there has 
been an increase in the work load, consoliie.ricn of the two offices 
and the installation of electronic accounting has enabled the office 
to function efficiently without iiiitional personnel. 

RESISTS ~ "~ ~T"~5 : Between elections routine vot - 
registration is conducted; the holding of elections brings a p- 
work-load to this office requiring trebling the staff thi the 
employment of temporary help. Introduction of E.D.P. Processes for 
vote counting and tabulation has resulted in unwarranted delays in 
determining final results. Much criticism has been received from 
candidates, grand juries and voters and it has been recommended that 
E.D.P. be discontinued in favor of the previous method of manual 
counting and tabulation which was expeditious and accurate. 

The November 4th, 1969 election was handled by E.D.P. , and 
while not as fast as the previous manual operation, a decided improve- 
ment over preceding disastrous years. Time will tell whether elec- 
tronic data processing holds the e_r.s er to speed and accuracy ir. 
determining election results at a cost ccr_-.rr.5-.r2.7e with the use of 
the previous satisfactory syster,. 

SEALER :? •.~i:-HT5 .-NT "EA5V7E5 : This department has 
functioned smoothly over the years; its inspection and sealing opera- 
tions are conducted without resort to legal involvement. Cogn iz ance 
must be taken of the 1968-1969 fiscal year inspection of PAXI EETERS. 
Of a total of 214 inspected 26 had to be adjusted and 72 were 
condemned. San Francisco taxi rates are su -St in _ e 

country; we recommend that a concerted drive be made re ir.ereer and 
bring into line all meters on cabs ope: iting i this city. 

RECORDS CENTER : This center is maintained In a privately 

owned warehouse at 144 Townsend Street; the operaticr. ie orderly and 
well organized and serves the purpose for which ir is ited. 
committee feels that if, as and when a general office build! 1/or 
courthouse is constructed, provision should :e wade for the inclusion 
of a modern and up-to-date records eer.rer. 

TAX COLLECTOR : In 1963-1959 this office handled collection 
of $250,596,032 an increase over 1967-1963 of some .29,000,000. The 
enactment of the business tax in October 1963 necessitated the em- 
ployment of 42 additional personnel - first 9 months collection 
totalled $1,963,946.31 for the fiscal year 1968-1969. Estimated 
annual collection of this tax is $8,000,000. 

E.D.P. Processes are used in part by the Tax Collector's 
Office. "Rapidity of Llshment is of course^ : ' apon the 
amount of attention that Lven by the S.D.P. staff to tax 
office matters". :.v: Collector Annual Report 1967-1 ; - : Sapidity 

of achievement is, of course contingent upon the unount of *d 

attention that can be given by the E.D.P. staff to tax office matters 
(Tax Collector Annual Report 196S-1969). 


TAX COLLECTOR ; (Continued) 

Mo progress in development of a workable E.D.P. Process is indicated 
aftor a lapse of two years. Recommend that a speed-up in completing 
E.D.P. Programming utilizing this service to the fullest extent for 
the benefit of the Tax Collector's office be immediately instituted. 

The addition of new personnel necessitated new working space 
a mezzanine storeroom was converted for this purpose. It is ill- 
suited for this use; it is overcrowded, poorly ventilated and the 
stairway leading to it a distinct hazard. Safety treads should be 
immediately installed to reduce the possibility of accident to the 

We recommend that the use of these quarters be discontinued 
at the earliest possible date and provision made for the staff's 
accommodation on the main floor where there is ample room to take care 
of them. 

David Morris 
Frank J. Smith 

Charles G. Landresse, Chairman 



The Constitutions of the United States of America and the 
State of California provide that all defendants accused of a crime 
must receive adequate representation in the courts of law. Where a 
defendant is unable to pay, the Public Defender must come to his aid 
so that the defendant is given a fair and impartial trial. 

In the 1968-1969 fiscal year report of the Public Defender 
it is indicated that the office represented 3^,920 people at a cost 
of $12.78 per defendant. This would indicate an economical and ex- 
tremely efficient operation of this department. 

Inasmuch as the crime rate in our city has increased enorm- 
ously, and whereas his requests for additional personnel have been 
denied to a great extent, we believe that the Public Defender is en- 
titled to more help, for the following reasons: 

The Superior Court has established a Master Criminal Calen- 
dar Department at the Hall of Justice in order to speed up the hand- 
ling of the large volume of criminal cases now pending. This will of 
necessity require more personnel and equipment for the Public Defender. 
Thirteen (13) new employees have been requested for this endeavor at 
a cost of $127,920.00, plus $5,000.00 for equipment and furniture. The 
members of this Grand Jury Committee urgently endorse the approval of 
these requests. 

Public Defender Mancuso has requested permissive legislation 
allowing his department to charge defendants fees within their abil- 
ity to pay. This Committee believes that such legislation would en- 
able San Francisco to recover such funds which are lawfully due the 
City, but where little effort has been made to collect them. Our Com- 
mittee believes that the courts have been too lenient in this regard 
and a large amount of money could be saved for our City. 

A new set of duties has been assigned to the Office of the 
Public Defender in that he now must represent the Conserva-tee in the 
Conservatorship actions. This is in the field of the mentally ill, 
and fifty (50) cases are now in the hands of the Public Defender. This 
can be a continuing matter, taking up considerable time, as it would 
entail travel to all State Mental Institutions. A ruling on whether 
the Public Defender is to handle these matters on a permanent basis 
is awaited ; and, if the assignment become permanent, then additional 
personnel would be required 


Public Defender (continued) 

This Committee commends the Public Defender and his staff 
for the excellent manner in which the Department has been adminis- 
tered, and we strongly urge the approval of the requests for legis- 
lation suggested above as a means of continuing this office in a 
progressive manner. 

Eugene R. Erigero 

John J. Enright 

Henry E. Fourcade, Chairman 



At present this facility is in the throes of a possible 
merger with the California Falace of the Legion of Honor. A qual- 
ified outside museum director has studied in depth such a merger 
and this study with its recommendations , is in the hands of the 
Board of Trustees of both museums. It appears that in the near 
future there will be one director and one Board of Trustees for both 

This Committee of the Grand Jury endorses this plan two- 
fold: as a savings to the city and providing better services to 
the public. 

This Committee, through its investigation, noted that the 
De Young Museum loaned to the San Francisco Maritime Museum, commenc- 
ing in 1951 and continuing over a period of years, a number of works 
of art pertaining to the maritime and since that time the Maritime 
Museum has never made an inventory of these items. This has now 
been done. So that the Maritime can keep the items that De Young 
no longer wishes, this Committee recommends that an outside expert 
appraise the goods on loan and that the Maritime Museum purchase 
and donate to the De Young Museum works of art ef equal value. 

John J. Casey 
John P. Cordoni 

Eugene R. Erigero, Chairman 



This Committee has met with the District Attorney, John Jay 
Perdon and members of his staff on several occasions. We find this 
department is very efficiently operated in the face of a constant 
rise in its work load. 

A budget request for nine deputy district attorneys was 
presented to Mayor Alioto and is now in the hands of the Board of 
Supervisors. The Mayor approved the request for the deputy district 
attorneys required for the operation of the Master Criminal Calendar 
at the Hall of Justice, but no approval was given for the deputy 
district attorneys required to present matters at the Youth Guidance 

The Master Criminal Calendar operation is an endeavor on 
the part of the Court to make available sufficient superior court 
departments in order to expedite the handling of criminal cases. The 
District Attorney and his staff are cooperating wholeheartedly. 

Under the present rule, the District Attorney and/or his 
deputies are prohibited by law from presenting criminal matters to 
the court at the Youth Guidance Center unless specifically requested 
to do so by the Court. The Court has now made this request and four 
(4) additional district attorney deputies are required. The Probation 
Officers have been presenting the criminal matters and acting at the 
same time as counsellor and advisor to the youthful offenders. The 
Court did not feel that this was a proper procedure. 

The spiraling increase in our crime rate has necessarily 
increased the work of our District Attorney. We note a great in- 
crease of felony and misdemeanor cases in the last three years. A 
25^ increase of felony cases in 1966-67 from 8,382 cases to 10,631 
was followed in the fiscal year I967-I968 by an increase of 38$ to 
14,760 cases. Another increase of 21% in the fiscal year of 1968-69 
to 17,88l cases, more than doubled the number of cases in the last 
three years. 

The type of offenses considered by the Office of the Dis- 
trict Attorney in the past fiscal year reveals 97 murders compared 
to 44 murders in the I967-I968 fiscal year, an increase of 120$. 

An increase of 1,476 narcotic offenses from 4,154 to 5^630 or about 
25$ is alarming. 


District Attorney (continued) 

This Committee extends commendation to the District Attor- 
ney and his staff and wishes to pay particular tirbute to the former 
Chief Assistant District Attorney, now the Honorable Francis W. Mayer, 
Judge of the Superior Court, who is doing an outstanding job at the 
Youth Guidance Center. We also commend Walter K-. Giubbini, the pre- 
sent Chief Assistant District Attorney, a dedicated public official 
and an asset to the Office of the District Attorney. 

Eugene R, Erigero 
John J. Enright 

Henry E. Fourcade, Chairman 



The Assessor's Office operates under State Law, rules and 
administrative regulations of the State Board of Equalization and 
under local ordinance. 


The Assessor's Office has the responsibility of placing 
a full cash value on upwards of 154,000 parcels of real property and 
of auditing more than 50,000 business personal property statements 
for the purpose of assessing them at a uniform ratio of 25 per cent 
of full cash value. 

The 1969-1970 Assessment Roll reached a figure of 
$2,149,691,933 -(locally assessed), a net increase of $46,577,496 over 
last shear's roll, after deductions from constitutional exemptions. 
This would have produced a cut in the tax rate of approximately .24/ 
were it not for increased budgetary expenditures. 

Building values were increased $44,809,294, gross assessed 
value, while land value increased $8,809,294, despite the Redevelop- 
ment Agency's removal of 308 parcels bearing an assessed valuation of 

Assessor Tinney revalued the now City-owned Waterfront and 
Fishermen's Wharf properties, increasing their fair market value 
from $28 million last year to $41 million this year. 


It is noted that the Assessor's Office continues to make 
impressive progress in the reorganization and implementation of space, 
personnel, equipment and services. 

In order to serve the public better and to give a reason- 
able degree of privacy for taxpayer conference, obsolete counters and 
partitions were removed with new counters, partitions and floor til- 
ing installed at modest cost. 

The entire office presents a modern, pleasant, and efficient 
atmosphere and the relocation of personnel offers vastly improved 
service to the taxpaying public. 


However, space is an urgent requirement for maximum efficien- 
cy and it is strongly represented that space in or near City Hall be 
made available for use of the Assessor's Office. 


Assessor (continued) 

It is noted that the Assessor must cope with a vastly in- 
creased work load, yet has available only 133 employees, the lowest 
permanent staff in 13 years. This personnel problem was carefully ex- 
amined and it was noted that due to retirment, transfers, certain 
unrealistic pay schedules and the Inability of Civil Service to pro- 
vide certified personnel, there are many vacancies which detract 
from the execution of excellent programs both In Real Estate Valua- 
tion and in Business Personal Property auditing. These programs have 
been carried forward but they place an extraordinary burden upon 
appraisers, auditors and supervisory personnel. 

Particular attention was given to unequal pay schedules in 
Real Estate appraising which cause unnecessary shifting of extremely 
competent and experienced personnel to other departments. 

The Auditing function is adversely affected by unrealistic 
pay schedules because those schedules do not attract auditors to City 
service and, additionally, cause a transfer of competent auditors to 
other City departments offering higher paying classifications. 

The Assessor's Office has made tremendous progress in the 
use of Electronic Data Processing. In cooperation with the City's 
Data Processing Center and technicians from the State Board of Equal- 
ization, the following functions are performed by use of Electronic 
Data Processing facilites: 


All recorded changes of ownership are transmitted daily to 
electronic storage via Visual Display Units through which ownership 
inquiries may also be made. 


All basic mailing addresses pertaining to real estate are 
updated daily to the benefit of both the Assessor and the Taxpayer. 


Visual Display Units are used for in-put to electronic 
storage of changes of valuation to any parcel of real estate, with the 
result that the Display Units will reveal the valuation on the current 
Roll, the valuation suggested for the coming assessment year, plus 
any changes due to Assessment Appeals Board action or corrections via 
Board of Supervisors resolutions. 


This important operation is accomplished by feeding into the 
computer the sales price involved in the transfer of property with a 
code to indicate whether the sales price is from revenue stamps or is 
an actually confirmed sale. The top statistician of the State Board 
of Equalization Is consulting with and cooperating with the Assessor 


Assessor (continued) 

to produce the mathematical formulae required for the most complete 
possible analysis of sales ratios which, in turn, will be a most 
valuable tool for the Assessor to check on the uniformity of assess- 
ment, and can also disclose areas requiring further study. 


The Business Personal Property Master File has been evolved 

over a period of three years by Assessor Tinney so that now every 

business location and potential business location is in the record 

An account number was given to each actual business and to 
each potential business location. All available records were geared 
in to the account number system. The business locations were veri- 
fied with help of the auditor-appraisers and then valuations concern- 
ing each business were placed in the file. This prepared the Assess- 
or for his significant achievement of being able to "direct bill 51 bus- 
inesses with a full cash value of $10,000. 

As of August 1, 1969, out of a total billing of 46,355 
units, 24,944 were "direct billed." The saving in man-hours was 

most impressive and the convenience of the taxpayers in this category 
was extremely well served. 

The close coding of every element in a business property 
statement has been able to yield such statistics as these: Business 
inventories represent approximately 38 per cent of the tatal of per- 
sonal property valuations. Supplies represent approximately 3 per 
cent of the total. Leased equipment and leasehold improvements 
represent 21 per cent of the total. Machine and manufacturing equip- 
ment represent 16 per cent of the total. 

This system has also made it possible for the Assessor 
to tell the personal property valuation of each type of business via 
a business classification code. For example - Code 621, representing 
Apartments, Personal Property, had 9,824 billings with a total full 
cash value of $16,739,830. Code 293, representing attorneys, had 
1,057 billings with a total full cash value of $6, 825^628. 

Assessor Tinney has Instituted a program of applying the 
personal property of an owner of real estate to the real estate as of 
July 1, 1969 Roll. 13,769 individual assessments were thereby placed 
on the Secured Roll with a total full cash value of over $200 million, 
representing upwards of $50 million of assessed valuation. 


For better service to the public, the Public Information 
Division has been reorganized and placed at the entrance to the 
office. Facilities and books have been provided with excellent 
light and adequate personnel for service to the public. 


Assessor (Continued ) 

The entire office has been dedicated to an enormously in- 
creased program of activity. Last year the Real Estate Division 
processed l,kkO appeals which necessitated a personal inspection of 
each site, an especially prepared appraisal report and an appearance 
by the appraiser before the Assessment Appeals Board. There were 6 
Possessory Interest appeals last year as compared with 38 this year. 

The Assessor reports excellent cooperation from the City 
Attorney in this Appeals activity and excellent results in counsel- 
ing and litigation. However, this Committee urges that an addition- 
al City Attorney, to aid the Assessor's presentation of over 1,000 
cases before the Assessment Appeals Board, be assigned to the office 
of the City Attorney. 

This year the number of appeals is over 1,256 and they 
will be processed without additional personnel. In the Business Per- 
sonal Property Division, 99 appeals were processed last year and over 
149 have been processed so far this year. 


An extraordinary burden was placed on the Assessor's facil- 
ities with the passage of State Proposition 1-A which required the 
Assessor to process more than 7^,000 claims for the $70.00 rebate 
and over 75,000 to date, for the $750, exemption. 


The Personal Property Division last year completed 519 man- 
datory audits and 1,510 selected audits. Total Business Personal 
Property assessments processed amounted to 50,627. 

Authorized staff of this Division is 32, but for reasons 
above mentioned, the staff currently stands at 23. 


The Assessor has made his needs known. It is quite clear 
that his staff must be geared to the functions and case load of his 
department. Denial of adequate and trained personnel to his office 
in the final analysis, denies the City and County of San Francisco 
monies rightfully due. This Committee therefore supports the person- 
nel requirements so stated in this report. In addition, the request 
for additional space is also recommended. 

Charles G. Landresse 
I. P. Sicotte,Jr. 

George C. Denend, Chairman 



The Office of the Controller, under the direction of 
Nathan B. Cooper , was visited by this Committee on several occasions 
during the year. 

The Controller and his staff are responsible for the final 
aacountings of monies, the preparation of the budget, supporting doc- 
uments, and the processing of information for the conducting of the 
business of the City and County of San Francisco. 

An Internal Audit Unit is maintained by the Controller's 
Office, whose primary function is to examine the records and accounts 
of most of the City and County Government Deparments . Departments 
not covered by this service are audited by outside firms employed by 
the Board qf Supervisors. Further, the Board of Supervisors also en- 
gages an outside C.P.A. firm to audit the Controller's Office. 


For several years the Controller's Office has been unable 
to fill many vacancies of permanent authorized positions except by 
the temporary limited tenure process. This appears to have been a 
problem for several years. We find the current staffing of their 
accounting classifications illustrates their predicament. 









Chief Accountant 





Head Accountant 





Principal Accounts 






Senior Accountant 









The inability to fill these positions on a permanent basis 
reduces the efficiency of the operation, creates crisis when their 
few experienced help are absent and makes future planning and train- 
ing difficult to implement. 


Recruiting at the lower levels has not been successful. 
The shortage of accountants in all departments of the City, particular 
ly at the supervisory levels has further drained them of available 

It has been suggested that examinations open to all qualif- 
ied applicants be given for all classifications simultaneously with 
promotional examinations. Lists established from promotional exam- 
inations would take precedence over open examinations in keeping with 
the spirit of the Charter. 


We recommend that examinations open to all qualified appli- 
cants be given for all classifications simultaneously with promotion- 
al examinations. That the lists established from the promotional 
examinations should take precedence in keeping with the intent and 
spirit of the Charter. That all qualified employees resulting there- 
from be considered for placement in the professional positions as 
above indicated. It is further recommended that the Board of Super- 
visors consider recruiting talent outside City Government if necess- 
ary in order to fulfill the vacancies in the vital department. Some 
special considerations may be necessary. 

Charles G. Landresse 
I. P. Sicotte 

George C. Denend^ Chairman 



The Agency's operating funds are obtained entirely from the 
Federal Government. The net cost is shared at the end of all pro- 
jects -two-thirds federal and one-third city. The City's one-third 
may be put in the form of community facilities or improvements such 
as schools, streets, fire stations, etc., which would have to be put 
in, in any event. This Agency operates under State Law on behalf of 
the City. The Agency does not function under the City Charter. A Fed- 
eral audit is made periodically. 

We found Justin Herman, Executive Director, to be a very 
knowledgeable person and regarded as one of the best in the country 
in this field. He is very ably assisted by Robert Rumsey, Secretary. 
He has a very fine staff of 275> of which 70 per cent are professional. 

It is the responsibility of the Redevelopment Agency after 

an area has been selected for redevelopment to purchase property and 

to arrange for relocation and demolition. It is a very delicate and 
ticklish task to relocate people. 

The redevelopment of three areas has increased the tax rev- 
enus in the amount of over $3,700,000 annually. 

We, the Committee, found Mr. Herman and his staff most 
cooperative during our investigation and we feel that they are to be 
commended for a job well done. 

George C . Denend 
Henry E. Fourcade 

John Cordon! , Chairman 



This Committee visited the Parking Authority on numerous 
occasions during 1969. We found, Mr. Arthur S. Becker, head of this 
department, to be a very capable man. His duties and those of his 
staff include: Obtaining more parking space, more neighborhood sites, 
adequate finances, submitting bids and the building of more and better 
parking space. He is aided by five Commissioners headed by Mr. Donald 
Magnin . 

Mr. Becker and his staff manage an annual operating budget 
of $43,000. The authority works closely with the City Attorney, and 
the Traffic Engineers, the Planning Commission, City Controller, 
Department of Public Works and Director of Property. The Authority 
has worked closely with the Redevelopment Agency to maximize utiliz- 
ation of property at reasonable cost. The Japanese Cultural and Trade 
Center Garage, Golden Gateway Garage, and a portion of the Fifth and 
Mission Garage sites are examples of this cooperation and planning. 

The City Planning Commission and the Authority are in agree- 
ment as regards congestion in the financial district. Garages will 
not be recommended in the financial center, but will be recommended 
on the "rim" of this district. The Sutter-Stockton and the Fifth and 
Mission Garages are examples of the "rim" of the district. 

The Authority favors leasing these garages to qualified 
operators rather than inexperienced people. Primary consideration 
is economy, remuneration and service to the public. 


Completed or near completion projects include: North Beach 
Garage (Vallejo Street - five stories and 163 stalls), Marina Garage 
(Pierce Street - two stories and 82 stalls), expansion of the Fifth 
and Mission Garage (296 additonal stalls), Geary Blvd., Public Parking 
Lot No. 2 (l8th and 19th Avenues), Polk Street Parking Garage, 
(Redding School) and Excelsior Public Parking Lot (Norton and Harring- 
ton Streets). There are also approximately fifteen additional new 
sites under consideration or in the planning stage for construction in- 
other districts. 


The Committee feels proud of the fact that we were able to 
support the Parking Authority in obtaining 29 additional meter men 
and meter maids. Mayor Alioto personally supported this request and 
finally approved it. The results are more citations which are the 
main source of revenue to the Parking Authority. The revenue derived 
from this additional force produces approximately four times their 

■ 2k- 


annual pay in fines resulting from parking tags. Accordingly, this 
operation released police officers for higher priority police work 
with no additional cost to the taxpayers. 

George C . Denend 

Henry E. Fourcade 

John Cordoni, Chairman 



The Public Utilities Commission consists of four depart- 
ments: Municipal Railway, Hetch Hetchy Water and Power, Water, and 
International Airport. The functions of these departments are but 
remotely interrelated; nevertheless, as a result of historical acci- 
dent the administration thereof is currently vested in the Public 
Utilities Commission. The Commission itself consists of five members 
appointed by the Mayor with staggered tenure. In turn the Commission 
appoints a General Manager who functions as the Chief Executive 
Officer. Generally, he has the power of appointing the managers Of 
each department and other administrative personnel; all other employ- 
ees hold civil service positions. The Commission is the policy-mak- 
ing body, responsive to public wishes, and the General Manager 
carries out the Commission's resolutions. 

The entire utility complex has a book value approximating 
$300 million; thus, it is evident the Commission has responsibility 
for the largest concentration of assets belonging to the City. Each 
department is itself a highly technical operation and in-depth study 
of any one area requires time and expertise possessed by fev; citizens 
selected for Grand Jury duty. Accordingly, the opinions of this Com- 
mittee are based on a somewhat general analysis,, 

We respectfully direct the reader to the Annual Report of 
each department for the department head's views and proposals for 
statistics and for financial information. 

It is city policy to acquire and operate as many utilities 
as possible, undoubtedly with an eye to providing San Franciscans 
with adequate utility service at the least possible cost. One method 
of accomplishing this purpose is to provide service at cheap prices 
irrespective of cost. In this manner, the user is the beneficiary, 
and the taxpayer can sometimes be the loser, as witness the Municipal 
Railway. The opposite approach would be to charge competitive rates 
for services and turn over any excess revenues to the general fund in 
order to minimize taxes. This posture would in theory, benefit all 
taxpayers and residents, but would raise the price to users at least 
to a level comparable to such services elsewhere. In practice, pol" 
itics being what they are, current operations represent no conscious 
effort to adopt either extreme, but rather the effect of following 
the path of least resistance. 

We would like to see the Commissioners take a more aggress- 
ive posture in setting policy. Too often, it appears, ideas emanate 
from the departments, which the Commissioners then approve, in con- 
trast to the Commissioners- establishing a course of action, as a 
result of their collective thinking aided by public hearings and de- 
bate. We do not infer that channels of communication should be .open 
in one direction 6nly, but rather that the direction of the Public 
Utilities Commission be established at the very top 


Public Utilities Commission (continued) 

There has been a considerable amount of public criticism 
of the utilities management to the extent that it cannot be lightly 
dismissed. We have discussed the reported incidents with utilities 
personnel and in most cases find that the issues are largely judge- 
mental; that is to say, it is the General Manager's opinion that 
certain matters have been attended to in a timely, efficient manner 
and his critics ' opinion that the same matters have been handled in 
a haphazard, careless fashion. The administrative qualif ications and 
the executive ability of the General Manager have been questioned on 
so many occasions, however, that we are of the opinion that the 
Commissioners should publicly report the results of their investiga- 
tions of these matters. 

One particular incident, however, is worthy of special 
mention; namely, the expenditure of funds for remodeling utilities 
offices in the City Hall and on Mason Street. We are cognizant of 
the argument that certain improper procedures of Water Department em- 
ployees were sanctioned by many years of practice and that while ex- 
penditures in excess of $5,000 must be submitted to the Capital Im- 
provement Advisory Committee, the members of said Committee were 
personally aware of the fact that remodeling costs were running over 
this amount. We also recognize that the benefit of such remodeling 
did not inure to any person, but to the City. Nevertheless, the 
responsibility for seeing that records are properly completed and 
that Charter requirements are met rests ultimately with the General 
Manager and he cannot excuse this burden of -office. 1/e J therefore, 
request that the City Attorney take the necessary legal steps to 
determine the amounts actually misspent and to recover same from the 
party or parties at fault. 

From time to time the question of using utility profits to 
reduce property taxes is raised, and we have alluded to this else- 
where. We feel that the Board of Supervisors should establish a 
policy in this regard after proper hearings. Care must be taken, 
however, to assure that the future capital needs of the departments 
are adequately met from annual revenues. Likewise, department pro- 
jects must be scrutinized to eliminate unnecessary items, for it is 
easy to spend all that is coming in. 

Another matter which we have touched on is the lack of 
relationship amoung the departments, with the exception, perhaps, of 
the Water Department and the Hetch Hetchy Water and Power Department, 
which at least complement one another. Charter Revision, defeated, 
at the recent election, would have provided the means for the var- 
ious departments to operate independently and we feel that the Board 
of Supervisors should hold hearings to determine the merits of this 
proposal. The elimination of the Commission itself and the change 
of departmental accountability to either the Board of Supervisors 
or the Chief Administrative Officer would reduce administrative ex- 
penses which are largely justified only because the law requires 


Public Utilities Commission (continued) 

the departments come under one commission. In fact, the amalgamation 
of the Hetch Hetchy Water and Power Department and the Water Depart- 
ment was approved some years ago but present management has not seen 
fit to bring this about. 

We commend the Board of Supervisors and the Public Utilit- 
ies Commission for exploring the feasibility of extending BART to 
the International Airport over the existing right-of-way former JSy u?ed 
by the interurban street car. If the project is practical from an 
economic standpoint we feel this route will be of more benefit to 
both citizens of San Francisco and visitors as opposed to other 
suggestions for providing airport transportation. 

Lastly, we recommend that future Grand Juries appoint in- 
vestigative committees for each department, rather than for the Pub- 
lic Utilities Commission as a whole, in tne hope that more effort 
can be expended in each area. 

John J. Casey 

Arnold F. Devoto 

I.P.Sicotte, Jr . , Chairman 



The Superior and Municipal Courts have reached a virtual 
standstill because of the lack of judges and court space to try the 
ever increasing number of cases scheduled to come before them. 

There are over 6600 civil cases and an additional 1500 
divorce cases awaiting trial in the Superior Court. Two of the 
courts have been temporarily transferred to the Criminal Court Cal- 
endar to assist in bringing those arrested for criminal offenses to 
trial within the time required by law. 

We believe a step in the right direction is the adoption 
of the Master Criminal Calendar, which was put into effect on 
November 3, 19 69. It is intended to speedup cases coming to trial, 
with one of the Superior Court judges assigning cases to each of the 
Criminal Courts. The presiding judge shall assign the department 
which will be designated for handling the Master Criminal Calendar. 
This assignment will be rotated among the Criminal Departments; how- 
ever., there has been no determination of the time any one department 
will preside over the Master Criminal Calendar. There will be 100 
jurors assigned to the Hall of Justice to cover the Criminal Court 
cases there; jurors for criminal cases at City Hall will be selected 
from those customarily called for civil cases. 

Under the present law, certain types of cases are triable 
in the Municipal Court and others in the Superior Court; however, 
the qualifications for Judge are the same for both courts. It is 
apparent that court matters could be handled more efficiently if 
there was not this distinction, and they could be assigned to any 
judge. We, therefore, recommend that the State Legislature enact 
laws to this effect. 

We recognize that this elimination of the distinction 
between Municipal and Superior Courts may prove unpopular elsewhere 
in the State; if this proves true, we suggest that the change in the 
law be applicable only to Cities and Counties; which, in effect, 
would apply only to San Francisco. 

We refer to recommendations made elsewhere in a Grand Jury 
report that the Grand Jury functions be divided between two Grand 
Juries-one to investigate administrative matters, the other to hear 
criminal cases. Should this recommendation be enacted; it is pos- 
sible that the Court load would be reduced somewhat in that the 
District Attorney would be able to dispose of more cases via the 
indictment process rather than use the Courts for preliminary hearings 


This Committee endorses the report of the Chief Administra- 
tive Officer of August 19, 1969 for the construction of a new combina- 
tion Court house and office building to be built on a joint venture 
basis with the Board of Education in the area bounded by Van Ness 
Avenue, Hayes, Franklin and Grove Streets. 

While it is the civic duty of every citizen to protect the 
democratic process by serving on a jury, we recognize that this 
sometimes works an unjust hardship. At the present time jury fees 
are set by State Law and bear no relationship to the costs incurred 
by the jurors in various localities. Since the taxpayer in each 
county pays the jury fee, anyway, we recommend that the State Law be 
changed so that each County establish a just fee. Another inequity 
which we observed is the non-payment of civil jurors unless impanel- 
ed. We feel that all jurors should be paid anytime that their 
presence is required. 

We recognize that many factors necessarily influence a 
judge when it comes time to sentence the convicted felon, but it is 
our opinion that in too many instances those convicted of the more 
serious offenses against society are not being punished in proportion 
to the crime of which they are guilty. We are particularly concerned 
with the number of felons who are remanded to the County jail as 
opposed to being incarcerated in State penal institutions. 

Eugene R. Erigero 

I. P. Sicotte, Jr. 

John J. Enright, Chairman 



The Adult Probation Department is under the direction of 
John D. Kavanaugh and this Committee feels that he is doing an out- 
standing job. We have discussed with Mr. Kavanaugh some of the find- 
ings and recommendations made earlier this year. Upon his recommenda- 
tion we requested 22 additional probation officers. This request 
was made to the Board of Supervisors and was approved bringing the 
total probation staff to 67. Of the 22 additional probation officers 
requested, 18 of these vacancies had been filled in June of this 
year. There are still 4 vacancies to be filled by the Civil Service 

Due to the narcotics problem that we are confronted with 
today, this Committee recommends that four probation officers be 
assigned, two to theSuperior Court and two to the Municipal Court, 
to specialize in probation work with narcotics offenders exclusively. 

The Work Furlough Program has at present 20 men on the 
program, who are housed in County Jail #1. The program permits 
certain misdemeanants to be employed in private industry to aid in 
their rehabilitation. Additional quarters at 930 Bryant Street, 
which were recommended by the previous Grand Jury and strongly rec- 
ommended by the present Grand Jury early this year are now nearing 
completion. This building which was a city owned warehouse will 
house 70 additional men to be part of the Work Furlough Program. The 
wages earned by these additional men will save the City approximately 
$115,000.00. This program has the full support of Municipal and 
Superior Court Judges, also the Grand Jury. 

We have reviewed the assignments of probation officers and 
we find that 12 of these officers are assigned to detail work on 
family problems. The greater portion of their time is spent on 
collecting and disbursing child support funds. We feel that their 
value as probation officers is lost. It is the recommendation of 
this Committee that the family relations function of the Adult Proba- 
tion Department be placed on computers for clerical handling so these 
men can devote full time to their probation work. 

It has come to our attention that there have been no general 
staff meetings although there are regular meetings of the supervisory 
personnel. This Committee recommends that a meeting of all probation 
officers be held at least semi-annually to discuss mutual problems 
and procedures. 

Eugene R. Erigcro 


John J. Enright, Chairman 


The Lavz Library is considered by this Committee to be 
operating properly, both at the City Hall and the Annex located in 
the Mills Tower. 

There is a need for additional book space with the ever in- 
creasing number of volumes received annually. Allowances should be 
made for this yearly increase when a new Court building is planned. 

Eugene R. Erigero 
I. P. Sicotte 3 Jr. 

John J. Enright, Chairman 



The Disaster Corps is prepared to respond to enemy attack, 
riot, insurrection and civil disturbance. The staff is constantly 
training volunteers in First-Aid and Public Safety in addition to 
Fire Prevention and Hazard Detection. 

They work with the Downtown Association, the Merchants' 
Association and provide liaison with the vital utilities - i.e.- 
Power, Light, Water and Communications. 

This Committee has made in-depth reviews of this vital 
public service, its plans and resources. It is the consensus of 
this Committee that prior Grand Jury Committees' reports have in- 
dicated that those assigned to these vital services, their mission 
and responsibilities were in able hands and therefore, little was 
reported regarding the organization and efficiency of the Corps. 

This Committee has made numerous visitations during the 
year 1969 and has become acquainted with the many diversified duties 
of this staff. We feel their mission must be made part of the re- 
cord of the 1969 Grand Jury. 


The staff is comprised of 16 people, 10 of which are reg- 
ular employees of the Disaster Corps. The remaining staff is com- 
prised of 2 members of the San Francisco Fire Department and four 
members of the San Francisco Police Department. Their assignment 
is full time. 


The Federal Government funds 50 percent of the expenses of 
the Corps. The balance is the responsibility of the City and County 
of San Francisco. Volunteer time devoted by the private citizens is 
not included. 


The Corps is involved with underground shelters, food 
supplies, medical supplies and water. They deal in the problems of 
evacuation, fallout and central control for the entire population. 
They maintain communications with all segments of government and 
private enterprise. They have organized plans for building protec- 
tion aimed at civilian security in the event of enemy attack. Ward- 
ens have been identified and trained. Drills are held throughout 
the City and particularly in the high density areas of the City. 
Survival is emphasized by planning for what to do and where to go. . 
Highly technical courses have been given to Registered Architects 
and Engineers. The Police and Fire Departments in. addition to the 


Disaster Corps (continued) 

Federal Agencies have made additional courses available for Radio- 
logical Monitors. 


It is specifically stated in Section 25 of the Charter 
that the Mayor, as Chief Executive, shall be responsible for the 
mitigation of any disaster regardless of origin or cause. Therefore, 
the Mayor has delegated this authority to the Disaster Corps Direct- 
or and his staff to study, plan, organize and coordinate those 
duties and functions in order to meet any emergency that might 
threaten the life of our citizens and/or the destruction of property. 

In addition, the City and County of San Francisco is pre- 
sently participating in a Four-County Bay Area Project - a non- 
profit military program ranking in top priority of the Department of 
Defense and the Office of Civil Defense. 


The total budget request for the Disaster Council and 
Corps for the Fiscal Year 1969-1970 is $157,000. The Federal Govern- 
ment in support of this activity will reimburse the City and County 
of San Francisco $120,750. This nets a meager $36,307 expense to 
the tax payers of the City and County of San Francisco for these 
services. Totally unsatisfactory to the Committee is the recommend- 
ation of the Finance Committee of the Board of Supervisors who have 
recommended that: This vital and necessary function of the Disaster 
Council and Corps be delegated or transferred to the already over- 
burdened Police and Fire Departments. The effective date will be 
December 31, 1969. 


This Committee as well as the respective Chiefs of the 
Fire and Police Department and the Disaster Corps are most emphat- 
ically in disagreement with the recommendation of the Finance Com- 
mittee of the Board of Supervisors. Fire and Police matters far 
exceed the capability of these departments. Assuming the full res- 
ponsibility for this vital Public Service will be an undue burden. 
There is neither force nor management guidance availabs for a pro- 
ject of this magnitude. Federal funds are controlled by specific 
guide lines which under this plan will not be met. 

Accordingly this Committee feels that the Finance Com- 
mittee recommendation is unacceptable. It will jeopardize the pro- 
ject, endanger the Federal funding process and further place this 
vital service in a situation of ineffectiveness and subordination. 
We recommend the perpetuation of the Disaster Corps as constituted 
and assigned. It must be maintained as a separate entity. 



The Oommittee wishes to recognize the Directors, Messrs. 
Edward F. Penaat, Brigadier General, U.S.A. (Retired) and Edward P. 
Joyce. These men are appointed cy the Mayor. They have outstanding 
records in the field of Civilian Defense. The guidance of these 
has gained national recognition for San Francisco as a model city in 
defense awareness. 

Arnold F. Devoto (Deceased) 
Joseph M. Hannan 

Frank J. Smith, Chairman 



The Grand Jury Committee visited the Society for the 
Prevention of Cruelty to Animals at 2500-l6t'n Street, San Prancisco. 
We were met by Mr. Charles W. Priedrichs, Executive Vice President 
and Secretary. Subsequent visits were made unannounced during the 
year by the Committee. 

The Society was fcunded in 1353. Its purpose is tc | 
cruelty to animals and provide hospital ar.d free clinic service for 
those animals needing medical attention. The kennels were cles 
well ventilated. 

This is a non-profit organization and derives its annual 
budget from dog licenses , private donations, and bequests. No alloca- 
tion is made from tax funds. The total wealth of the organisation Is 
over $3-1/2 million dollars. The 16th Street Building ia owned by 

the Society. They pay no property taxes to the City and County of 
San Prancisco. 

Visitors are Invited to inspect the facilities luring the 

The Society for the Prevention of Cruelty to Animals should 
be commended for the good service it is rendering the community, 
During the year controversies arose at the Pound over ■anageaent and 
wages. A Committee from the Board of Supervisors, and a special 
investigation by the District Attorney's Office, found charges tc be 
exaggerated. We had representation at the meeting held in the Boar_ 
of Supervisors ' Chambers, and voted to back the S.P.C.A. 

We disagree most emphatically with those who brought t 

charges that were based on hearsay and which grew out of -rrTrrtion 
to the issues involved. 

Era Pfarie A. Bruce 

Prank J. Smith 

Jc se] . Barman, 2fc ~i: 



The Committee visited the Board of Permit Appeals on several 
occasions during this year. 

The Board consists of five (5) members and a secretary, 
appointed by the Mayor. They meet once a week. 

Any citizen may appear before the Board, without counsel, 
if he/she is not satisfied with the denial or Issuance of a permit or 
license from any City Department, including Public Works, City 
Planning, Police, Fire and Public Health. 

The Committee concluded that the Eoard of Permit Appeals is 
making a sincere effort to be just in its findings and is doing a 
good job in making decisions of a reasonable nature for the benefit of 
the citizens of the city. 

Mrs. Marie A. Bruce 
Frank J. h 

Joseph M. Hannan, Chairman 



The Committee finds the City Planning Commission to be 
under the very capable supervision of Allan B. Jacobs, Executive 
Director. He heads a comparatively small staff of 64, of which 40 
are professional. Part of his staff is housed at 100 Larkin Street. 
The balance of his staff is housed at 1212 Market Street. We, as did 
other committees, feel his staff should be "under one roof" in the 
interest of economy and efficiency. 

The Commission operates on a budget of $889,380.00. 
$791,131.00 represents salaries, $23,000.00 for rent of 1212 Market 
Street and about $70,000.00 for all other needs. 

Mr. Jacobs wants and needs more college people with Masters 
Degrees. Much of his work involves professional expertise. Contract 
help is much too expensive. They find recruitment for qualified 
professionals made difficult by the length of time required for the 
completion of examinations by the Civil Service Commission. We agree 
with Mr. Jacobs, that four senior staff people should be made exempt 
from Civil Service and appointed by the Director. By making these 
four positions appointive, the best man could be secured for the job 
in this specialized field. The Director feels that he should be able 
to hire and fire independently of the Civil Service Commission. The 
Director of City Planning favors centralization of City Departments 
and functions in the Civic Center Area. It has been suggested that 
the Courts be removed from City Hall to accomplish this centralization. 
We suggest a new court house be built on the old Commerce High School 
athletic field and a garage underneath it. Mr. Jacobs favors refusing 
permits for any new garages in the already congested downtown area. 
This would encourage people to use public transportation and Bart, 
upon completion, and leave their automobiles at home. 

Our eommittee recommends that developers be encouraged to 
construct new high-rise buildings in the south of Market area in order 
to improve the tax base. The proximity of freeways and Bart enhance 
this proposal. 

The City Planning Commission's duties include: Zoning, 
Capital Improvement Program, Coordinating and proposing Transportation 
Planning, and revising and updating City Master Plan. 

It is the recommendation of the Committee that the contin- 
uation of the Embarcadero Freeway be completed to connect it with 
the Golden Gate Bridge. 


This Committee supports Mr. Jacobs and his Commissioners, 
keeping in mind that they are working in the Metropolitan City of 
San Francisco with a force and budget less than comparable cities. 

George C. Denend 

Henry E. Fourcade 

John Cordoni, Chairman 



This Committee has met with and has been kept current by 
reports from Eneas J. Kane, Executive Director of the Housing Author- 
ity,, for the City and County of San Francisco. During the course of 
our association with Mr. Kane, he has been unanimously voted Pres- 
ident of the National Association of Housing and Redevelopment Offi- 
cials. He now heads some 25,000 professionals from over 1,750 
agencies throughout the Country. The goal of Mr. Kane and his staff 
is: "To get sanitary housing for every underpriviledged and low- 
income bracket American in America, regardless of any race, color 
and creed." 

He and his Commissioners were instrumental in getting 
Congress to pass a modernization program for permanent public housing 
units throughout the United States. In January 1969:, 12.5 million 
in modernization funds were alloted to the entire State of California. 
Through his personal efforts, he was instrumental in acquiring 
$8,000,00 of the alloted amount for the City and County of San 

The Housing Authority houses over 5^735 underpriviledged 
and low income bracket families or approximately 30,000 persons in 
San Francisco. There is still a waiting list of 5,000. Its other 
duties include getting clearance for housing from the Board of 
Supervisors, obtaining approval of the sites, selecting architects, 
and getting the forty year loans from the Federal Government. It is 
obvious that Mr. Kane and his five Commissioners have excellent 
rapport at the Federal level. 

The Authority does not recommend one dwelling housing units, 
or "one building jamming." They favor single dwellings likened to 
the Towne House type. This results in building two story single 
homes for each individual family, at a cost of over $40,000.00. It 
is suggested that these homes would be purchased by lower-income and 
underpriviledged families at low monthly payments. Severe economic 
penalties appear to be prevalent here on a long term basis. The 
priority for land and building space in San Francisco and the high 
cost of land per square foot obviates the single dwelling plan. It 
is felt the institutional look can be corrected by emphasizing better 
design. We feel the Housing Authority should think more along the 
lines of two or three story flats. This would cost less and accom- 
modate more units on less land. San Francisco has been successful 
in private ownership with these designs. We also do not favor build- 
ing housing units in well-established, highly taxed neighborhoods. 



Work is well under way on the Authority's $19,422,598 five- 
year Modernization Program which includes the replacement of more 
than 1,500 kitchen ranges, 2,000 refrigerators, 2,500 mail boxes, 
1,500 exterior door locks and roofing on some of the older projects. 


Vandalism continues and replacement expenditures totaling 
$210,068.00 were incurred during the year 1968. Sadly enough, 
$94,130.00 was spent in nine months of 1969 to replace broken windows 
alone. We recommend that the Authority take immediate steps to 
minimize this excessive expense due to vandalism. 


The Authority favors the "Turn Key" Development, which a 
private developer builds a project and sells it to the Housing 
Authority upon completion. More projects are planned using this 
method rather than Government contract and maintenance payments. 

The Housing Authority is keeping its promise and pledges 
to make payments to the City "in Lieu" of taxes in November 1970. 
The last payment was made three years ago in 19 66, when the City 
received $184,500.00. The amount of payment is worked out on a 
percentage of "shelter" rents collected. "Shelter" rents are rents 
collected less the utilities. 

The payment in 1970 is not compulsory by Federal Housing 
Law, and is purely voluntary on the part of the Housing Authority. 

George C. Denend 

Henry E. Fourcade 

John Cordoni, Chairman 




Mayor John F. Shelley appointed an interim committee in 
Human Relations in 1963 as a result of demonstrations in behalf of 
minority groups that erupted in hotel lobbies, supermarkets, drive- 
in lots and automobile row. Subsequently, a Human Rights Commission 
was initiated from Ordinance No. 209-64 and was passed by the Board 
of Supervisors of the City and County of San Francisco in July, 1964. 


The Commission's purpose is to act to effect the rights of 
every inhabitant of the City and County to equal economic, political 
and educational opportunity, to equal accommodations in all business 
establishments in the City and County and to equal service and pro- 
tection by public agencies. 

In general, this agency is considered more or less a court 
of last resort for complaints because the nature of the Commission's 
work is more general than specific. As an example, cases still go 
to the Fair Employment Practices Committee rather than to the Human 
Rights Commission. 

Nothing in the initial ordinance shall be interpreted or 
applied so as to create any power or duty in conflict with pre- 
emptive effect of any Federal or State law, e.g., F.E.P.C. In 
essence, the Commission does not duplicate the programs of other 
agencies but supports and supplements other efforts often accepting 
the role of coordinator. 


The Human Rights Commission is not supposed to conflict 
with any other City body unless specifically requested to do so by 
the Mayor or Chief Administrative Officer. 

Many City departments presently have their own Community 
Relations committees, e.g., police, fire and education. 

This creates a duplication of efforts and, at many times, 
unnecessary conflicts when the Human Rights Commission proceeds 
without first being asked to do so through the proper authority. 


The Commission, consisting of fifteen members appointed by 



the Mayor, called twenty-one meetings during the year. Each member 
receives $15.00 per meeting, totaling \"4,212. 00 this year. 

A professional staff is composed of one Director, seven 
representatives and six office clerks. Their annual combined 
salaries are $l4l, 540.00. In addition, five salaries are provided 
on a temporary basis amounting to $43,992.00. These temporary grants 
are established through the E.O.C. and the Rosenberg Foundations. 


1967 $150,000.00 

1968 173,833.00 

1969 204,423-00 

plus $32,000.00 Foundation Money. 


The Mandates in the ordinance creating the Human Rights 
Commission and the Nondiscriminatory Ordinance are very broad. The 
Priorities are: 

1. Implement fully the ordinance requiring affirmative action 
from City Contracts. 

2. Develop job programs with major employers: airlines, 
department stores, tenants for the Port Authority and 
the hotel and restaurant industry. 

3. Expand minority opportunities in the construction industry. 

4. Develop a closer relationship between the school district 
and employers. 

5. Conduct a community seminar on key educational issues. 

6. Continue working with the Police Department. 

7. Continue to investigate and report on the problems of 
Chinatown garment shops. 


We agree with the 1964 Interim Committee on Human Relations 
and strongly recommend if this commission is to continue that an 
educational program prior to job seeking be initiated, such as, 

Reading, writing and basic arithmetic and factors other 
than skills that are part of getting into the job market; e.g., 
when applying for a job, how to dress, how to speak to an inter- 
viewer, how to fill in forms, what kinds of exams to prepare for, 



how one works against a time limit when taking tests, and, above 
all, how to be realistic about an hourly wage acceptance. 

Throughout this year on Grand Jury duty, we find that 
there are many families needing help and many school dropouts with- 
in the white community as well as the minority community. These 
should be included in a Human Rights program. We believe this Com- 
mission should be concerned with every human being, regardless of 
race, color, or creed. 

This Commission is supported by the tax payers of the City 
and County of San Francisco. Therefore, we advise the Commission 
to concern itself with matters only within the City and County of 
San Francisco and affecting its residents. 

We found the Commission to be composed of dedicated people 
and Mr. Becker a most capable director in spite of the limits placed 

on his commission. 

The Mayor and those in authority should either assist 
this Commission with clearly defined authority and methods of 
accomplishing their ends or disband it. 

Norbert Cronin 

Mrs. Nancy B. Knickerbocker 
Nicholas J. Klunis, Chairman 



The California Palace of the Legion of Honor and the M. 
H. De Young Memorial Museum are in the process of merger. (Refer to 
DeYoung Museum report) However, this committee, on several visita- 
tions, noticed a lack cf proper supervision of the various exhib- 
itions. It is therefore recommended that additional guards be hired 
for better surveillance of all works of art at this museum. 


The California Academy of Science is to be commended and 
congratulated on the addition of Cowell Hall. Not only is the build- 
ing serviceable in every way, but it affords the public a gateway, 
as it were, to all the departments of the Academy. It is hoped that 
the new summer schedule which keeps the facilities open in the even- 
ing hours will be continued in future summer months. Because of the 
later closing hours, we recommend that special security be obtained 
so that all persons can safely leave the area. The continuation of 
exterior flood lighting is recommended. It is also recommended 
that the triangle area in front of the Academy be open for auto 
parking on Sundays. This additional parking would also benefit the 
DeYoung Museum and the Japanese Tea Garden. The strongest recommend- 
ation the Grand Jury committee wishes to make is that front door 
Municipal bus service be provided the Academy. 

John J. Casey 
John P. Cordoni 

Eugene R. Erigero, Chairman 



It is with deep concern that this Committee acknowledges 
the alarming increase in the flow and sale of narcotics. Ordinarily 
narcotics would be incorporated in the Police Committee's report 
but the foreman of the 1969 Grand Jury appointed a special Narcotics 
Committee for the sole purpose of calling to the attention of the 
public that we have an extremely serious narcotics problem in San 

The Narcotics Committee arranged a meeting with the heads 
of Education, Health and the Narcotics Bureau of the Police Depart- 
ment. The outcome of this meeting resulted in a program in which 
all students in the San Francisco school system will be instructed 
in the dangers and abuses of narcotics. In November 1969 additional 
funds for this program were further advanced by the Board of educa- 
tion. The Grand Jury recommends that this program be initiated at 
the earliest possible time. 

For several years the workload for the Narcotics Bureau 
has increased out of proportion to the personnel assigned and the 
support available. The increase in narcotics traffic is readily 
recognized in two major areas: 

1. The use of narcotics has reached epidemic 
proportions (see statistics in Beard of 
Education report) as is evidenced by the 
numerous arrests which have in turn placed 
the Police Department in an almost impossible 
situation in the curtailment of narcotic 
traffic in the juvenile age group. 

2. The narcotic traffic among young adults 
and hard core criminals has paralleled 
the dramatic increase observed among 
juveniles . 

The Narcotics Committee strongly recommends that the 
following measures be taken immediately to offset this ever growing 
menace to our community. 

We recommend that the present size of the Bureau, which 
varies in number from 16 to 22, be increased by the addition of 40 
men. We feel that this is an emergency measure. Yousg police 
officers should be assigned who will be representative of the entire 
community and that these officers will concentrate their activities 
in the most delicate areas of juvenile drug traffic and use. 



In 1958, when the Narcotics Bureau was first organized, 
contingent funds totaling a mere $25,000.00 per year were assigned 
to the Bureau (for the of narcotics and payment to inform- 
ants) to initiate arrests and convictions. This Committee recommends 
that these funds be doubled effective as soon as possible. We also 
recommend that any monies recoverable revert to the Narcotics 
Contingent Fund, not to the general fund. 

The Committee also recommends that a program of training 
in the area of drug control be instituted for all members of the 
Police Department. This would enhance the ability of the individual 
police officer to better recognize and handle narcotic violators. 
It is hoped that assistance from the United States Bureau of 
Narcotics and Dangerous Drugs be obtained in this effort. It is 
also felt that the academic community of The City could lend much- 

Channels of information should be encouraged in the commu- 
nity through both private and police agencies. The public should 
feel free to involve itself with the narcotic problem as a whole. 
The Committee mentions, as an example, the accent that Kiwanis 
International's Drug Alert program has placed on narcotics for the 
year 1970. The community should be made at/are of the availability 
of police consultation and advice. 

Although the Narcotics Committee recognizes that v.-e are 
indeed involved only with public agencies, as members cf the Grand 
Jury we would respectfully suggest that parochial and private school s 
be encouraged to develop similar instructional and educational 
programs as are now in motion in the San Francisco public cchools. 

Nancy B. Knickerbocker 
John J. Enright 

Eugene R. Erigero, Chairman 




During the first week of April., Foreman Melvin Swig, 
appointed this Committee to study and report findings on the transfer 
of control of the Port. 

The electorate had voted at the last General Election to 
have the Port transferred from State control to the City and County 
of San Francisco. The Legislature had enacted measures of trans- 
fer in 1968 which ooncluded 105 years of State Operation. 

Several visits were made during the year 1969* Our first 
visit was with Mr. Cyril Magnin, President of the Port Authority. 
His major complaint was the manner in which the Finance Committee 
of the Board of Supervisors deleted entirely or made excessive 
reductions in their budget. Several meetings have been held with 
the Finance Committee, Mr. Magnin and Mr. Rae Watts, Port Director. 
They felt that the Finance Committee wasn't familiar with the highly 
competitive nature of the Port in securing contracts. Until a study 
is made as to the need for said funds, they felt the committee 
should not arbitrarily "blue pencil" the budget. Prior to making 
recommendations to the full Board of Supervisors, one more meeting 
was to be held. 

We also visited with Mr. Rae Watts, Port Director. His 
complaints were of a similar nature, but he also commented on the 
task of employee conversion. At the time of our visit, the salary 
classification costs were $40,000.00. Many classifications, for 
example, the Port Police Force, consisting of 23 Officers and Men, 
plus the Chief, were still unsettled and a solution is being sought. 
Conferences are being held with Chief of Police, Thomas J. Cahill, 
the Personnel Director and the Port Director on this matter. The 
salary scale of the Port Police has remained at the State Salary 
Level and has not been upgraded to the salary of the San Francisco 
Police Officer. 


A very serious problem develops every time a vacancy 
occurs. The time lapse is too great - approval to fill the position, 
writing the qualifications for the test, the actual recruiting and 
than finally the examination. It has happened that the first man 
on the list is not necessarily the best qualified, but according to 
Civil Service Regulations the first one on the list receives the 



Port Authority (Commissioner) appointments will now be 
filled by mayoral appointment. There are five in number, plus two 
State Officers, the Director of Finance and Secretary of Agriculture 
and Services, who are ex-officio members of the Board. 

The Commissioners have the authority to hire or fire the 
Port Director, who, as Chief Executive Officer, directs a staff and 
waterfront force of approximately 400 employees. 


A review of the books and financial statements showed that 
'the Port has supported itself completely from revenues and charges 
from users of the Port and absolutely no tax burden has been placed 
on the public. Major construction has been financed by self liquid- 
ating and general obligation bond issues. To date all obligations 
have been met. 

The, Burton Bill reads that, "$100,000,000 in bonds shall 
be guaranteed within 25 years, and further that $50,000,000 of that 
be realized within the next 10 years for redevelopment of the Port 
facilities, otherwise the Port will automatically revert back to 
the State of California". 

A firm agreement has been made with Kidder-Peabody and 
Oceanic Products, a joint venture, for a Development Contract for 
Pier Numbers 1, 3, 5 and 7. This will involve a $100,000,000 
development for hotels and commercial shops. The 84 foot height 
clause is still being questioned. Construction on the first two 
phases should start in January or February 1970. 

We call to your attention also, that the net earnings for 
the Port have steadily risen from $1,781,694 in 1964-65 to approx- 
imately $3,000,000, in 1968-69. 

Our findings further indicate that Port operations are a 
highly competitive business and as such, are in need of sizeable 
funds for promotional activities. Much of the main competition is 
from the west coast ports of Oakland, Los Angeles, Seattle, Long 
Beach and Stockton. 


A new long-term lease has been secured with Pacific Far 
East Lines at India Basin for L.A.S.H. (Lighter Aboard Ship') Opera- 
tion. The cost will be $19,000,, 000. $11,000,000 is currently 
contracted out, with $8,000,000 to come from Port surplus. This 
fleet will go into Transpacific Service by 1971. 



Army Street Terminal is the Bay Area's largest Pier, with 
68 acres and nine berth facilities. $23,000,000 of Port funds were 
invested and it serves 15 steamship lines, It accommodates both 
general, break-bulk cargo and containerized freight. 

Pier 90, Islais Creek Grain Terminal is another outstand- 
ing example of planning. New constrcution has doubled the capacity 
to Two Million bushels. New equipment has given them ship loading 
capability of more than 1200 bushels per hour. Pacific Vegetable 
Oil, a group of companies, has contracted to export a million tons 
of grain a year. 


1. The 1970 Grand Jury should consider forming a Committee 
to visit and review the operations of the Port Authority. 

2. Grand Jury visits should be made very early in the 
year in order that a complete review may be given to all of the 
prior year's projects, looking toward planning for 1970 and sub- 
sequent years. It is further recommended that the full Commission 
be in attendance together with the Port Director and that the 
budget be thoroughly discussed and, if possible, conclusions reached. 

3. Arrange for a meeting with the Finance Committee of 
the Board of Supervisors as soon as possible to discuss the Port 
Authority Budget. 


Our Port plays a most important role in the City and 
County economy. Studies have shown that 12 to 15 per cent of direct 
or indirect employment is created through this great enterprise. 
Hundreds of millions of dollars per year result from Port activity. 
Every survey or projection shows continued increase over and above 
the present average for the next twenty-five years. We should do 
all in our power to protect and guarantee its future. 

Marie A. Bruce 

Charles G. Landresse 

Frank J. Smith, Chairman 



This ■•••Committee along with other members of the Grand Jury 
has visited s on numerous occasions, with the Sheriff and Members of 
his staff. 

The Committee together with other Members of the Grand Jury 
has visited the County Jails Number 1 and 3 at the Hall of Justice: 
and No. 2 and l \ at San Bruno. Also, visits have been made to the 
City Prison under the. Police Department at the Hall of Justice and 
San Quentin Prison in Marin County. These later visits were made so 
that a full concept of prisoner control would be understood. 

This Committee, as well as other Members of the Grand Jury, 
has read, reviewed, and studied various reports pertinent to the 
Department of the Sheriff. The following are some of the reports 
processed by this Committee and other Members of the Grand Jury] 
Department of Correction Reports on the Jails made in the years 1962 
and 1966, the Final Reports of the San Francisco County Grand Jury 
for the past several years, the Adult Detention Committee Reports on 
the Jails . and the Report of the San Francisco Commission on Crime 
concerning the Department of the Sheriff and the jails under the 
control of the Police Department. 

As a result of these visits, studies, and investigations, 
the Grand Jury has during the course of this year become Increasingly 
aware of the problems at the County Jails and has taken steps to help 
correct them. 

In an Emergency Resolution for Security Measures, the 
Grand Jury requested additional personnel and an effective alarm 
system for the San Francisco Court Rooms. Also, included in this 
Resolution was a request for the sum of $36,000 to increase the 
security at County Jail Number 2 at San Bruno by installing reinforced 
steel bars on the windows. This resolution was adopted and made 
public information on July 2, 1969 • 

The Committee and other members of the Grand Jury met with 
the Sheriff and discussed his personal problems that existed, and 
worked an acceptable plan for the resolution of these problems by the 
Sheriff. This agreement is being followed by the Sheriff. 

This Grand Jury Committee feels that many factors have 
caused the situation that exists at the County Jails and many factors 
will have to be changed before a satisfactory answer can be obtained. 
We would suggest caution at this point and that a long range point of 
view should be the key note. If the situation can be corrected with 
present facilities and with the appropriation of sufficient funds and 
additional personnel, the Sheriff and his Staff should be given an 
opportunity to correct any deficiencies that may exist. 



A proposal has been made to create a Department of Correc- 
tions to supervise, regulate, and direct the activities concerned 
with the detention of defendants and prisoners in the City and County 
of San Francisco. It has been indicated that the Board of Supervisors 
has the power to create such an agency. It is the opinion of this 
Committee that the Board of Supervisors should give considerable 
attention and in-depth study to this proposal before it is finalized. 
Divergent opinions have been expressed as to whether this agency 
(Department of Corrections) could be created by the Board of Super- 
visors without the Sheriff being part of it. This is a problem in 
legal procedures ,and the opinions of the best legal minds should be 
sought in resolving this point. This Committee indicates that there 
is a good possibility that this type of department;, properly organized 
might serve a very useful purpose in the proper detention of defen- 
dants and prisoners s but again all details should be given thorough 
consideration. This Committee stresses one point; with the establish- 
ment of this Department and/or Agency the person heading it should be 
highly qualified, be that person the Sheriff or some other designee. 

The problem of security at the County jails has been given 
consideration. It is true that the physical structures - buildings, 
and jail accommodations - are overcrowded because of the increase in 
crime. This condition along with insufficient personnel makes for an 
extremely insecure situation. 

In the Grand Jury Resolution of July 2, 1969 3 we gave 
consideration to supporting some physical changes in the building at 
San Bruno. We suggest that other reports of physical Insecurities in 
the buildings, structures, and the jails proper, should be given 
consideration and sufficient monies appropriated to bring the jails ut> 
to a near maximum standard of security. 

With the addition of more security personnel a training 
program should be initiated for all personnel and a complete delinea- 
tion of duties outlined in manual form. 

The jail population has Increased considerably during the 
past number of years bringing about an over-crowded situation. This 
again is a reflection of the times. With the increased crime pattern, 
the judges have the obligation of sending persons to prisons after 
their conviction of a crime and they use either the county jail or the 
state penitentiary 3 or probation s or probation with a work-furlough 
feature. We offer no criticism of the courts in this instance 3 but 
only wish to stress the point that prisoners are placed in jail by 
court direction. 



One of the obligations of the Sheriff is to keep separate 
the felons from the misdemeanants and he has to allocate space in the 
jails for this separation. Until larger and more adequate facilities 
can be provided s we suggest that the Sheriff explore the feasibility 
of making arrangements with other counties for the jailing of prison- 
ers . 

For several years the combining of our City Jails and our 
County Jails has been discussed and considered. Although there seems 
to be a unanimous agreement that such a consolidation Is a sensible 
objective, certain problems, especially budgetary, have thus far been 
insurmountable. At this time, a committee appointed in September 1°68 
by Mayor Alioto and headed by Gregory Stout is still studying the 
feasibility of this prolect. Its report was due In March of 1969, but 
has not yet been submitted. 

The dietary regimen set forth in the "Minimum Jail Stand- 
ards of the Department of Corrections" should be applied to prison 
occupants. This can be then adjusted to local needs with the advice 
and direction of a professional dietitian, such as personnel in the 
employ of the Health Department. 

Adequate medical and psychiatric care should be provided 
for those persons confined in county jails along with a recognized 
plan for rehabilitation. This again calls for an increase in the bud- 
get of the jails to provide these services. Consultation with the 
Health Department and other recognized agencies in this field should 
provide the professional people for these endeavors. Punishment alone 
is not the reason for the existence of confining institutions, but 
punishment with the idea of rehabilitation should be the motivating 

With the establishment of the "Minimum Standards" the 
Department of Corrections of the Adult Authority could be approached 
with the idea of making another review of the jails in order to 
update their previous reports. 

This Committee has reviewed the allegations concerning the 
use of professional medical and dental services on a contractual basis 
This matter has been discussed with the Sheriff and with the Controll- 
er. The law is quite clear concerning this and the Controller, based 
on his findings and conclusions, should act as required with the 
legal forces of the City and County to Adjust equitably these matters. 

We recognize the need of improving the Department of the 
Sheriff. At this time we would recommend several short term problems 
that should receive immediate attention and several long term problems 
that should receive immediate attention and some long range studies. 




1. - That our Emergency Resolution ; of July 2, 1969 be fulfilled. 

2. That Established Minimal Standards for food and food service 
be strictly followed. 

3. That a greater effort be made towards cleanliness in all of 
our jails. 

4. That the Doctors and all Medical Facilities of our jails be 
placed under the control and supervision of the San Francisco 
Board of Health. 

5- That the study now being made toward combining our City and 
County Jails be completed. 


1. That a study be made to replace our obsolete jail facilities. 

2. That an in-depth study be completed to consider the feasibil- 
ity of creating a new 'Department of Corrections." 

John J. Enright 
Eugene R. Erigero 

Henry E. Fourcade, Chairman 



A thorough examination of the San Francisco Police Depart- -- 
ment was undertaken during the year by the 19o9 Police Committee of 
the San Franc Jsco Grand Jury. One of our utmost concerns has been in 
the more effective utilization of patrolmen and their responsibilities 
to the police operations of the City and County of San Francisco. Of 
particular concern has been the turnover of present personnel and re- ■ 
cruitment of future personnel. The Committee has been very active 
with the precinct captains and has spent considerable time with the 
various details. When we complete this review and attendant analysis 
you will observe the necessary facts to support our recommendations. 

PERSONNEL : The San Francisco Police Department has not been reorganiz- 
ed since" 1937. The present structure is unbalanced and does not con- 
form to approved, recognized principles. The organizational structure 
of the Police Department must be sound. 

The Police Committee recommends an additional number of cap- 
tains, directors, and supervisors in order to strengthen the middle 
management of police administration which is presently lacking and 
vitally needed. We recommend a reduction of the district stations 
from nine to six--each in the charge of a Captain. The additional 
Captain would relieve others when off sick, vacations, etc. Therefore, 
they would release more personnel presently working inside for patrol 
work, and give a better span of control and supervision. It often 
happens now that no regular sergeant is on duty in the station be- 
cause of illness, injury, vacation, days off or special detail. 

This additional middle management would relieve the cap- 
tains and directors on days off , vacations, illness or injury. 

All promotions within the Department would be by Civil Ser- 
vice examination from patrolmen up to chief and would include all the 
inspectors 'bureaus . 


The present work shift schedule of patrolmen - 8:00 A.M. to 
4:00 P.M. - 4:00 P.M. to 12:00 c, 12:00 to 8:00 A.M. --is unrealistic 
and does not conform with the police workload. In checking the police 
calls, we have established that the greatest need for police is frcm 
7:00 P.M. to 3:00 A.M. and we observed that footbeat men are rarely 
used and not needed between 3:00 A.M. and 8:00 A.M. Extra pay for 
night shifts would be an incentive. However, we have found that many 
men prefer to work the night shift but only on a steady basis, not 
changing every week. 


The proper use of working overtime certainly adds up for 
economy and efficiency. For example, one captain in the Northern 
District on Friday and Saturday when the workload was heaviest, worked 
the men on night watches two extra hours, i.e., 4:00 P.M. to 2:00 A.M. 
and 10:00 P.M. to 8:00 A.M. shifts. .. 



Having a double patrol strength from 10:00 P.M. to 2:00 A.M. 
which were the peak hours, had a great effect on lawbreakers . It 
appears, unfortunately, that much overtime pay is often liberally 
awarded to a favored few. A recent check at City Hall showed that 
many patrolmen, sergeants and inspectors with their overtime pay make 
more in a year than captains. 


The Police Committee would like to propose that the Sar. 
Francisco Police Department fornmlate a Career Policemen Plan similar 
to that of the City of Los Angeles. This Plan is based on the insight 
that the police service does not offer the same percentage of oppor- 
tunity into better paying and higher status positions commensurate 
with private industry. This plan is also based on a second insight In 
the police service. Success in terms of promotion is predicated upon 
leaving the technical work of the profession and advancing into super- 
visory and management positions. The net result is that a highly 
motivated , highly competent technician in the person of an expert 
patrolman must leave his chosen field of work and state that he wants 
to become a supervisor or manager before he can receive either 
monetary or status rewards. Probably the best adjusted individuals 
really prefer to serve in the technical ranks of patrolmen or the 
detective bureau rather than take on the more onerous task of manag 
ing other men and yet the police service totally lacks any monetary 
or status rewards for these individuals. At present there is little 
opportunity in the Police Department for advancement into better pay- 
ing and increased status categories for men whose only desire is to 
become more expert in their chosen professions. At present because of 
the extremely small percentage of such positions 3 the opportunity for 
promotion above the rank of sergeant is microscopically small and the 
frustrations of attempting to achieve better compensation by this 
route are great . 

Pay raises to patrolmen should not be automatic by years 
served but by previously qualified patrolmen through suitable testing 
and rating each year. A pay raise could be given each year for six 
consecutive years provided the man completes his training, passes the 
test (such as POST) and is satisfactorily rated for job performance. 
At present there is little incentive for a man to improve in his 
present position and a man may become less efficient after a few years 
in the Department, yet he still receives automatic pay increments. 
The men who qualify by special training for specialized positions 
such as crime lab, photography, legal, traffic, etc., should receive 
suitable additional pay. Ey this method, at the end of six years with 
proper training and experience, a police officer should be qualified 
and able to handle all types of police duties — patrol, investigation 
of all crimes, traffic management, riot control, rescue and first aid, 
etc . 




We would like to recommend that along with his present 
entrance medical examination , in order to make a man more effective 
in riot control, owing to the nature of crimes that are perpertrated 
today, a police recruit be subject to psychological testing upon 
entry into the Department . The Committee would like to further recom- 
mend that a police officer, considering the high physical and mental 
demands owing to today's police problems, should take a regular physi- 
cal and cardiogram. 


It should be noted that during our visits to most of the 
Bureaus, including that of Narcotics, we found most of the inspectors 
in their offices writing up their reports early in the morning. The 
Committee feels civilian shorthand-typists should be hired to take the 
reports in order that the men may utilize their time in the field. 


We would like to commend this extremely successful operation 
and the officers who worked diligently and gave up off-duty time to 
help the youth of San Francisco. It is a most worthwhile cause. 


The Narcotics Department of the San Francisco Police Depart- 
ment is operating most efficiently under the circumstances. The 
Committee and several members of the Grand Jury have worked closely 
with it during the past year. Again, their contingency fund has not 
been increased commensurate with the workload and it is net uncommon 
to find the department without operating funds during the course of a 
month. Owing to the tremendous increase in the narcotics problem we 
recommend that this Bureau receive a minimum of .*50,000 annually plus 
additional men. (See Narcotics Ad Hoc Committee report.) 


Our inspection of this Division revealed an insufficient 
number of traffic control men. This committee proposes that an addi- 
tional 29 traffic control men be added to the 20 which were approved 
this year. Our recommendation was approved by His Honor, the r^ayor. 
We would like to take this opportunity to commend .D'iree tor Zaragoza 
and his men for the fine Job that they are doing but we would like to 
see traffic control men direct traffic from fixed posts such as in 
other cities. This would certainly return many men to beat duty. 




Once a man has qualified for motorcycles, he automatically 
draws hazard pay. Our investigation has shown that several men are 
drawing this additional money at considerable expense to the city and 
county, although they are now employed at desk jobs in the traffic 
bureau. This practice should stop and a minimum of 24 hours a week 
should be driven on a motorcycle by any man in order to qualify for 
hazard pay. 


This unit is understaffed and has an insufficient number of 
automobiles. We have received numerous complaints from citizens who 
have had to wait up to three and four hours for a car to respond, and 
in some cases - when the accident does not include injury, the bureau 
has insufficient personnel to respond. In such cases, the citizens 
are advised to gather the necessary legal information when officers 
are unable to appear at the site of the accident. 


It has been noted on several occasions, that when a car is 
called out and is involved in a chase, the driver usually has the keys 
for the shotgun rack in the car ignition and is unable to remove the 
gun for use from the rack. We recommend that two separate key chains 
be utilized. 


The administrative space, conference room and jail facili- 
ties are poor, and the station cells that are used for temporary 
detention of prisoners - pending transfer to City Prison - are unheat- 
ed and too isolated for proper supervision. 


Most of the furniture and fixtures are old and there is an 
insufficiency of walkie talkies, night sticks, and shotguns in the 
station armory. 

The Police Committee has had the opportunity to review the 
police forces of several California cities, along with numerous police 
departments of foreign countries. We would like to recommend that the 
San Francisco Police Department obtain the details of a walkie talkie 
used by the London, England Police Department, which is a two way 
transceiver about the size of a pack of cigarettes. This would enable 
the beat officers to be in a tx/o-way communication with his station at 
all times. 



Most of the district stations have been involved in shoot- 
outs: and in order to pr tect themselves, the station keepers have 
been forced to pile old ledgers against the window glass for protec- 

There is need to emphasize that bullet proof glass be 
installed as soon as possible. 


The Grand Jury strongly believes the Chief should have a 
greatly augumented staff in communications, most of whom should be 
civilians. This would return to Police duties approximately 15 Police 
Officers. These civilians would be under a commissioned officer cap- 
able of giving advice and supervision, and making the necessary decis- 
ions for action. 


In view of the parking problems in San Francisco, we would 
strongly recommend that credit cards be accepted for the payment of 
tow away charges. It appears that many housewives, some with children, 
after going on a shopping spree are unable to redeem their automobiles 
due to lack of funds. Presently, they have to abandon their vehicles 
until someone at home can pay their tow away fees. 

We would like to take this opportunity to commend Chief 
Thomas J. Cahill and his staff for the exceptionally fine Job of run- 
ning the department under the circumstances; and particularly on his 
report to Kis Honor Mayor Joseph Alioto entitled r 19o9 Special Report- 
San Francisco Police Department". This report presents in detail, 
from a police point of view, the social and economic statistics of 
San Francisco in addition to the deployment of the police organization 
by neighborhood police stations. A wealth of information is contained 
in this comprehensive report. 

We encourage the Police Commissioners, the Board of Super- 
visors, and the Mayor to review this report in detail. The recommen- 
dations contained therein are worthy of most serious consideration 
along with the additional comments by the Police Committee of the 
Grand Jury. We would also recommend to the commissioners that they 
make periodic field inspections of the entire department. 

George C , Denend 

Joseph C. Tarantino 

David Morris, Chairman 



The Juvenile Court Committee report on the Youth Guidance 
Center may well preface its recommendations on what could or should 
be the finale of its report, namely; that the physical plant as it 
now exists is totally Inadequate to serve its purpose. It is over- 
crowded and needs additional classroom and recreation facilities. The 
complex was completed in 1950 on a twelve (12) acre site atop Twin 
Peaks. It is conceded by all concerned that it should be replaced and 
relocated as soon as possible. This is not easy to accomplish partic- 
ularly in the face of the defeat of Proposition "C" in the last Novem- 
ber election. 

The passing of the Honorable Raymond J. O'Connor, Judge of 
the Juvenile Court, in January, left a void in the operation of Youth 
Guidance Center. Judge O'Connor was recognized by both the profess- 
ionals and laity as an outstanding jurist who dedicated the last years 
of his life to the interests and welfare of dependent and delinquent -. 
children. The Judge's passing was followed by the early resignation 
in April of 1969 of Elmer Gaet.ien from his position as Chief Frobation 
Officer. In the interim, Mrs. Rose McGrory has been very ably fulfill- 
ing the duties of this important position. Mrs. McGrory has announced 
that she is not a candidate for the Chief Probation Officer on a per- 
manent basis. At the deadline date for applications for this post, 
thirty seven (37) persons had filed their applications - nine (9) 
from San Francisco; thirteen (13) from other California Cities; fif- 
teen (15) from out of State. These thirty-seven applicants were 
screened and interviewed by the Superior Court Judges ' Personnel Com- 
mittee, under the Chairmanship of the Honorable Walter Carpeneti. The 
delay in the appointment of a Chief Probation Officer earlier was 
held up in order to obtain State Legislation to waive the State of 
California residency requirements for this post. At the meeting of the 
Judges of the Superior Court held on Thursday, December 11th, 1969. Mr. 
Joseph Botka of Akron, Ohio, was selected for the position of Chief 
Probation Officer. 

In passing may we compliment the retired Chief Probation 
Officer, Elmer Gaetjen, for his work in this position. In a life ded- 
icated to youth work dating back to 1923, he worked his way up to be- 
come Chief Probation Officer of the Juvenile Court of the City and 
County of San Francisco. 


This year's Grand Jury passed a resolution which was sent to 
the Board of Supervisors, urging the Board's enactment of legislation 
removing dependent (neglected) children from the Juvenile Hall and 
transferring their care to the Department of Social Services which 
would provide shelter at other locations. This action would remove the 
stigma of juvenile delinquency. This matter is now in the hands of the 
sub-committee of the Board of Supervisors. 


Youth Guidance Center (continued) 

Delinquent girls are an ever-increasing problem at Youth 
Guidance Center. According to statistics released by Captain Daniel 
Quinlan, Head of the San Francisco Police Juvenile Bureau, 2,604 girls 
were booked or cited for appearance at Juvenile Hall this year. Cita- 
tions included crimes of violence, purse snatching, strong-arm rob- 
beries, and aggravated assaults. A record number of girls are being 
admitted under the influence of narcotics and/or dangerous dfcrugs . The 
aforementioned number of admissions is an increase of 515 more than 
for the same period last year. This compares to 684 boys booked or 
cited or an increase of 54 more than a like period in 1968. Delinquent 
boys have two honor camps or rehabilitation ranch type schools - 
Log Cabin and Hidden Valley located at La Honda. No such facility is 
provided for delinquent girls. It is strongly recommended that a facil- 
ity be established - a group of institutional homes. The group home s 
should include a psychiatric staff. Such a facility could possibly ■ • 
prevent delinquent girls from being sent to the California Youth 


The Probation Officers now present criminal matters to the 
Court and at the same time act as counsellors to the offending juven- 
iles. The Court feels that the juvenile cases be presented in contest- 
ed delinquent matters by the Office of the District Attorney. It is 
therefore recommended that a minimum of four (4) Assistant District 
Attorneys, One (1) investigator, and One (1) stenographer be assigned 
to the Juvenile Court to assist the Probation Officers in determining 
the proper allegations to be made in the petition alleging delinquency 
and to screen properly the cases to determine whether or not there is 
sufficient evidence for a petition to be filed and eventually they 
would be responsible for the presentation of the matters before the 
Court or the Referees. 

It is further recommended in addition to an Assistant Chief 
Probation Officer, that another Assistant Chief Probation Officer be 
appointed to be in charge of personnel, training, and research. 


The Juvenile Court now has one part time Public Defender. 
Since November 28th, 1969, the Legal Aid Office has been closed and 
the Juvenile Court now has only one attorney to represent minors in 
delinquency and dependent matters. It is the stated objection of the 
Office of Economic Opportunity that funds this project that the Legal 
Aid lawyers should not represent minors in delinquency matters, unless 
there is a particular or unusual matter to be heard which might result 
in an appeal. It is obvious, therefore, that in the average contested 
delinquency case more Public Defenders will be needed. It is recommend- 
ed that three (3) full-time Public Defenders be added to the staff at 
Juvenile Hall* 


Youth Guidance Center (continued) 


Recreation facilities and activities at Youth Guidance Cen- 
ter are obviously very limited and in order to alleviate some of the 
difficulties it is suggested that two playground director positions 
be added to the Juvenile Hall budget. Presently the School Department 
conducts the physical education programs in the two gymnasiums, but 
when school is closed at three o'clock in the afternoon and on week 
ends there is no director to supervise the gymnasium activites. We 
suggest funds be made available for the hiring of playground directors 
for the aforementioned periods. 


These two schools are operated as part of the Youth Guidance 
Center. They are located in beautiful country at La Honda and are ably 
supervised by two directors - Mr. Walsh at Log Cabin and Mr. Chay at 
Hidden Valley. Hidden Valley however is without a recreation hall or 
swimming pool. The boys from Hidden Valley share the Log Cabin facil- 
ities but this has not proven too satisfacory an arrangement. 

This Committee suggests that a citizens committee be formed 
to obtain funds from private sources for these purposes. 

Steps should be taken to prevent the use of narcotics by 
the youths at these schools. 

The Juvenile Justice Commission is comprised of a group of 
qualified citizens appointed by the Juvenile Judge. The Grand Jury 
commends this Commission for devoting their time and effort to the 
city's juvenile problems. 

To finalize this report our Committee commends the Juvenile 
Court Judge, Honorable Francis W. Mayer, for the progressive manner 
in which he has handled the Youth Guidance Center. In the short time 
he has been in the Court, we feel that he has done an outstanding job. 

Mrs. Marie A. Bruce 
David Morris 

John J. Casey, Chairman, 



Mr. John J. Goodwin is Treasurer of the City and County 
of San Francisco. 

Preceding Grand Jury Committees have been critical of the 
Treasurer's office for inability to respond to the opening of 
Safety Deposit Boxes and inventorying their contents. 

State Law requires the Treasurer, or his representative, 
to be present at the opening of a Safety Deposit Box belonging to 
a decedent. The purpose of this is to inventory the contents. 
The inventory by the Treasurer is compared to the Inheritance Tax 
return of the estate so that no one can escape the proper tax. The 
Committee questions what real purpose this serves as it would be 
possible for the contents of an estate to be concealed if one so 
desired. For example, money and jewelry can be hidden in one's 
household or elsewhere. If the bank is not aware of a death, the 
co-tenant of the box could remove its contents. It would seem that 
the Legislature or the Franchise Tax Board should examine the value 
of this exercise by the Treasurer versus the expense involved. It 
would appear that a bank officer could inventory a box and sign an 
affidavit as to the contents, and this report should be acceptable 
to the tax authorities. Should legislation be required to enable 
bank officer involvement in this function, then this Committee 
recommends the pursuit of such legislation. 


We find the Treasurer understaffed and meeting his case 
loan on a deferred basis. He is in receipt of 1,000 to 1,500 war- 
rants (Welfare) in contention monthly. He deals with an identifi- 
cation system that lends itself to fraudulent identification. 

The warrant problem is one of payment to the proper per- 
son. If warrants are stolen the proper owner must sign an affida- 
vit of loss or of forgery to get a replacement and this involves a 
great deal of paperwork. Mr. Goodwin feels that if an identifica- 
tion card is required by the merchants or banks before cashing the 
warrants, there will be less chance of forgery and a reduction in 
paperwork. The present problem is not one of paying out money on 
forgeries as it is administering the "paper" and the returning of 
stolen checks to the banks and merchants who are involved. 

Mr, Goodwin meets the paying and receiving requirements 
of his office in a routine manner. His force, however, should be 
set at a level directly proportionate to his work load. We do not 
feel that this has been reconciled in several years, at least not 


TREASURER (continued) 

to the satisfaction of this Committee. 


John Goodwin is a dedicated man, devoted to civic duty. 
We feel that Board of Supervisors may find it enlightening and edu- 
cational to visit this department and go through an operational 
review to better understand its needs. Perhaps such a review would 
disclose opportunities to improve service to the public and to assist 
the Treasurer in performing the necessary functions of his office. 

Charles G. Landresse 
I. P. Sicctte,Jr. 

George C. Denend, Chairman 





Pornography is a low cost - high return business with an 
annual gross return in California , estimated as exceeding twenty 
million dollars. 

This Committee suggests that one of the greatest problems 
endangering our community is that of pornography - mental pollution . 
The acuteness of the problem is self-evident as reflected by the bold 
steps taken by those purveyors of filth who parade under the protec- 
tive mantle of the First Amendment. We are also fully aware of the 
fact that control of obscene material is no easy matter. 

The recent changes in the law in connection with offenses 
involving pornography indicate an awareness on the part of our legis- 
lators of the damage which has been inflicted upon our society by 
those purveyors of pornography. It is hoped that further changes in 
the law will be forthcoming thereby facilitating the arrest and 
successful prosecution of this type of offense, putting the nomogra- 
pher in jail and out of business. 

One of the major problems involved is the fact that objec- 
tionable material peddled (and at exorbitant prices) is foisted upon 
the public by reason of its exposure in the front windows of the 
places where the material may be purchased. In connection with the 
recognition of these problems, credit must be given to those news 
media which have done an admirable job in spotlighting the nature of 
the problem. They have certainly awakened the public to the type of 
trash to which our youth is exposed . Certainly many of the trash 
paperbacks are written purely to provoke and excite the prurient 
interest. They cannot be looked upon as serious contributions to lit- 

The enormity of this problem becomes self-evident when one 
considers the flood of such filth inundating San Francisco by way of 
thousands of paperbacks which pour out of smut mills and find their 
way into this City of ours. The impact upon youth of this flow of 
mental garbage cannot be minimized. 

This Committee feels that arrests alone, unless backed up 
by meaningful penalties, do nothing more than encourage the violators 
to go back in business, e.g., it is found that in most cases, follow- 
ing the utilization of police manpower hours and the time of the 
District Attorney, that upon a finding of guilty only a small fine is 
imposed. This is certainly no deterrent to the sale of filth. 


Ad Hoc Committee on Pornography - Special Report (continued) 

We have also noticed that the police control involved in 
connection with the sale of pornography, with particular reference 
to obscene movies, is primarily invested in one inspector, assigned 
to the Bureau of Special Services, who has been in such capacity for 
many years. He has a thorough knowledge of the subject and is doing 
an outstanding job. Although other officers are technically empowered 
to make such types of arrests, with the complex legal provisions 
found in the obscenity laws, in practice, this inspector referred to, 
soley conducts such types of investigation. We believe, therefore, 
that in view of the enormity of the problem involved that additional 
men should be assigned to these specific duties, thus adding to the 
arsenal of enforcement so necessary to combat the pornographic prob- 

Mrs. Marie A. Bruce 
David Morris 

John J. Casey, Chairman 



The first investigatory visit of this Committee to the 
Office of the City Attorney was made on March 9, 1969. We were im- 
pressed by the efficient manner in which this department is con- 
ducted. We noted that all space available was completely occupied. 
This office could use considerable more space, but the space should 
be in the City Hall. In the planning for a proposed Courts' Build- 
ing, special attention should be given to providing more space for 
the City Attorney. 

On several occasions during this year we have been in 
need of legal advice and direction from the City Attorney, Thomas Mo, 
O'Connor. We are pleased to report that on each occasion we re- 
ceived prompt and efficient service and answers to our questions. 

In the fiscal year I968-I969, 104 legal opinions were 
provided for twenty-four City Departments; 45 opinions at the re- 
quest of the Board of Supervisors ; 19 for the Civil Service Com- 
mission and the remaining 40 opinions for 22 other departments. 

We believe this department is well directed and performs 
its functions smoothly and efficiently; therefore, we the Members 
of this Committee commend the City Attorney and his staff. 

Eugene R. Erigero 
John J. Enright 

Henry E. Fourcade, Chairman 



On April 10, 1969* Foreman Melvin M. Swig appointed an 
Ad Hoc Committee to review the Instructions, the Penal Code and 
the functions of the Grand Jury., and to make recommendations for 
the future of Grand Juries. 

Accordingly, the Committee proceeded with the investiga- 
tion under these guide lines. A report was submitted to the entire 
Jury on April 17, 1969 embracing Grand Jury Instructions, Sections 
of the Penal Code dealing with Jury matters, and selected reports 
and recommendations from other Grand Juries of the State of Cali- 
fornia. This report was identified as the "Blue Book." Subsequent 
reports were presented to the Jury on June 11, October 13* and 
October 30, 1969. 

Close liaison was maintained with the Presiding Judge, 
Edward F. O'Day, Bernard Ward, Officer of the Court, and Ralph 
Sheehan, Consultant. 

The final recommendations of the Ad Hoc Committee were 
presented to the Jury on December 1, 1969. The Jury supports the 
following recommendations: 

That in order to meet more expeditiously the criminal 
responsibilities of the Jury, and to fulfill the administrative 
functions to the greater satisfaction of the Jury, the City and 
County of San Francisco appoint two Juries - one Criminal and one 
Administrative. Further, that the Administrative Jury be so 
impaneled that their service would be on a fiscal year basis rather 
than the calendar year. 

It is strongly felt that the Two- Jury System would enable 
more in-depth review of county operations, while at the same time 
expedite the presentation of felony cases in greater quantity be the 
District Attorney and the indictment process by the Criminal Jury. 
The end result would be better service to the citizens of the City 
and County of San Francisco . 

We recommend that legislation necessary to provide these 
changes be prepared by the Court and submitted to the appropriate 
legislative representatives for enactment. 

Mrs Nancy B Knickerbocker 

John J Enright 

George C Denend , Chairman 


Although the Committee kept six appointments with Mr. John 
Dukes,, the General Director of the E.O.C, and made an inspection 
tour of several of the E.O.C. projects, corresponded with the 
various City department heads relative to E.O.C. and interviewed 
still others, it is our conclusion a report is not in order be- 
cause of an opinion rendered by City Attorney Thomas O'Connor to 
the 1966 Grand Jury to the following effect: 

"The Grand Jury has no jurisdiction to routinely 
investigate the E.O.C. because it is not a county 
office, but is only a private non-profit corpor- 

In reply to an inquiry from this Committee on August 14, 
I969 to the District Attorney, he responded as follows: 

"I am enclosing the City Attorney's opinion 
No. 66-60-A and No. 66-56-A. In accordance 
with the conclusions reached in this opinion, 
you are advised that the Grand Jury has no 
jurisdiction to routinely investigate the 

John P. Cordoni 

Joseph C, Tarantino 

Norbert Cronin, Chairman 



This department is managed by Mr. Burton H. Dougherty, with 
a staff of 111 permanent and 21 temporary employees. Mr. Burton 
Dougherty is responsibile to the Chief Administrative Officer. 

The responsibility of this department is to maintain, 
repair, and in many instances manufacture parts and equipment. Each 
year more work is added to their already over-burdened staff, but 
their requests for additional personnel has been denied. Minimal 
needs for the department would be an increase of five (5) permanent 
employees. To cite an example; A request for working Painter Foreman 
had been proposed and received the support of the Grand Juries for 
1967 and i960, but was not approved. As a result, backlogs have in- 
creased with deterioration and corrosion playing havoc to traffic 
signals, fire and police boxes, and many other types of equipment. 
If this equipment fails to operate properly in an emergency it could 
cause the deaths of some of our citizens. We feel this -.shtould. be 
recommended in a supplemental request to the Finance Committee, for 
the five (5) positions. 


One of the biggest problems in the department is the con- 
tinued increase of vandalism on all types of equipment. Costs to the 
Department of Electricity alone this year was $24,335.00. Add to 
this an estimated loss in revenue of $2,800.00 per month, or 
$33 3 600.00 annually, from "jammed" parking meters. (Savings from 
this revenue alone would more than pay for the requested positions.) 


Our visits to the plant Itself at 901 Rankin Street and 
many of their other installations convinced the committee of the 
fine job being done by this unit. While the major operation is from 
8:00 A.M. to 4:00 P.M., they have a complement of employees in all 
crafts working 24 hours per day, 7 days per week, with standby per- 
sonnel for emergencies. 


The Fire and Police Departments require the most time, but 
maintenance must also be given for equipment of the Municipal Rail- 
way, Disaster Corps, Port Authority, Public Works Department, Public 
Health, Harbor Police, Water Department, Offices of the Mayor, and 
the Board of Supervisors for either One-Way or Two-Way Radio Control. 


SERVICES ; (Continued) 

Traffic signals, parking meters and warning sirens are another inte<» 
gral part of their operation. 


Immediate steps be taken to secure the necesLary funds 
from a supplemental source to fill the urgent needs for additional 

Arnold F. Devoto 
Joseph M. Hannan 

Frank J„ Smith, Chairman 



The Real Estate Department functions in the capacity of 
real estate agent for the City and County of San Francisco. It 
handles all purchases, sales, negotiates leases and the acquisition 
of land by eminent domain proceedings. Sales of property declared 
"surplus" are conducted as the occasion arises. With the high prop- 
erty values prevalent in the City these sales produce a good income 
and at the same time return the properties to the tax rolls. 

Previous Grand Juries have recommended special studies be 
made with a view to determining the best and most profitable use of 
City lands. We concur with their views and suggest that the fullest 
use be made of air space over community parking lots and space under 
freeways. Good examples of what can be done in this regard are the 
Health Center constructed over the Broadway Tunnel and the Central 
Police Station on the ground level of the North Beach Parking Garage 
on Vallejo Street. This type of construction can well be adapted for 
private use, producing a return to the City. 

A Bureau of Land Management has been created in the Public 
Utilities Department whose functions to a considerable degree paral- 
lel those of the duly constituted Real Estate Department; the explana- 
tion advanced for its establishment is that the iand management 
problems of the utilities require special treatment as opposed to 
those properties administered by the Real Estate Department. 

The Committee is of the opinion that dual real estate or 
land management departments are an unnecessary luxury and impose a 
tax burden on the community. We urge that the function of the Real 
Estate Department of the Public Utilities be returned to the Real 
Estate Department of the City. 

Joseph M. Hannan 

Charles G. Landresse 

Arnold F. Devoto, Chairman 



The Health Service System offers City employees a choice of 
plans. There are approximately 23,000 members now insured under these 
plans . 

$1,317,000 is the City's contribution and this is 6% for 
$100 of the tax rate and in accordance with the Charter provisions. 
$1, 500,000 is the amount contributed by the City employees themselves. 
Under Plan 1, the City system itself, the City contributes 36.5% of 
the total premium with the Health Service System paying $1 for the 
premium out of surplus. It is to be noted that there is neither a 
Dental nor Drug Plan offered and that the dependent premium is paid by 
the employee himself. In the November 1969 election, the voters 
turned down the proposition that the City would pay the dependent 
premium. Eighty per cent of Health and Welfare Plans regionally are 
on a composite premium basis and the premium is paid for totally by 
the employer. 

For those retiring without Medicare, a premium of $28.32 

monthly is paid by the City. Th§ total eost to the City for retirees 
Is $375,000: annually. 

The administrative cost of the Health Service System fund is 
$330,000 annually, which is approximately $1.36 per month per employee. 
The total annual contributions collected are approximately $3,000,000. 

Throughout the year 3 the service under Electronic Data 
Processing was ''horrible". As an example, 1,000 deductions were not 
made in the month of February 1969. There is every assurance that 
EDP will become more costly as time goes on and in the opinion of 
Lyle O'Connell, the Executive Director, "'EDP will have to function 
properly immediately - or else". The Health Service System is now 
being charged more for the data processing than when they had the 
machines in their own office. Mr. O'Connell reports to this Committee 
that the Health Service System relationship to "the Civil Service 
administration is an unhappy one, saying "The Commission does not 
produce employees" and gave, as an example , that they cannot obtain 
from the Civil Service Commission current addresses for those under 
the Kaiser Plan. 

Current financial and C.P.A. reports were unavailable at the 
time of this Committee's meeting. As a matter of fact, a copy of the 
last report made by the Controller was dated October 10, 1961. The 
latest C.P.A. report available to the Committee was dated June 30,1965 
There is no current operating statement - income versus outgo - avail- 
able . 



There are 7 members of the Health Service Board - 3 from 
employee groups , one from the Board of Supervisors (the Chairman of 
the Finance Committee ) ., one from the City Attorney's office, a physi- 
cian and one from the insurance industry. It must be noted that the 
present Chairman of the Finance Committee of the Board of Supervisors 
has never attended a meeting. 

It is the opinion of this Grand Jury that the criticisms 
leveled in this report should be investigated and that the failures 
resulting therefrom should be corrected. 

It is the opinion, also, of this Grand Jury that the Execu- 
tive Director and the 25 employees working under his jurisdiction are 
doing a good job within their limits. 

John P. Cordon! 

Joseph C. Tarantino 

Norbert Cronin , Chairman 



The 1968 Grand Jury passed on to us , the 1969 Grand Jury, 
the following admonition: 

'One of our major frustrations was our inability to convince 
the Mayor of the need for an in-depth study of our "sick" 
Civil Service System. We commend this problem to the early 
attention of the 1969 Grand Jury .... 

The material and conclusions presented herewith result from 
the following activities of the Committee: 

46 questionnaires were sent to the various City department 
heads ^ asking for replies. 4 6 answers were received. 
Two meetings with the Mayor. 

Four meetings with George Grubb, General Manager, Personnel. 
One meeting each with M r. Grubb 's four principal assistants. 
One meeting with the Civil Service Commissioners. 
One meeting separately with one of the Civil Service 
Commissioners . 

One meeting with the Civil Service Association. 
One meeting with Local 400. 

One meeting with the Federation of Public Employees. 
Two meetings with the Chamber of Commerce. 
One meeting with the Foreman of the 1963 Grand Jury. 
One meeting with the Chairman and one committeeman of the 
1968 Grand Jury Civil Service Committee. 

One meeting with the 1967 Chairman of the Grand Jury Civil 
Service Committee. 

One meeting with the 1966 Chairman of the Grand Jury Civil 
Service Committee. 

One lengthy appearance of George Grubb, General Manager, 
Personnel, before the entire body of the 1969 Grand Jury. 
A study of the transcript of the testimony of George Grubb, 
General Manager, Personnel, before the 1?67 Grand Jury. 
A review of the 1966, 1967 and 1968 Grand Jury Reports on 
Civil Service. 

One meeting with the head of one of the larger City Depart- 
ments (requested by him). 

Discussions with 9 various City department heads. 
Continuous correspondence. 

• Because it was felt that the 46 department heads to whom the 
questionnaire was sent would be most concerned with the operations of 
the Civil Service Commission, the Committee studied their replies with 
great interest. Let it be noted that: 



I 23 department beads (50%) are completely unhappy with 
the operation of the Civil Service Commission. 

II 12 (26.1$) approve of of its operations. 

III 5 (10.9%) were non-committal. 

IV 6 (13%) claimed that they were not involved with it. 

Upon analysis, the primary complaint against the Civil 
Service Commission is the backlog of regular and promotional examina- 
tions. The second complaint is the failure of the Civil Service 
Commission to provide the proper personnel for the proper job. The 
third complaint is the failure of the Civil Service Commission to 
recruit personnel. The fourth objection is the appointment of too 
many temporary employees (one has been temporary for 17 years). The 
fifth complaint is the appointment of too many limited tenure employ- 
ees. Actually, the number of limited tenure temporary certifications 
for the past year was 4,878 and the number of permanent certifications 
was 624. These are criticisms of the operational end of the Civil 
Service Department . 

The complaints listed , as far as the executive ability of 
the General Manager, George Grubb is concerned, reduce to the follow- 

1. Inability to communicate with other department heads. 

2. Addiction to detail. 

3. Refusal to delegate authority. 

4. Lack of leadership. 

5. Dearth of imagination. 

The 1969 budget request was increased to $4^9,582 because 
the Civil Service Commission ;, is 18 months behind in every phase of 
its work". The sole explanation for this backlog, according to George 
Grubb, is: 

I. Budget resistance. 

II The Civil Service Commission is not popular. 

It is Mr. Grubb ? s proper suggestion that the Commission it- 
self should be a tribunal for judicial matters rather than administra- 
tive matters. 



The current number of Civil Service positions in the City 
and County of San Francisco is 22,263. The Civil Service Department, 
at this time, has 70 employees and is asking for 25 more (although 
Mr. Grubb claims 1*10 are necessary to do a satisfactory job). 

Mr. Grubb states that the Civil Service Commission is in 
"bad shape :| and that money is the only solution. 

Mr. Grubb favors the Los Angeles prodedure for examinations 
rather than the San Francisco method because the former enables people 
to be hired more promptly. A Charter amendment is recommended to 
resolve this problem. 

There is a division of loyalty in the Department among the 
principal department heads, which doesn't help the efficiency of the 
Department . 

The General Manager and his Commission have failed to bring 
in Charter amendments and revisions for the removal of those obstacles 
that do hinder the work of the Civil Service Commission. (We are in- 
formed that examinations lag, in one instance as far behind as 8 years) 

Since the backlog of examinations is the most common target 
of criticism and since the General Manager's and Commission's position 
is that they need money to remove this backlog, Mr. Grubb, at a meet- 
ing with this Committee on May 16, 1969, suggested the application of 
Section 145-1 and Section 1^9 of the Charter in order to obtain money 
to remove this backlog. (The record shows, however, that Mr. Grubb 's 
sworn testimony before the Grand Jury in 1967 s page 31 3 line 2, was: 
"I wouldn't recommend the application of that (Charter Section 149), 
"kind of a demand." The Committee studied these Sections and 
referred them to the City Attorney for legal interpretation. Issues 
were made of these Sections with the Mayor at both of our meetings 
with him. These Sections seem to say (to the layman at least) that: 

"if its (Civil Service Commission's annual apnropriation is 
insufficient to meet the cost of the examinations required 
to establish registers of eligibles through the examination 
procedures set forth in Section 1^5 hereof, or to qualify 
applicants for limited tenure appointments as herein pro- 
vided, the Commission shall report to the Mayor the estim- 
ated cost thereof and the Mayor shall request and the 
Supervisors shall make supplemental appropriations therefor 
in the manner provided herein for supplemental appropria- 


Interpretively, the City Attorney states: 

"The above quoted Charter Sections generally provide that 
in the event the annual appropriation for giving Civil Service exam- 
inations is insufficient, then the Civil Service Commission mus t re- 
port to the Mayor the estimated cost of examinations and the Mayor 
must request the Board of Supervisors and it sha_ll_ be the Board's 
duty to make a supplemental appropriation for Th~e cost of examin- 

The City Attorney then continues: 

"The amount of money is not mandatory, but appropriations 
must be made." 

In this light, then, the Civil Service Commission, its General Man- 
ager, the Mayor and the Board of Supervisors have failed to make 
possible the necessary examinations. 

We find that the Civil Service commissioners are subject 
to much criticism which centers upon the following charges: 

1. The surrender to endless detail instead of dedication 
to policy-making. 

2. The lack of harmony among the Commissioners, which 
diverts from their unity of purpose and leads to in- 
effectiveness . 

3. The domination of the General Manager over the Com- 
missioners' efforts. 

We report that the several organizations with whom we met 
were almonst unanimous in the content of their criticism of the 
operations of the Civil Service Commission. Records have been kept 
of these meetings so that this statement can be documented. 

It is acknowledged by all that the Data Processing has not 
been helpful and at times, has actually been intolerable. 

We recognize that since the examinations are so far in 
arrears a wider use of outside contracting -for examinations is most 

Admittedly, also, budgetary problems and certain Charter 
restrictions hamper the work of the Commission (although Mr. Grubb 
has informed us that Charter revisions would not break the log/jam in 
the Civil Service Commission). 

Admittedly, also, the General Manager himself is the most 
knowledgeable person in the matters of the Civil Service Commission. 

Because of the replies frcm the various City department 
heads, because of our meetings with the various associations, because 
of the 1966, 1967, and 1968 Grand Jury reports and because of cur 
own convictions, we recommed the removal of George Grubb, General 
Manager, Personnel, from the Civil Service Commission because of the 
following reasons : 



1. Failure to examine backlog of examinations 

(a) regular 

(b) promotional 

2. Failure to reduce and control limited tenure 

(a) politically abused. 

3. Failure to explain salary standardization 

(a) not trusted 

(b) not understood 

H . Failure to recruit - 

(a) and classify 

5. Failure to catch up on work 

(a) "18 months behind in every phase "-Grubb 

6. Failure to set recorded policy 

7 . Failure of General Manager 

(a) incommunicative 

(b) non-executive 

(c) dictatorial 

(d) secretive 

Furthermore , we recommend that the Commission be restruc- 
tured because we find that it is: 

(a) Political 

(b) employee oriented 

(c) inclined to pre-commission meetings 

(d) anti-management in decisions 

(e) overburdened - by preference - with 
routine work 

(f) reluctant to overhaul 
e.g. no Charter amendments 

We recognize only too well that the eventual judge of our 
recommendations will be the Mayor because he has the power to appoint 
the Commissioners who, in turn, have jurisdiction over the General 
Manager and because the Charter mandates the Mayor and the Board of 
Supervisors to obtain the necessary money for the administration of 
examinations . 

John P. Cordoni 

Joseph C. Tarantino 

Norbert Cr-onin, Chairman 



The Coroner, Dr. Henry Turkel, is a county officer acting 
under the authority of provisions of the California Government Code, 
the Health and Safety Code. 

There are specific laws which define the Coroner's powers 
which vest him with the right and duty to investigate certain class- 
es of death. All deaths reported to the Coroner are subject to a 
preliminary inquiry and if necessary full investigation if the cir- 
cumstances warrant it. 


r -\. Grounds to suspect that death occurred in any degree 
from a criminal act. 

When a physician is unable to state the cause of death or 
when no physician is in attendance 

All deaths where patient has not fully recovered from 
anesthetic whether in surgery, recovery room, or elsewhere 
All deaths of unidentified persons. 

The Coroner's Committee of the Grand Jury has spent a con- 
siderable amount of time in this department and would like to make 
the following recommendations:. 


The ambulances and vehicles are in complete run down con- 
dition and have far out-lived their usefulness They consist of- 

i960 International with 60,000 miles 

1962 International with 70,000 miles 

1962 Chevrolet with 92,000 plus miles. 
in fact this last named ambulance is in such poor condition that the 
department has discountinued using it. 

All these vehicles have been recommended to be replaced by 
the personnel in the City Repair Shops. It seems incomprehensible 
that any City department would have, or in the interest of safety 
should ask their employees to drive these vehicles 

Due to their age and high mileage it is not economical to 
continue repairing them. We recommend immediate replacement. 


We recommend the installation of a two-way radio system to 
be used exclusively by^ the Coroner's Department . This radio system 


CORONER" S OFFICE (continued) 

would permit direct conversation with the base station and would 
permit a more appropriate and better planned system of dispatching, 
in fact in many cases would help in reducing time delay on cases 
where the police are standing by. In addition this would give the 
Coroner a method of keeping track of their ambulances in the field. 
The total cost completely installed would be approximately $10,000 


Most of the general equipment in this department appeared 
to be kept in excellent condition, however, we recommend strongly the 
purchase of a Polaroid X-Ray machine. This machine can be used by 
anyone without any special experience, it does not require an X-Ray 
technician or any special tanks or solutions to operate it. 

The present procedure for locating bullets or any foreign 
matter in bodies, necessitates men and ambulances to transport the 
body to the San Francisco General Hospital X-Ray department, Patients 
there become very disturbed by this and especially by the odors' that 
emanate from decomposing bodies. Indeed, the X-Ray technicians com- 
plain themselves that they should not be exposed to these very offen- 
sive elements. In the last few years gunshot deaths have increased 
three-fold and the Coroner's trip to the San Francisco General Hos- 
pital have increased accordingly. This is most time consuming to the 
personnel as they have to wrap the body, provide transportation both 
ways and wait their turn to have the X-Rays taken. This delay pre- 
vents them from getting to the scene of a death. This X-Ray work 
should be done on their own premises which would save considerable 
time and money. The total cost of this machine would be less than 

We further recommend that a small Instamatic type camera 
be procured for this department in order that they may take pictures 
of a body in the local area in which it is found and when foul play 
is not suspected. Presently, the driver and deputy coroner have to 
spend considerable time at the scene until the San Francisco Police 
Department Crime Lab can send a man out This would certainly save 
a lot of time. 


This department utilizes two separate types of storage 
areas. One is a transient storage feezer room which is used for short 
terms up to a month. The long-term, or deep freezer room, which is 
also used fpr badly decomposed bodies, has to be kept at a much 
lower temperature. We noticed that a heat exchange coil should be 
installed around the door. This would equalize the temperature and 
eliminate- the frost around the door internally, sweating and paint 
peeling externally. This is a very inexpensive item and should be 
installed as soon as practical. There are approximately 50 bodies 
stored in these freezer vaults during an average month. 

CORONER'S OFFICE (continued) 

We Inspected an additional freezer room which is maintain- 
ed for the storage of human organs and tissue. These samples are 
placed in glass jars, properly labeled with dates and names of the 
deceased. It is required that these items be retained up to the 
period of one year for testing and legal purposes In time they are 
disposed of and buried in a common grave in proper respect to the 
human body. 


This Committee of the Grand Jury finds it most disconcert- 
ing to find that approximately 50$ of the drivers and deputy coron - have never taken a civil service examination but are in fact 
limited 'tenure employees hired by Dr.Turkel. Dr. Turkel advises 
that he has been unable to obtain examinations for these people by 
the Civil Service Commission. 

A driver and a deputy coroner work together as a team and 
it is acknowledged that the Deputy Coroner is the only one author- 
ized to search the premises or the deceased. In the past several 
drivers and deputy coroners have been questioned as to their honesty 
and were indicted or released from duty. We have discovered that 
prior to acceptance of their application of employment the Coroner's 
department has never received any formal investigation of their 
past employment history, or whether or not any misdemeanor or felony 
charge has ever been placed against them. 

We recommend that this be done and that Civil Service 
Examinations be given to all of the limited tenure people in this 

We would also like to see that all the men in these pos- 
itions be bonded immediately thereby protecting the City and County 
from any liability. 

In reviewing the annual report of the Coroner's office we 
noticed a seemingly high cost of three (3) part-time autopsy physi- 
cians totalling $50,000 annually. This is also true of the part- 
time Toxicologist and Pathologist. However, in comparision with 
private industry and in checking with the California Medical Associa- 
tion book on relative value study we come up with a unit cost for 
an autopsy of 15 units. Each unit has a relative value of $5.00 
$5.00 times 15 units equals $75-00 per autopsy. By multiplying the 
number of cases handled in the Coroner's office annually we come up 
with an average cost of $32.90 per autopsy or a saving to the City 
of $42.00 per case. 


Any war veteran who is indigent is entitled to veterans 
benefits for burial. These burials are arranged by the Coroner's 
department from a rotating list of mortuaries. The monies are re- 
covered by billing the Veterans Administration. 


CORONER'S OFFICE (continued) 

Peace-time veterans (indigent) or a wife of a war-time 
veteran is entitled to a burial at county expense up to the sum of 

As stated before the undertaker is selected from a rotating 
list. We have inspected those lists and found them to be fair and 
just and that no one firm is receiving any special consideration or 


These people receive county burials at a cost of $80.00 
This work is performed by the College of Mortuary Science School of 
Embalmers. In every case where the City and County incurs any ex- 
pense in burial we found that the Coroner's office had made applica- 
tion to Social Security, Veterans Administration, or any residue 
from personal estates for burial expenses which are returned to the 
General Fund. 

At this time the Committee feels that it is in order to 
compliment Dr. Turkel for the excellent and personal interest that 
he has taken in his department and the job-' he had done throughout 
the years. 

Joseph C. Tarantino 
George C. Denend 

David Morris, Chairman, 



Earlier in the year, a question as to the effectiveness 
of the Grand Jury was posed to the President of the Board of Super- 
visors. He responded that the Grand Jury was great in criminal 
matters, but he questioned its effectiveness in civil matters If 
this is the general opinion of the Board of Supervisors, then we 
believe they should begin to recognize Grand Juries within the legal 
scope of their authority. We trust this year the Board will give 
the 1970 Grand Jury their report concerning the 1969 Grand Jury's 
recommendations within the time prescribed 


The property owners and taxpayers of San Francisco are 
greatly concerned with higher taxes and unnecessary spending. This 
was quite apparent in the recent election results. It was also 
noticeable that the voters were viewing the Board of Supervisors 
with a critical eye. 

The Chairman of the Finance Committee states: "The tax- 
payer's plight is much more than ordinarily critical." Yet, we 
find it rather unusual that the Board of Supervisors still saw fit 
to add additional positions within their own offices. 

We commend the Finance Committee for their awareness of 
the run-away tax rate. They saw fit to reduce a $606, 409.00 budget 
to $583,525,343.00. Although this is a reduction of 22 million 
dollars to the San Francisco taxpayer it is still 80 million dollars 
higher than last year's budget. 

We recommend that a study be made as to the feasibility of 
employing a Budget Analyst as a part of the Board of Supervisors' 
Department, or as an alternative proposal, employ an outside Finan- 
cial Analyst prior to budget time each year. 


Our first recommendation is that each member of the Board 
of Supervisor take time, either from the Board of Supervisors or 
from their private business, to visit with members of the Police 
Department, so that they might witness actual police work. We feel 
that if the Finance Committee had made such a visit, they would have 
taken a more realistic approach to our City's problems and would not 
have refused the Police Force's request for five additional ser 
geants (Budget Page 172, Line 9), or police uniforms (Budget Page 
180, Line 13). We consider police and fire uniforms .just as impor 
tant as Municipal Railway uniforms and others that the City is now 






We recommend an immediate Charter Amendment to Section 
35.5.1* Police and 36.2, Fire relative to the elimination of the 
parity of wages between the two departments because each should be 
independent of the other. 


Since the recent election called for an elective Board 
as opposed to an appointive Board, we recommend that the provisions 
for such a Board be set up in such a way that members are elected at 
large and their terms be on a staggered basis. In the deliberations 
of the Board of Supervisors in this matter, we admonish the Board in 
their considerations, that the best interest of all our children be 
of paramount concern. 


The Chairman of the Finance Committee is an ex officio 
member of the Health Service System. This Supervisor did not deem 
it necessary to attend a meeting during the year. In order to 
obtain a financial statement in 19^9* the Grand Jury had to request 
the Controller to prepare such a statement. 


The Grand Jury this year visited Alcatraz a few weeks 
prior to the arrival of the Indians. It was our conclusion that 
the Island could be of no practical value to San Francisco tax- 
payers for innumerable reasons. We recommend that the Board of 
Supervisors not concern themselves with the public purchase of 
Alcatraz, thus saving the taxpayers of our City the burden of ad- 
ditional millions. 


The Board of Supervisor's department budget for the next 
fiscal year is $592,121.00, an increase of $23,299.00. Also, a 
subsidiary of the Board of Supervisors, the Assessment Appeals Board, 
has an additional $97,381.00 budget. 

We agree with Mr. Dolan's suggestion to the Board that 
they declare a definitive and effective security policy against pro- 
fessional agitators who continue to decide whether or not they will 
allow the Board of Supervisors to conduct meetings. 



We are pleased to see that Mr. Dolan has commented that a 
fuller consideration of Grand Jury recommendations by the Board of 
Supervisors be given within the time limit prescribed. 

Our Committee compliments Mr. Dolan on his knowledge of 
City Government and his demonstrated ability in the management of 
the affairs of the Board of Supervisors. 

Finally, we recommend that the Board of Supervisors con- 
cern themselves only with matters that are pertinent to the tax- 
payers of San Francisco and the general welfare of all its citizens, 

Norbert Cronin 

Mrs. Nancy B. Knickerbocker 
Nicholas J. Klunis, Chairman 



The terrible disaster that struck the City of San Francisco 
over 63 years ago had a most lasting effect upon its citizens. Ever 
since, the City has demanded and received the best there is in fire 
protection. Bond issues have been passed to guarantee in part, at 
least, the n-ew equipment and apparatus that is necessary to replace 
the old or obsolete pieces. The automotive shops of the City are also 
available to keep the stock rolling. 


First visitation was to the Fire Commissioners on March 
11th. Succeeding visits were made with Fire Chief William F. Murray 
on at least four occasions, two visits with Deputy Chief Keith Calden, 
Assistant Donal Cummins of the Training College, Administrative Di- 
vision, Earl Gage, Director of the Bureau of Community Relations, 
Central Fire Alarm (the nerve center of the entire department), the 
Airport, the High Pressure System, Twin Peaks Reservoir, Fireboat 
Phoenix, and a number of the Engine and Truck Companies. 

The number of personnel was identical with that of 1967-68. 
The breakdown is as follows: Uniformed Force - 1756; Headquarters 
Office - 16 (which includes the three Commissioners and one Secre- 
tary); Bureau of Engineering and Water Supply - 38, for a total of 
1,810. During the year three projects were put under construction 
with allotment costs of $952,900.00 provided in the 1964 Bond Issue. 
We are of the opinion that any reconstruction work should be thor- 
oughly checked with the view of consolidating Engine and Truck Com- 
panies as has been done during the past several years. Perhaps the 
survey now in progress will develop this recommendation. Modern 
automotive equipment negates the need of many of the Fire Houses. 
Our visits satisfied us that on any alarm the equipment is moving in 
less than 45 seconds from the time the box is pulled. 

The number of alarms in the fiscal year of 1968-69 has been 
the highest in the history of the department. It totaled 31,019, 
12,956 of which were false alarms. An audit for 1969, January 1st 
through October 31st, reports 11,186 false alarms have been pulled. 

The Bell type alarm and the aerosal alarm alerter as recom- 
mended by the last two Grand Juries have been installed and tested, 
but neither has proven an effective deterrent in lessening false 
alarms as the report adequately demonstrates. 

The Communication Center since its inception on November 7, 
1962, has come a long way in improving and dispatching men and equip- 
ment to fires and other emergencies. Updating of radio equipment by 



technicians of the Department of Electricity has been a great help. 
Just to cite one example: To clear a False Alarm Box in I963 took a 
minimum of ten minutes - today the time has been cut to less than 
four minutes. The saving of six to seven minutes is all-important 
when lives and property are at stake. 

The Board of Supervisors discussed the plan of eliminating 
fire boxes and substituting a simple, city-wide phone number that 
could be called for all emergencies including police and fire. One 
member recalled that New York City used a specific number for around- 
the-clock needs. Perhaps the current survey being conducted by a 
Fire Protection Engineering Firm will come up with the answer. 


There were 31 awards given during the year to firemen who 
took voluntary action in relation to saving human lives at adverse or 
great personal risk. We of the Grand Jury wish to add our congratu- 
lations to these outstanding Fire-Fighters. The excellent training 
these men receive at the Fire College or Training Division has in- 
fluenced the splendid record shown year after year. This staff is 
continually seeking methods to improve the efficiency of the veterans 
as well as the recruit. Newly appointed probationary firemen are 
assigned to the division for a six week intensive training course, 
during this time approximately 50 subjects are covered. Home study 
is required and weekly examinations are held. At the conclusion of 
the course all new members are qualified drivers, tillermen, pump 
operators and are assigned to service. Prior to the expiration of 
the six month probationary period, each recruit returns to the College 
for a final examination before permanent appointment. 


It was called to our attention that the department was hav- 
ing a difficult time filling vacancies because of the nonexistence 
of a qualified list. Our investigation showed that this is true for 
the promotive examinations, the reason being that under the charter 
any of the participants has a "right of protest" on the questions in 
the written test. Consequently, until the protests are heard and 
discussed before the final decision, the examination comes to a stand- 
still. Existing vacancies are filled by "limited tenure" appointment 
from the next lowest rank until such time as the list is adopted. In 
the open test for the Fire Department, there is no such problem. We 
reviewed the last three examinations that consist of four phases. 
All candidates must secure a passing grade to continue. The written 
test is the initial test; 55 to 60 per cent of the applicants are 
eliminated in this first stage. Following in order are the athletic, 
physical and finally the oral. A 20$ average is eliminated in these 
tests. The names of the successful candidates are then posted as to 


their order of standing on the list of eligibles. 

Herewith is the breakdown of our findings : 

Date of No. of List Expiration Number 

Written Applicants Adopted Passed Date Appointed 

07-17-65 965 12-15-65 202 02-07-67 125 
01-21-67 621 07-17-67 179 10-08-68 155 
12-07-68 1275 08-05-69 350 12-01-72 52(11-17) 

The current list is down to and including number 65 on the 
list to secure 52 applicants. The last three lists have taken approx- 
imately one year and ten months to exhaust completely. This points 
out that the statement given wide publicity, that a waiting period of 
three to three and a half years for a new examination, is ridiculous. 

We most emphatically oppose the suggestion to circumvent 
the Civil Service lists or declare a moratorium in order to achieve 
a racial balance. We do concur that more emphasis must be placed on 
interesting the minority groups to file and study for the job. More 
motivation is needed, they do not seem interested or attracted to or 
have the enthusiasm to make this type of work their goal. 

The San Francisco Police Department by comparison shows a 
very marked increase in the last two graduating classes from the 
academy on September 4th and November 25, 1969- The tests are quite 
similar in content. 


During the month of May, the three Fire Commissioners were 
so confident that a professional survey of the department would result 
in substantial savings that they pledged to the Board of Supervisors ■ 
Finance Committee that they, the Commissioners, would pick up the tab 
if it does not prove worthwhile. The fee for the enterprise was 
$13,500.00. The Finance Committee voted to give a do-pass recommen- 
dation to the full Board and also officially recorded the pledge made 
by the Board of Fire Commissioners. 

We concur with the Commissioners (previously noted) that 
substantial savings could be realized by consolidations and alignment, 
which would release both manpower and equipment. 


That the newly appointed members of the Grand Jury Fire De- 
partment Committee immediately secure and study the professional sur- 
vey and attend the open meetings scheduled for January and February 
of 1970 relating to the survey and recommendations. 



Meetings be scheduled with the Fire Commissioners and the 
Chief of the Department and his staff to study and develop the report 
in order to make a very comprehensive presentation to the Finance 
Committee of the Board of Supervisors. 

Expend time investigating the tremendous increase in the 
number of false alarms and attempt to formulate a system or plan that 
will greatly reduce the manpower, time and expense that could be 
utilized elsewhere within the department. 


We thank Chief William F. Murray and his staff for their 
wonderful co-operstion during the year. The citizens are most for- 
tunate to have an outstanding department with a chief who is recog- 
nized as a world-wide authority in fire prevention. 

Arnold F. Devoto 

Joseph M. Hannan 

Frank J. Smith, Chairman 



The Chief Administrative Officer is responsible for the ad- 
ministrative supervision and control of nine departments which employ 
the services of more than 6,150 persons and have operating annual 
budgets totaling more than $95,000,000.00. The Chief Administrative 
Officer also serves on 24 committees as chairman or ex officio mem- 

The existing structure of Mayor, Chief Administrative Of- 
ficer, and Board of Supervisors as separate branches of Government 
provides an excellent check and balance system. The Chief Administra- 
tive Officer should remain independent and not become subservient to 
any other branch of government. 

As suggested in other Grand Jury reports this year, the San 
Francisco County Hospital should not be operating without an Adminis- 
trator. We hold the Chief Administrative Officer responsible for 
seeing that a nonmedical administrator is appointed immediately. We 
see no valid reason why there has been a time lapse of two years in 
the filling of this position. 

We once again recommend that immediate action be taken to 
protect the life and welfare of the patients in the Laguna Honda 
Hospital by constructing a fence around the Hospital as proposed by 
the Grand Jury's Health Committee earlier in the year. 

As a director of the Office of Economic Opportunity, we 
recommend that the CAO assume a more active role in order that the 
$200,000.00 of San Francisco's taxpayers' money be more fully pro- 

The CAO's Real Estate Department handles all purchases and 
sales of real property for the City and County of San Francisco. 
Therefore, we believe it is not necessary that the Public Utilities 
Commission create a Property Management position. (Refer to Real 
Estate Department Report.) 

Our committee is grateful to the CAO's office for the 
courtesies extended to us throughout the year and wish to compli- 
ment Mr. Mellon and his staff on the management of this city depart- 

Norbert Cronin 

Mrs. Nancy B. Knickerbocker 
Nicholas J. Klunis, Chairman 


This Department encompasses a vast area of land an improve- 
ments. It is large and complex, but staffed with conscientious 
employees. This Committee of the Grand Jury attended many Commis- 
sion meetings, met with both the Acting General Manager and later 
with the new General Manager who took over in mid-April. We started 
early in the year with a respectful suggestion to the Recreation and 
Park Commissioners that the Golden Gate Park be open on Sundays to 
auto traffic in the areas of the De Young Museum, Japanese Tea 
Garden and the California Academy of Sciences. The Grand Jury felt 
that there was a waste of good parking space and that much of the 
public was deprived of viewing these facilities. We noted that on 
those Sundays in which Kezar Stadium was in use, all areas of the 
park were open to the parking of autos. This suggestion was placed 
in Commission Committee and, upon many occasions of inquiry, has 
remained in Committee since. 

The Recreation and Park Commission is the overseer of the 
entire Department. Under the Commission is the General Manager and 
under him all other departments, including the Director of the San 
Francisco Maritime Museum. This Director is salaried by The City 
and, upon further investigation by members of the Grand Jury, cer- 
tain doubts arose to cause this committee to recommend that the 
General Manager look into the functions of this museum. Much of 
the space of the Aquatic Park building at the Foot of Polk Street 
is used by the Museum and is rent free (estimated to be worth about 
$50,000.00 per year if rented by The City) and also the berthing of 
the Balclutha at Pier 43 is $100.00 per month to the San Francisco 
Port Authority, worth at least $1,000.00 per month plus percentage. 
The manager of the Balclutha has been in Europe since June '69 and 
the director of the Museum in Europe since September. True, they 
are involved with a ship - a ship is being ferried from London to 
San Francisco and this ship has already been presented to the 
Museum. This Committee is happy to report that the $20,000.00 per 
year subsidy given to the San Francisco Maritime Museum by C.A.O.'s 
office will no longer be given in future years. 

The Grand Jury commends the Department on the construction 
of seven and one-half miles of newly established bicycle trails, the 
summer recreation program, Senior Citizens and Tiny Tots, services 
to the handicapped, the maintenance of small parks, squares and 
particularly the Golden Gate Park and the many other divisions that 
are doing such a good job. We would also commend the San Francisco 
Zoological Gardens and concur with the charging of admission to this 
fine Zoo. The Strybing Arboretum and its Society is to be commended 
on a job well done. 



Camp Mather is a beautiful site. Grand Jury Committee 
members of the Recreation and Park Committee should be invited to 
see this popular resort area. This Committee on its own, toured 
Mather and it is recommended that drinking fountains be added and 
scattered throughout the grounds. Also a Teenage Center should be 
set up separately from the existing combination Dining Hall and 
Recreation Center that is new used by all age groups. 

The recently hired Public Relations Director for Candle- 
stick Park should offer the stadium, as was Kezar for so many years, 
to the Shriners for the annual East-West game. This traditional 
affair should once again return to San Francisco, It was noted that 
the new director was not hired through Civil Service and that in 
addition, his salary of $24,000.00 per year has a $1,000.00 a month 
expense account attached to it. 

The proposal for the formation of a Park Police Patrol 
with marked cars and two-way radios does not have the support of 
this The estimated annual cost of $200,000.00 is an 
amount of money that could well be spent elsewhere. The San 
Francisco Police Department along with its Mounted Patrol does a 
good job. If a better job is to be done, then the Police will 
answer the call. 

It has been requested that a study in the estimated amount 
of $93*000.00 be made to the Department on ways of cutting 
cost in park maintenance with improved work methods and to suggest 
a comprehensive plan of action. The Lew General Manager was hired 
by the Commission after a Nationwide search for a man with the best 
qualifications for the job. The Committee feels that it is incum- 
bent on the new manager to do the job without the spending of large 
sums of money to have other outsiders study the situation and come 
up with advice. The Grand Jury is against the request for study. 

John J. Casey 
John P. Cordoni 

Eugene R. Erigero, Chairman 



Our Committee is most thankful to Mayor Joseph L. Alioto 
for maintaining an open door policy throughout the year to all 
Grand Jury Committees. He has been gracious and most generous with 
his time even though his schedule is a demanding one. 

We believe that the Mayor's leadership is aggressive, and 
that he is sincere in his attempts to solve the many problems that 
arise daily within our City. 

We, as residents and taxpayers of San Francisco, are 
justifiable proud of our City as its beauty and character are highly 
regarded throughout the world. However, as residents, we are con- 
cerned for the safety of our citizens on the streets and, in many 
cases, within their own homes. As taxpayers, we are appalled at 
the continuous spiraling rate of tax increases. 


We quote the Mayor's statement in the beginning of his 
term of office. "One of the great once-in-a-lifetime opportunities 
for San Francisco to direct her destiny, will be the transfer of the 
Port from State to City Control." This is now an accomplishment. 
W e believe that the beginning financial problems will be ameliorated 
in the far-sighted programs that will bring about millions of dollars 
in returns to San Francisco. We note with encouragement, the 
attraction to our waterfront of the Rockefeller, Dillingham, 
Oceanic Properties, U. S. Steel, and Ford Companies, and are pleased 
that the first expansion agreement for 100 million dollars is already 
signed. This signing, and an estimated 3 million dollars in tax 
returns, should show 15/ on a tax change. 


Twenty five permits were issued for major buildings 
totalling more than 100 million dollars. Three of the firms that 
are now establishing downtown headquarters are Transamerica Corp., 
Pacific Insurance Co., and West Coast Life Inaurance Co. Also, 
seven major first class hotels are being enlarged or built. We 
trust this will provide additional tax relief for San Francisco 
Home Owners. 


We agree with the Mayor that Alcatraz does lure the imag- 
ination and should score many proposals for its future. However, 
the Grand Jury believes it would not be a wise investment for the 

- 9 4- 

MAYOR (Continued) 
taxpayers of San Francisco. 


In I969, Mayor Alioto put into effect fiscal controls over 
what was to be the first full budget drawn up under his administra- 
tion. He stater) that it woald be a radical departure from past 
practices. We quote from his message: "I believe this orderly 
analysis will enable almost all of our departments to cut their 
budgets by 5$. If they do not, I shall not hesitate to achieve 
this result by scientific and discriminating methods, if possible; 
by any method, if necessary." 

We believe in the Mayor's sincerity and his good intent- 
ions. However, tax reductions and curtailment of inflation are 
almost impossible tasks for Governments, States, Cities, and above 
all the sincere Mayors. We are knowledgeable that the above quote 
merely licensed various City Departments to add an additional per- 
centage to their individual budgets, and this was not the Mayor's 
aim. Although this year's budget was reduced from $606,409,789.00 
to $583,55^,543,00, it still remains 80 million dollars higher 
than last year's budget. M'^ny of our Grand Jury Committees could 
very easily, as a result of their past year's investigations, show 
a 5# pad in each department's budget that still reflects in the 
80 million dollar increase. 

We recommend that the existing Business Tax. be investigat- 
ed to see if San Francisco is losing industry as a result of such a 
tax. Wow that we have a year's experience with this tax program, 
we should check the cost of operating and policing this program to 
determine whether or not it is practical and should be continued. 


We recommend the establishment of a Director of Budget 
who would do nothing but investigate, throughout the year, various 
departmental problems with reference to thiir anticipated budget 
requests. This recommendation is no reflection on the capability 
of Mr. John Mootz, the Mayor's Budget Analyst. He could not 
possibly do all that is required to establish a realistic approach 
to any budget. He presently is under-staffed with the loss of 
assistants who have moved on to other positions in Civil Service. 

We suggest that the Mayor consider the reorganization of 
his Budget Department or even consider bringing in an outside firm 
to assist in the analysis of City departmental budgets prior to 
their submission for consideration. We would recommend that the 


MAYOR (Continued) 

Board of Supervisors avail themselves of the services of this new 


We believe that we have a very fine Police Department. 
We recommend that the number of policemen on the force be brought 
up to standard proportions according to population, a practice 
that is followed in many cities in the United States. 

We compliment the Mayor in his strong stand against 
disruptive groups and we feel assured that he will attempt to keep 
San Francisco free from any such organizations. 


Our City has more than its share of pornography, drugs, 
and establishments that are breeding grounds for crime and 
corruption. We submit to the Mayor for his consideration that he 
call upon all departments of the city to use all their authority 
in combatting these undesirable elements. 


We compliment the Mayor for his strides in diminishing 
considerably, racial tensions. His deep concern for minorities 
and his accomplishments for their benefit are in keeping with the 
true cosmopolitan spirit that San Francisco is so famous for. We 
know that the Mayor is mindful of the many problems, both economic 
and educational, that are growing within the entire community. We 
trust that programs will be created that will consider all equally , 
regardless of race, color, or creed. 

In conclusion, San Francisco is the greatest city in the 
world and its people can be proud of its prominence both nationally 
and internationally. 

Norbert Cronin 

Nancy B. Knickerbocker 

Nicholas J. Klunis, Chairman 



The committee visited the libraries and talked to John F. 
Anderson, City Librarian, and Harold D. Martelle, his assistant. 
Ed Callanan, past president and a member of the Library Commission 
was also present. 

The signing of a contract with Arthur D. Little Company 
to study public library services as they relate to the need of a 
new Main Library is a commendable step taken by the Library Com- 
mission. Financed by a $125^000 planning advance by the Department 
of Housing and Urban Development, the feasibility study will take a 
comprehensive look at library needs in San Francisco to the year 
2000 and yet answer some immediate questions regarding size, loca- 
tion, and financing of a new Main Library. Of importance will be 
recommendations on the use of the present building, constructed in 
1917 and long considered inadequate for the library program. 

The Library completed its branch building program with 
the dedication of the Anna E. Waden Branch on July 12, 1969. Located 
on Third Street at Revere, it was a gift from the estate of a former 
City employee. Costing a total of $350,000, it has received much 
attention not only for its attractive design and furnishings, but 
for its community oriented program. A permanent expression of this 
involvement is seen in some fifty blocks of concrete on the side- 
walks where school children competed to have their art, poetry, and 
vocal expression recorded. 

The Library continues its drive to have more involvement 
with community groups and is experimenting in various neighborhoods 
with library use of paperback books and other media. 

The printed catalogs resulting from the Library's new 
automated periodicals control system has gained nationwide atten- 
tion as the first public library to install successfully such a 
system. With this success the Library is seeking to apply EDP 
(electronic data processing) to its ordering and cataloging of 
books, a complicated process that can benefit from EDP applications. 
We urge the City to provide funding for this operation which holds 
so much promise. 

The Bay Area Reference Center is in its third year of 
experimental operation, entirely funded by federal money through 
the State Library. This reference service has benefited San Fran- 
cisco as well as seven North Bay counties through the use of elec- 
tronic transmission devices. It has served as a demonstration of 
the ability of the San Francisco Public Library to serve as a 



regional headquarters for research information. The committee hopes 
that this project will continue and that the City will take steps 
necessary to insure that the Library will qualify for status as the 
regional center. 

Recently, the Library Commission decided to reduce hours 
of service at the twenty- seven branch libraries. This step was taken 
with much reluctance in the face of the inability of the library 
staff to maintain standards of service. The Library has long sought 
major relief for its shortage of staff. San Francisco operates more 
branches and has significantly less personnel per capita than com- 
parable cities. 

It is evident that increased attention must be given to 
obtaining additional staff plus book and equipment funds if the 
Library is to provide the services needed in San Francisco. The 
library system has been under rehabilitation for the past ten years, 
but progress has been slowed during the past two years due to 
budget restrictions. 

The Committee feels that the library program needs adequate 
support to reach first-rate status. As in previous reports, we urge 
that the City give more help to the library's personnel and budget 

Mrs. Marie A. Bruce 
Frank J. Smith 

Joseph M. Hannan, Chairman 



The Art Commission was instituted by a 1932 City Charter 
Provision and is made up of ten (10) members - three laymen, one 
artist-painter, one artist sculptor, one musician, one literateur, 
two architects and one landscape architect. The Commission members 
are dedicated citizens serving without compensation under Mr. Martin 
Snipper, Executive Secretary. 


The Commission together with the Chairman of the Boards 
or Commissions of the Public Library, Recreation and Park, City 
Planning, de Young Museum, and the Legion of Honor have the right 
to approve or disapprove the architectural design of any city 
structure and the design of private structures emerging on city prop- 
erty, but only as far as esthetic design is concerned. 

The Jury commends President Harold Zellerbach and his 
Commissioners who give of their time and efforts in the beautifica- 
tion and advancement of the cultural life of the City of San 

David Morris 

Mrs. Marie A. Bruce 

John J. Casey, Chairman 



The 1969 Grand Jury Committee visited the War Memorial 
and talked with Mr. Joseph Allen, Managing Director. 

Good progress is being made on the reconstruction and 
improvement of the Opera House, but the 2700 seat Concert Hall to 
be built on the property west of Franklin Street has not, as yet, 
been started. This proposed project is in the Redevelopment Area 
and work should be expedited. 

It is recommended that the Veterans Building Auditorium 
be renovated, painted, and brought up-to-date as, at the present 
time, it is in a run-down condition. 

Mrs. Marie A. Bruce 
Frank J. Smith 

Joseph M. Hannan, Chairman 



During the past year, the Education Committee of the Grand 
Jury has visited many schools, talked with Dr. Robert Jenkins, Super- 
intendent of Schools, and several members of the Board of Education. 
We made contact with as many principals, deans, teachers and coun- 
selors as possible. All seem dedicated to their profession and aware 
of the new and vital problems facing our schools in the upset urban 
situation which confronts us today. All seem anxious to improve the 
quality of education but confess, and indeed stress, that the problem 
of discipline eroded by the narcotics situation is requiring unwar- 
ranted time and effort which might better be spent improving the aca- 
demic standards. 

The operating budget of the San Francisco School District 
for this year has increased $18,436,000 over the same period of 
1968-69. This increase is partially due to the hiring of 300 teachers 
per year as part of the three-year program for an additional 900 new 

The addition of 8l prefabricated classrooms has also added 
to the cost. There are 4l of these classrooms in use, with the 
balance being ready for use by the end of 1969 . The rental on these 
classrooms is $2,500 per month. This, however, is less expensive than 
new buildings and it is to be hoped that the delays and disputes which 
have made the installation of these classrooms difficult will be ended 

The cost of educating a student per year has risen $221.70 
in the period of the last five years, with the biggest increase being 
in the year 1967-68 of $73.59- The average annual cost to educate a 
student is $725.44. 


The Board of Education reviews the final reports of all 
student funds in July of each year. These reports are filed at the 
conclusion of the school year, and the accountants for the Board of 
Education discuss them with the officer- in-charge of these funds in 
each school. They have found all to be in order, with the exception 
of one school, at which proper action will be taken at the conclusion 
of their findings. 

We feel that with the increased operational cost each year, 
thereby increasing local taxes, it will make it most difficult to 
convince the voters to be receptive to the next sorely needed bond 
issue. We, therefore, recommend a realistic review of budget priori- 
ties which might eliminate some outdated program to make way for new. 



We also suggest consideration of clerical help in some cases instead 
of professional. 

At present, the Board of Education remains appointive with 
seven members serving five year terms. However, on November 4th of 
this year, the public has evidenced a desire for an elective board. 

We recommend that the Board of Supervisors, who must imple- 
ment this decision, make every possible effort to permit a minimum of 
political influence to infiltrate whatever plan is adopted. We feel 
that there is great danger in this area and urge that public meetings 
be held for discussion of this matter and the most careful planning 
be done to prevent what could be a catastrophe for our school system. 


The present board is committed to a plan for quality- 
equality education which would establish new school complexes for the 
Fall term of 1970. To achieve successful implementation of this plan, 
the Grand Jury recommends the use of every possible means, such as 
public meetings and media, to acquaint the community with the new 
system. The Grand Jury fully realizes the importance of social and 
racial adjustments and the serious need for them and urges that ad- 
vances be made in these areas. We also recommend strongly that the 
goals of excellence in education be stressed. We are upset at the 
evidence of a lack of quality education shown in the scores of the 
reading and achievement tests. 

We have been impressed by the many innovative attempts bein^ 
made to meet special problems arising as a result of today's social 
ills. One of these attempts - the bi-lingual education program - is 
being very well handled. We urge that it be expanded and that the 
end goal be one where each child can communicate and be productive in 
an English-speaking community without loss of pride in his own in- 
heritance. We also recommend expansion of the reading clinics, parent 
teacher-pupil communication program. 


The Committee visited such schools as Samuel Gorapers, Op- 
portunity High and others where new programs are being tried. We fee] 
that a sincere effort is being made to cope with the serious problems 
arising as a result of the cultural crisis of today but again, we 
urge that mastering basic skills be the primary goal. In the case of 
Opportunity High School, we recommend that its trial period be con- 
tinued but that a careful look be taken at what it is accomplishing 
to make productive citizens. Discipline should be exercised by the 
principal over the faculty both forcefully and skillfully. 

As we stated in our opening paragraph, the problem of dis- 
cipline in the school is making academic advancement difficult. We 



also recognize the fact that the narcotic situation is making the 
entire situation far more serious and unmanageable than in the past. 
As of October I969, 638 juveniles had been arrested in San Francisco 
on narcotic charges - an increase of 69$ over 1968. It is expected 
that another 120 will be arrested this year. 

The Grand Jury recommended, in the Spring, that a special 
Health & Narcotics Officer be appointed. This was done. A meeting 
was arranged by the Grand Jury between Dr. Jenkins and Lt. Currie, 
Chief of the Narcotics Bureau of the San Francisco Police Department. 

The Board of Education, Police Department and Health Depart- 
ment are working together on this problem. Their plans for teacher 
and student education are thoughtful and constructive. We recommend 
that this program be made mandatory in all schools, not to be at the 
discretion of the principal. We also respectfully suggest that 
parochial and private schools be encouraged to develop similar pro- 
grams (see Narcotics Report). We cannot emphasize too strongly the 
need for immediate and unending attention to this drug problem. 


There are, of course, other facts to discipline. The 
District has issued a very good handbook on the subject and we urge 
that it be carefully followed. We recommend particularly, that 
principals and deans be given the priority to expedite their jobs. 
We also recommend that all possible means be used to keep unauthori- 
zed persons away from the schools. 

There are ample laws on the books to prevent unauthorized 
personnel on the campuses at schools, allowing for expulsion and 
suspension. We urge the local administrators to avail themselves of 
these laws when necessary and certainly to become acquainted with 


We feel that counseling is an increasingly important job 
and recommend that the counseling staff in the Department of Educa- 
tion be expanded and that great care be taken in choosing people who 
will take a realistic and practical approach to their jobs. We also 
urge that principals be given some say in the choice of their coun- 
selors in the schools and that steps be taken to initiate an "in- 
service training course" which would assist qualified advisors to 
obtain their Counseling Certificate while on the job. 


We also recommend that counselors make a serious effort to 
identify the student's actual ability early in his school career and 
direct him toward practical courses which will lead to college or 



prepare him for the working world upon High School Graduation. 


For the benefit of better administration, we recommend a 
clear-cut program be initiated for teacher evaluation. 


In accordance with the recommendations of the 1968 Grand 
Jury, we again recommend that the Adult Education Program be care- 
fully reviewed by the Board of Education and that thought be given 
to charging, on a cost basis, for all but communication skill courses 
and citizenship classes. 


We recommend that sex education be started at the Junior 
High level. We also feel that, at this time, there are difficulties 
in obtaining qualified teachers for this subject to teach the lower 
grades in a manner which is acceptable to all. 


We recommend that the computer system of reporting grades 
to parents be dropped and that teacher-parent relationship be 
restored. The report cards are so long in getting to parents that 
it is difficult for them to assess what the students are doing and 
help to correct a given situation. We recommend that June report 
cards be issued in time for parents to make inquiries before teachers 
are gone for the summer. 


We recommend that the two teacher organizing groups 
earnestly endeavor to settle their differences and consider the 
welfare and progress of the students. 

John J. Enright 

Nicholas J. Klunis 

Mrs. Nancy B. Knickerbocker, 



If the budget of the Department of Social Services of the 
City and County of San Francisco was viewed only in its relationship 
to the budget of the City and County of San Francisco itself, its 
hugeness would be immediately clear; that is, approximately 20$ or 
nearing $100,000,000 to the $500,000,000 of the City proper. Of this 
amount, approximately 75$ comes from Federal and State subsidies 
(still paid for, however, by the taxpayers) and 25$ from the City 

Obviously, the budget of the Department of Social Services 
has continued to grow at a galloping clip. Whereas there are 1,210 
permanent positions and a total budget of approximately $80,000,000 
for the year 1968-1969, the proposal made by the Department of Social 
Services for the year 1969-I97O was based on 1,730 permanent posi- 
tions and a budget of $108,000,000. The final number of positions 
approved was 1,293 with a budget of over $88,000,000. 

This Grand Jury feels that the Department should look upon 
positions and money more realistically and that the resulting budget 
request should not be made with an eye to a gainful compromise. As 
Grand Juries have in the past, we certainly recommend housing this 
sprawling department under one roof. 

It is regrettable that the entire operation is not central- 
ized physically and we certainly recommend that the desired location 
in the Otis - Mission Street areas be realized immediately. Paren- 
thetically, the Grand Jury deplores the need for the creation of a 
non-profit corporation namely, the Social Service Corporation, to 
raise the money for this building, recognizing it to be an obvious 
subterfuge. Failing this, certainly, the present structures should 
be improved. In addition the Grand Jury recommends improvement in 
the cleanliness of these buildings. 

The third recommendation, in order, of the Grand Jury is 
that the work of the Civil Service Commission be geared to the needs 
of the Department of Social Services. The Grand Jury learns that the 
management of the Department of Social Services feels that limited 
tenure is the "bane of our existence," that examinations - both 
regular and promotional - are, in some instances, years overdue, that 
according to one member of the Commission, Civil Service is "not 
concerned enough with out staff and our conditions." It is staggering 
to realize that factually, the yearly turnover of personnel in the 
Social Services Department is 33-1/3$. Efforts should be made 
promptly to reduce this percentage. 

The Grand Jury encourages the proposed transfer of 



dependent and neglected children from the Youth Guidance Center to 
private agencies. We recognize that the Department of Social Ser- 
vices will need to employ approximately 90 people where 21 are now 
employed and that the cost of sheltering these children will be ap- 
proximately 2856 greater. Whereas the salary cost will not be the 
same, the net result will be approximately the same because 75# of 
this cost will then be funded by the Federal and State governments. 
Although, as noted, this will still be taxpayers money, the human re- 
sults from financing this project should be well worth it. The Grand 
Jury feels that contracting with the private agencies is a better 
solution to this problem than the building of still another building 
to house these children. 

This Committee has investigaged complaints that have been 
presented to the effect that the adoption procedures of the Social 
Service Department were not in keeping with good practices and that 
they were lacking in humane, social, financial and religious consid- 
erations. It is our findings as a Committee that the adoptions were 
in accord with the approved rules and regulations guiding this agency 
in matters concerning adoption of children. 

If budgets cuts are to be made, the Grand Jury does recom- 
mend these cuts in the operational p rocedures of the Department it- 
self, the budget of the senior citizens and children should be cut 

Criticism is made of the condition of the 40 cars provided 
by the City for the use of this Department. They should be kept in 
better repair. 

It is incumbent upon the Grand Jury to single out for 
thanks Mrs. John H. Douglas, Commissioner, for her vigorous activi- 
ties on the Commission and for her presence at every meeting with the 
Committee of the Grand Jury. 

Norbert Cronin 

Mrs. Nancy B. Knickerbocker 
Mrs. Marie A. Bruce, Chairman 

• 106- 


The San Francisco City and County Employees Retirement 
Fund was created in 1922. At the present time, there are approxi- 
mately 2S,000 employees covered and $1,250,000 a month is being 
paid to 6,800 retirees. 

There is over $430,000,000 in the fund, with a cash 
monthly flow of $2,000,000. 

The contribution by the employee is between 5$ and 6$, 
which represents approximately $12,000,000 a year and fhe contri- 
bution by the City is 12$, which represents $24,000,000 annually. 
Originally, these amounts were matched equally, but the benefits 
have been liberalized in the meantime and since these new benefits 
have never been funded before, the contribution by the City had to 
be increased. The average yield is >41/2?o. The Retirement Board 
is now investing in common stocks. Their new bond investments are 
yielding 8-8 l/h%. 

The increase of $11,000,000 in the fund in 1969 (55^ of 
the tax rate) is the obligation of the City. 

The rule under which the Retirement Board operates, as 
far as investment is concerned, is that it is permitted to "invest 
in anything that is legal for an insurance company in California. " 
The only profit to the City employees is the interest gained which 
thereby decreases their contributions. Regardless cf results, the 
City is obligated to pay the retirement amount agreed upon, no 
matter the condition of the Retirement Fund. There is a 2% escala- 
tion clause for retirement for the annual cost of living. 

The 1967 Grand Jury report recommended an Assistant 
Investment Counselor because the fund was growing so rapidly and, 
at this writing, the General Manager of the Retirement Board, Dan 
Mattrocce, reports that "during the past k2 months, the Retirement 
System has been without a permanent Chief of Investments for 
approximately 30 months and without an Assistant Chief of Invest- 
ments for approximately 13 months." During the months between 
October i960 and February 1969, the $7,500,000 cash flow was not 
even invested. 

The primary blame for this unbelievable situation is the 
failure of the Civil Service Commission to produce an acceptable 

In addition, a completed C.P.A. audit of the Retirement 


Fund has not been made for two years. 

The Retirement System is "18 montns behind in its work" 
and this condition has existed for the past 4 years. Should an 
employee retire or die, the work involved must be done manually and 
not electronically in order to get it done immediately. 

City employees have not received a statement of their 
individual positions in the Retirement Fund for 2 years. 

Too many of the problems affecting the Retirement System 
are blamed on the failure of the Electronic Data Processing opera- 
tion to function efficiently. The General Manager wrote a letter 
to the Mayor on July 3, 19&9 expressing great concern and it would 
appear, at this time, that no relief is in sight. 

Criticism has been leveled from many quarters at the 
"soft" policy of the Board in the handling of disability cases 
before them. The Grand Jury believes that with the new composi- 
tion of the Board at this time, a more realistic attitude will be 

During the year 1969, the Grand Jury noted an unnecessary 
and harmful discord between the Board and the staff. The Grand 
Jury is happy to report that it has been notified that this discord 
has been eliminated. 

There are 57 employees working in the Retirement System 
and there are 7 members of the Commission -- 3 appointed by the 
Mayor, 3 appointed by the City employee groups and 1 appointed 
"ex officio" by the Board of Supervisors, namely, its President. 
The Grand Jury recommends that the Mayor appoint only one member 
to the Retirement Board and that the Board of Supervisors appoints 

The 1968 Committee of the Grand Jury recommended to the 
1969 Committee that a review of the Physical Therapy Contract be 
made. This Committee recommends that the present closed panel be 
abolished and that the choice of a Physical Therapist be free. 

It is certainly recommended that the faults reported be 
corrected immediately and that this huge fund be protected jealously, 

John P. Cordoni 

Joseph C. Tarantino 

Norbert Cronin, Chairman 


William H. Millard heads this department. The Committee 
has visited Mr. Millard's Department on several occasions during 1969. 
Important to mention also were visits to the Departments of the Con- 
troller and Assessor whose departments demonstrate utilization of the 
services of the E.D.P. Department. 

The Committee viewed concrete evidence of utilization of 
Data Processing. Unfortunately we were unable to evaluate the econo- 
mics involved. An in-depth study is required to determine utilization, 
priority and economics. 

We are aware of criticism of the E.D.P. system by certain 
departments and by representatives of the San Francisco City and 
County employees. Mr. John Jeffery, Executive Secretary of Local 400 
(S.E.I.U.) AFL-CIO, wrote Mr. N. B. Cooper s Controller, June 12, 1969 
relating several areas of dissatisfaction. The dissatisfaction in- 
volves : 

1. The 26 Pay Day Program which the machine operation 
has failed to put into effect. 

2. The notices of license renewals of plumbers and electri- 
cians by the Central Permit Bureau - which should have 
been out and mailed by the end of June and have never 
been prepared by the machine. 

3. The delay in machine compilation of employees and city 
retirement contributions which should be current as of 
June 1969 and will not be available for several months. 

4. The accurate and proper deductions for retired persons 
in the Health Service System. 

5. Criticism of the expenditures of the E.D.P. system in 
comparison to accomplishment. 

It has been brought to our attention, further, that the 
E.D.P. processes used in part by the Tax Collector's Office is contin- 
gent upon the amount of attention that can be given by the E.D.P. 
Staff to the Tax Office matters, (Tax Collector Annual Report 1967 - 
1968). No progress in development of a workable E.D.P. process is 
Indicated after a lapse of two years. 



In order to re] ate progress since the F . D.P. program sche- 
dule was reported in the 1967 Grand Jury Report , we have attached an 
updated schedule of October, 1969 and included it as part of this 
report . 

Analysis of Attachment "A" discloses: 



The team of System Analysts and Programmers from the 
Federal System Division, I.B.M. Corporation working with 
personnel of the City and County E.D.P. staff have com- 
pleted the System Design and are ready for implementa- 

Data Files are a significant part of the total I.P.S.S. 
system and intensive effort is being made to complete 
the development of these files. Concurrently Civil 
Service aspects of the processing of new entries to 
these files are already in operation. The Retired pay- 
rolls were to be converted and the Health Service System 
was to be converted by November 1 5 1969. Neither pro- 
ject has been completed. Major efforts were underway to 
• test the operation of the entire system prior to a City 
wide system test starting November 1, 1969. Concurrent- 
ly, Departmental procedures are being revised anticipat- 
ing the implementation date of January 1, 1970. 


Design and implement Eusiness Tax Collection System. 

Continued system development. 

Tele-processing tax collection system. 

Funds Provided for System study and implementation this 

fiscal year . 

Unsecured - Business processed through Tele-processing. 
Funds provided for System study and implementation this 
fiscal year. 

Controller tax collection system delinquent roll on Tele- 
To be implemented this fiscal year. 



It is assumed that the Department Heads of County Government 
are advised in detail of E.D.P. progress, if they are not, they should 


In order for the E.D.P. Program to be fully effective, inter- 
departmental cooperation and support is vital. E.D.P. is comprised of 
people, computers and machines which must work supportively . Without 
support^ Data Processing goals will not be achieved. 

V/e believe the Department Heads and the E.D.P. Force should 
review projects and establish a priority system that is acceptable to 
the departments and within reasonable cost objectives. Further, that 
personnel affected by E.D.P. changes should be apprised of these 
changes and made aware of its goals and objectives. Lastly, we be- 
lieve an independent survey team should investigate and assess the 
effectiveness of the present E.D.P. Programs. They should also deter- 
mine their adequacy and quality. The computer output should be exam- 
ined as to quality and speed of issuance. The entire E.D.P. Program 
bears investigation to determine its effectiveness and cost to the 
City and County of San Francisco. 

Charles G. Landresse 

I. P. Sicotte, Jr. 

George C. Denend 



Attachment "A 

3rd Qtr,1967 


Visual Display Terminal Inquiry - Initial terminal 
installation at Central Index (585 Bush Street) with 
four terminals having inquiry access to existing 
E.D.P. information 

Visual display terminal inquiries are available at all 
the Welfare Buildings, case history and medical infor- 
mations are available for current and discontinued 
cases excepting general assistance cases. 

PROPOSED TASK Complete Processing System Design. 

4th qtr. 1967 
proposed task 

current status 

propcsed task 

current status 

propcsed task 
current status 

1ST Qtr I968 


Visual Display Terminal Update (parallel)-Additional 
terminals placed at 585 Bush Street Office at Tabulat- 
ing Keypunch Section for parallel updating. 

Terminal update is in the testing stages, all existing 
retrieval programs are being revised to meet the new 
mask and file requirements. 

Central Terminal Updating - Discontinue keypunching 
and maintain information fro... Tabulating Section 

Terminal update is in the testing stages, all existing 
retrieval programs are being revised to meet the new 
mask and file requirements. 

Concurrent with terminal installation program informa- 
tion processing system 

Terminal update is in the testing stages, all existing 
retrieval programs are being revised to meet the new 
mask and file requirements. 

Decentralized terminal installation at other Social 
Services Offices. 

16 Terminals at 150 Otis Street Office 
16 Terminals at 965 Mission Street Office 

8 Terminals at 1680 Mission Street Office 
16 Terminals at 136O Mission Street Office. 


Attachment "A" 

CURRENT STATUS Terminal installations at Social Services Offices 

8 Terminals at 150 Otis Street 

9 Terminal-Printers at 965 Mission Street 
24 Terminals at 965 Mission Street 

6 Terminals at 1680 Mission Street 
8 Terminals at 1360 Mission Street. 

PROPOSED TASK Terminal inquiry from all Social Service Offices. 

CURRENT STATUS Training classes were given to the Social Service 

Staff on useage of terminal inquiries in the months 
of August and September 1969. 

PROPOSED TASK Pilot test of inquiry and update by one Social Service 

CURRENT STATUS Pilot test by one Social Service Unit is being delay- 
ed pending TP update programs. 

PROPOSED TASK Start implementation of processing systems for final 
conversion from 1410 Computer System 

CURRENT STATUS Conversion from 1410 system to 360 is going into the 
final stages. 

2nd Qtr.1960 

PROPOSED TASK Decentralized terminal update by each Social Service 

CURRENT STATUS Terminal update is delayed pending TP update programs 

PROPOSED TASK Complete conversion of 1410 and tabulating processing 
systems . 

1. Recipient payroll 

2. Renewal control 

3. Food Certificate production 

4. State reporting 

CURRENT STATUS Complete conversion of 1410 and tabulating processing 

CURRENT STATUS 1. Recipient payroll is in final testing stages 

2. Renewal control is completed 

3. Food Certificate production is in testing stages 

4. State Reporting in final testing stages. 


Attachment "A' 







3rd QTR. 










Add new processing function to system 

1. Statistical reporting 

2. Face sheet system 

3. Foster home payroll 

4. Caseload inventory 

5- General assistance payroll. 

1. Statistical reporting, initial coding completed in 

2. Face sheet system pending terminal update. 

3. Foster home payroll, initial survey and proposals 
completed pending terminal update programs. 

h. Caseload inventory completed with renewal progran 

5. General assistance payroll, initial survey corns" 1 /?** 
p/leted . 

Add 2k terminals to system for increased processing 
load . 

Currently there are 5^ terminals and 9 terminal 
printers available for retrieval inquiries. 

Add additional processing functions to system 

Preliminary inquiries were made on automatic case 
budgeting for OAS and AFDC Programs. 

Add case management process to system 

Deferred . 

4th Qtr. 1967 

1st Qtr. I968 


1. Create mailing address file. 

2. Update the mailing address file through 
Tele-processing terminal 

3. Prepare unsecured field book. 

1. through 3 completed. 

1. Build cross-reference files - Volume block lot. 
Situs address, Situs - Volume block lot, 

2. Create - ownership file, secured master file. 

3. Update valuation statistics through Tele-procesS' 
ing Terminals. 

4. Prepare unsecured registers. 


Attachment "A' 


2nd Qtr. 1968 


3rd Qtr. 1968 


IN Deferred 

2. Completed 

3. To be implemented this fiscal year 

4. Completed. 

1. Build cross-reference files; To take place at 
ALPHA Index Register through terminal 

Volume block lot - Owner 
Owner - Property 

2. Prepare secured and unsecured rolls tax bills. 

1. Completed - under revision due to changes to 
ownership file 

2. Completed. 

L. Complete Tele-processing network for Assessor 
2. Prepare delinquent roll and block book and 


4th Qtr 1968 

1. Completed 

2. Completed. 




1st Qtr. 






2nd Qtr. 





1. Tele-processing tax collection system 

2. Unsecured - Business processed through Tele- 

Funds provided for system study and implement- 
ation this fiscal year. 

1. Controller tax collection system delinquent 
roll on Tele-processing. 

To be implemented this fiscal year. 

1. City Planning and Public Works sharing the 
property file. 

Yes, have utilized property information file 
for land use, realty index. 

Attachment "A 1 


3rd Qtr 1969 


4th Qtr. 1969 


Fire Department, Department of Pub]ic Health, 
Weights and Measures, Inspection and Investi- 
gation schedule will share Property File. 

Fire Department is investigation availability ' 
of funds from Federal or State grants. 

Completing integrated property information 
system for the City and County of San Francisco 

Not completed . 


ATTACHMENT A (Continued) 



Traffic Citation Processing on IBM 360/20. Includes pro- 
ducing notices,, warrants, warrant abstracts and warrant information 
for Police Information Network (PIN). 


Traffic Citation Processing will be streamlined now that 
it is accomplished by computer. 

FU TURE (Next 2 to 3 Years) 

Traffic Citation Processing should be expanded to use dis- 
play terminals with decentralized access to main citation file. 


PIN Processing is started by placing warrant information to 
magnetic tape on the 360/20. The tapes are then processed on the 
more powerful Model 360/50 computer which codes and formats for trans- 
mittal to the Pin Computer Center. 


Pin information will be expanded to include personal identi- 

FUTURE (Next 2 to 3 Years) 

Court Calendaring of both civil and criminal actions should 
be computerized and coordinated with Superior Court. 


Jury Selection is being done by Computer using the same 
system as Superior Court. 

Civil Indexing has been converted to computer processing. 



Incident and Arrest Phase 1 includes terminal access to 
basic statistical information concerning incidents and arrests. 


ATTACHMENT A (Continued) 



Incident and Arrest Phase 2 features name index, vehicle 
index and geographic coding with terminal access to individual and 
statistical information. Additional terminals will be added to the 
system with some direct updating from the terminals. 


Statistics and Data Analysis monthly state and department 
statistical reports are computer produced. Annual FBI Report and 
special requests. 


Remote Computer at Hall of Justice will produce reports 
from the City Hall Computer over telephone lines upon request from 
statistical section. 




PIN Police Information Network includes five terminals at 
the Police Department with access to a regional warrant computer file, 


CLETS California Law Enforcement terminal system will have 
direct access to Highway Patrol computer files and Department of 
Motor Vehicles. Terminals will be located in several sections of 
the Department including Communications, Research and Planning, etc. 





Jury Selection System is the basis for Municipal Court and 
Coroner Selection System. 


ATTACHMENT A (Continued) 



Court Calendar System will feature optical scanning of 
source documents, automatic calendars for the court with special 
reports and calendars for the District Attorney's Office and Public 
Defender with automatic disposition feedback to Police Arrest File. 


Remote Terminal Court Computer Processing System with 
calendaring schedule, cross- indexing and remote terminal data entry. 



Jury Selection System using the Superior Court computer 


Statistical Reporting to aid in office processing and 
state reporting. 



Bed Census is operational and will provide the information 
for in-patient billing. 


Hospital Information System to aid in management decisions, 
will be developed using the information generated by the previously 
developed system. 


Admission System is partially implemented. Patient identi- 
fication and number assignment is functioning. 


Admission System will continue to be implemented in logical 
stages including outpatient clinics with automatic typing of admis- 
sion forms. 


ATTACHMENT A (Continued) 

PUBLIC HEALTH (Continued) 


Outpatient Billing is functioning under a system of 
remote batch entry via terminal to a service corporation computer. 
This is a contracted service at this time. 


Outpatient Billing will be reviewed with eye to converting 
to the city computer. 


Total Billing System will combine outpatient billing com- 
bined with accounts receivable and detail billing. 


Inpatient Billing is partially computer and part manual 
using the data from the bed census system. 


In-patient billing will be more fully implemented elimina- 
ting a larger portion of the manual part of the system. 

Clinical Laboratory an IBM 1800 computer will be installed 
in January 1970. Automatic procedures will then be implemented in 
logical sequence. 


Statistical Basis Accounting System is being designed 
under contract by a consulting firm, that portion defined as 
computer automation will be programmed and added to the City's 


Detail Accounting System will in effect provide sound cost 
center analysis and give sound pricing information for billing. 





A TTACHMENT A (Continued) 


2nd Qtr. 1968 




3rd Qtr. 1968 



4th Qtr. 1968 



lst Qtr. 1969 



2nd Qtr. 1969 







Review and evaluation of existing budget 


Begin System design and specifications. 


Complete system design and specifications. 
Plan conversion with pilot project and debug. 


Create departmental worksheet and establish 
linkage to budget statistics. 
Complete experience pick-up. 

Worksheet completed, linkage not completed. 
Dependent on linkage phase completion. 

1. Complete departmental requests. 

2. Begin Mayor's and Board of Supervisors' 

1. Completed 

2. Completed 

PROPOSED TASK - 1. Complete Mayor's and Board of Supervisors" 



4th Qtr. 1967 





Conversion of files on 1410 computer 
Installation of 2260 T.P. terminals and 1053 


ATTACHMENT A (Continued) 



lst Qtr. 1968 



2nd Qtr. 1968 

printer terminal in Controller's General 
3. Orientation and instruction of terminal use 
by simulating terminal updating and de- 

1. Completed 

2. Completed 

3. Completed 

1. Add encumbrances,, payment files and create 
warrant outstanding file. 

1. System held in abeyance due to lack of disk 


1. Create linkage to budget statistics and ex- 
pense outlay. (General Ledger) 

2. Full installation and use of the system by 

3- Begin development and installation of 
department terminals. 


3rd Qtr. 1968 

1. Deferred 

2. Partial 

3. Completed 

PROPOSED TASK - 1. Continue development and installation of 

department terminals. 
2. Begin outstanding warrants reconciliation. 


4th Qtr. 1968 




Priority shifted 

Continue development and installation of 

department terminals. 

Finish outstanding warrants reconciliation. 

3. Establish repayments and refunds. 


ATTACHMENT A ( Continued ) 


CURRENT STATUS- 1. Partially implemented 

2. Priority Shifted 

3. Priority Shifted 


4th Qtr. 1967 

PROPOSED TASK - 1. Development of revenue. 

" — "~~ 2. Begin System design and specifications. 

CURRENT STATUS- Partial - General ledger identification avail- 

1st Qtr. 1968 

PROPOSED TASK - 1. Complete system design and specifications. 

~ — 2. Begin pilot project and debugging. 


2nd Qtr. 1968 



3rd Qtr. 1968 

1. Deferred 

2. Deferred 

1. Development of interface with budget system 

2. Development of interface with general ledger, 

1. Deferred 

2. Deferred 

PROFOSED TASK - 1. Continue work of 2nd quarter 
CURRENT STATUS- 1. Deferred 

4th Qtr. 1968 


1. Complete development of interface with both 
the budget and general ledger. 

2. Complete revenue reports. 

3. Review and evaluation of revenue system. 

CURRENT STATUS- 1 through 3 Deferred 


ATTACHMENT A (Continued) 


The team of System Analysts and Programmers from the 
Federal System Division, I.B.M. Corporation working with personnel 
of the City and County E.D.P. staff have completed the System Design 
and are ready for implementation. 

Data Files are a significant part of the total I.P.S.S. 
system and an intensive effort is being made to complete the develop- 
ment of these files. Concurrently, Civil Service aspects of the 
processing of new entries to these files are already in operation. 
The Retired payrolls are converted and the Health Service System 
will be converted by November 1, 1969* Major efforts are underway 
to test the operation of the entire system prior to a City-wide 
system test starting November 1, 19^9- Concurrently 3 Departmental 
procedures are being revised anticipating the implementation date 
of January 1, 1970. 


ATTACHMENT A (Continued) 


1. Design and implement Business Tax Collection system. 

2. Continued system development. 


1. Completed 

2. On- going 



1. Implement all Legislative Changes for current fiscal 
year (massive). 

a. Homeowners exemption 

b. Homeowners rebates system 

c. Business inventory reduction 


1. Completed 



1. Conversion of EDP Voter's registration procedures 
utilizing optical character recognition equipment 
which provides Registrar with full control of affi- 
davits and faster processing. 

2. Design and implement new vote count procedures using 
punch card and visual display terminals for faster 
and more accurate count. 


1. Completed 

2. Implement 3 November k, 1969 Election 


1. Convert plumbing and electrical permit processing for 
faster and more efficient handling of renewals. 

2. Design and implement programs for federally assisted 
code enforcement activities reporting. 


ATTACHMENT A (Continued) 
PUBLIC WORKS (Continued) 
REQUIRED TASK (Continued) 

3. Design and implement system for use of apartment and 
hotel inspection division to compile deficiency 
point ratings for 18,000 multi unit structures in 
San Francisco. 


1. Completed 

2. Completed 
3- Completed 



1. Design and implement system for land use survey. 

1. Phase I completed. To be updated with city planning 
field data. 



1. Conversion of appropriation ordinance card system to 
budget disk sub- system. 

2. Design and implement budget system with full data 
entry capabilities through Tele-processing terminals, 


1. To be implemented for current Budget. 

2. Implemented for current Budget. 



1. Design and implement appropriation ledger card sub- 
system requested by Controller's General Office. 

2. Modify appropriation ledger system to provide full 
year's transaction history on-line. 


1. Completed 

2. Completed 

■ 126- 

ATTACHMENT A . (Continued) 


(a) Ten MAI Tape Drives were installed in place of IBM 
Tape Drives to improve performance and at a savings to the City of 
$75.00 rental fee per drive. 

(b) One Direct Access Storage Disk Drive has been instal- 
led to provide necessary file space required for EDP users. 

(c) A Tape Cleaner is in operation. This has improved 
Tape Data input, Operator's handling time,, and computer usage. 

(d) Optical Character Reader has been installed. This 
machine has the flexibility of data gathering to the computer by 
three modes: 

1. Handwriting ( numeric) 

2. Typewritten (Alpha/num) 

3. Computer printed documents 

The flexibility of the Optical Character Reader will reduce input 
cost, insure user input involvement and increase data input to our 

(e) Selectric Typewriters (Optical Character Reader) 

are now being used to increase ease of data input, also flexibility 
of data handling. 

(f) Qofo of the conversion from Unit Record Equipment to 
our Model 20 computers has been completed. The Model 20 computers 
will give us the workflow compatibility to and from our Model 50 

(g) 35$ of EDP Operations Control Section has been estab- 
lished. We estimate the implementation and completed training of 
75$ of the total control section will be done by the end of this 
fiscal year. 

In review, savings in economy of operation will be realized 
not only in the utilization of new equipment, but in consolidation 
of various units. Recently the Police Department and the Municipal 
Courts EDP functions were consolidated under one head enabling us to 
develop a more complete utilization of these departments. Municipal 
Railway and Water Department EDP functions were combined under one 
head and in 1970 all P.U.C. EDP functions will be consolidated. 

Unit record equipment was removed from our installation in 
the Hall of Justice this year and replaced with a 360-20 computer 
system resulting in increased service and efficiency. 


ATTACHMENT A (Continued) 

E.D.P. CITY HALL (Continued) 

The installation of the 1288 Optical Page Reader will result in re- 
ducing the key punching work load. It is possible with this new 
concept to have our EDP users type or write data at its source with- 
out data reproduction. 

The currently planned and approved applications in EDP Operations 
are as follows! 

1. #(2780) Remote Job Entry. 

This has been installed at 240 Van Ness which will 
save 100 programmers time in submitting jobs to City 
Hall Computer Complex, also cutting down Programmers 
Traffic in the Computer Room, increasing higher per- 
formance from our Computer Operators. 

2. Telex Disk Drives. 

These are on order and will increase access time, 
improve performance and also at a savings in rental. 

3. Comcet (Front end computer). 

This is on order and will relieve the enormous work- 
load in data transmission to terminals giving EDP users 
faster response time which in turn customer terminal 
availability and usage will be increased. 

4. Ampex Bulk Core. 

To increase Core Memory which again will increase the 
efficiency of our computer usage in integrated transi- 
tional capability. 



m$mw) mm 









V Foreman's Letter to the Presiding Judpe. 

36 Adult Probation 

2 Agricultural Department 

39 Art Commission 

52 Assessor 

18 California Academy of Science 

70 Chief Administrative Officer (Page 112 - Minority Report) 

88 City Attorney 

57 City Planning Commission 

kl Civil Service Commission 

46 Controller 

22 Coroner 

*1 County Clerk - Recorder 

54 Data Processing 

17 De Young Museum 

90 District Attorney 

1** Disaster Corps 

45 Economic Opportunity Council 

75 Education, Department of 

14 Electricity, Department of 

1 Finance and Records, Director 


Table of Contents (continued) 

85 Fire Department 

99 Health Department 

l\H Health Service System 

65 Housing Authority 

68 Human Rights Commission 

38 Juvenile Department - Youth Guidance Center 

36 Law Library 

19 Libraries 

70 Mayor (Page 112 - Minority Report) 

51 Municipal Court 

26 Narcotics 

17 Palace of the Legion of Honor 

59 Parking Authority 

20 Permit Appeals Board 
23 Police Department 

22 Pornography 

30 Port Commission 

5 Public Administrator - Public Guardian 

87 Public Defender 

105 Public Utilities 

10 Public Works, Department of 

10 Purchasing Department 

12 Real Estate Department 

15 Recreation - Park Department 


Table of Contents (continued) 

80 Redevelopment Agency 

6 Registrar of Voters 
^3 Retirement System 
92 Sheriff 

32 Social Services Department 

3*4 Superior Court 

70 Supervisors, Board of (Page 112 - Minority Report) 

8 Tax Collector 

53 Treasurer 

19 War Memorial 

7 Weights and Measures, Sealer of. 



Stuart R. Adams 
Rudolph W. Arfsten 
Hrant J. Avakian 
Arnold Blum 
Charlton H. Buckley 
Wayne R. Burke 
Gene P. Cervelli 
William A. Flynn 


Maurice I. Goldman 
Harry E. Gray 
William P. Greene 
Gustav Knecht,Jr., 
Jack M. Lipman 
George S. Livermore 
George Sanderson 
Edison T. Uno 
William J. Welsh 

Mrs. Phoebe P. Galgiani , Secretary 

Raymond Hackett, Foreman 

Impaneled, January 19, 1970 

Discharged, January 1*1, 1971 


1970 San Francisco County Grand Jury 

Honorable Carl H. Allen 
Presiding Judge, Superior Court 
City and County of San Francisco 
San Francisco, California 

Dear Judge Allen: 

Herewith, you will find the complete reports of the 1970 Grand 
Jury as compiled by the Committees assigned to the observation of 
the various departments of the City and County of San Francisco. 

It is the opinion of the 1970 Grand Jury that strong and positive 
efforts should be made to control and curtail the escalating costs 
of administering the City and County. We do not believe that this 
is a task to be taken lightly but unless controls are found to 
check these rising costs and still not drastically reduce services, 
our City will soon find itself in serious financial difficulty. 

Many employees of the City and County have expressed the idea to 
various members of the Grand Jury that some departments could and 
perhaps should perform their charged responsibilities with fewer 
people. Census figures recently released show that San Francisco 
has been in declining figures for several years and yet the cost 
of government and services has risen noticeably. This concept if 
allowed to continue will some day prove to be an insoluble problem 
for a Mayor and Board of Supervisors. 

Evidence of this problem rests in the Social Services Department 
involving Welfare payments. At the present time the cost of 
Welfare payments in the City exceeds the cost of the Education 
Department. It is the opinion of the 1970 Grand Jury that if 
Federal and State Governments determine the manner in which pay- 
ments are to be made - not allowing the City and County to formulate 
their own methods, rules and regulations - then the State and 
Federal governments should at once be prepared to bear the total 
cost of the programs. Taxpayers should be made aware that Welfare 
payments are made to men and women who no longer are residents of 
the City and County of San Francisco. This cost should not be 
borne in any manner by the taxpayers of the City and County. 


The Committee charged with reviewing the Municipal Railway, under 
the guidance of the Public Utilities Commission, feels that a 
complete overhaul of the Municipal Railway is necessary and without 
delay. The members of the 1970 Grand Jury concur with this opinion. 
The soon to be operative Bay Area Rapid Transit System is going to 
require a well integrated and finely working system of surface 
transportation in order to reward the taxpayers of the City and 
County of San Francisco for their investment in B.A.R.T. It is 
the belief of the 1970 Grand Jury that the present Municipal Rail- 
way will need a complete overhaul and adjustment in attitude and 
philosophy to be an adequate member of the entire B.A.R.T. This 
problem is of the greatest magnitude and should have priority over 
many other Municipal problems. The Downtown business area deserves 
full and complete attention to this matter. 

After a full year of talking to and discussing administration of 
the City with various departments it is the unanimous opinion of 
the Grand Jury that a complete Charter revision is not only de- 
sirable but an absolute necessity. Either, many of the department 
heads are malingering and pointing to the City Charter as an excuse, 
or, the department executives are hiding behind the obvious faults 
of the existing Charter. Charter revision should be a demand of 
every citizen of the City and County of San Francisco. 

The 1970 Grand Jury is pleased to note the decline in the crime 
figures that so drastically affect all of the citizens and it is 
hoped that efforts by all concerned will continue the pressure to 
further reduce these statistics. The present efforts are to be 
strongly commended by all citizens of the City and County. 

Obvious faults such as exist in the Controller's office should be 
corrected and by so doing confidence can be improved among many 
skeptics concerning our City, Procedures that do not function 
should be eliminated and new and more modern methods substituted. 
The City and County of San Francisco is and should be considered a 
very large and important business organization and nothing should 
be left undone to keep the City sensitive to the needs and wants 
of every citizen, yet functioning as the most potent and efficient 
of business enterprises. 

The past year has been a most rewarding experience for each member 
of the 1970 Grand Jury and in behalf of all of the Jurors I would 
like to express our sincere thanks for the many courtesies extended 
to us. Without exception, every department has cooperated with the 
various Committees and we are all pleased to have been able to serve 
the City. I would like to particularly thank the District Attorney, 
Honorable John Jay Ferdon,and his assistant, Mr. Walter Giubbini, 
and all of the members of their staffs. The work of the criminal 
investigations has been lightened by the skill of these people. 


The entire Grand Jury wishes me to thank you for the privilege of 
working with your Court and for the many courtesies extended by all 
of the Judges of the Superior Court. Cur efforts would not have 
been possible without the assistance cf Mr. Bernard Ward, Mr. Ralph 
Sheehan, Mr. Michael Tamony and all of the Staff. 

: ;; ;::\.i: : :.-.-._-. :?i this l4th day of January, 1971. 

Raymond Haclcett, Foreman 
1970 Grand Jury for the 
City and County of San 



The Department of Finance and Records is administered by 
Mr. Virgil Elliott, Director, and is comprised of the following 
departments and offices: 

Agricultural Commissioner 

County Clerk - Recorder 

Public Administrator - Public Guardian 

Records Center 

Registrar of Voters 

Sealer of Weights and Measures 

Tax Collector 

The Committee's investigation of the above departments and 
offices attest to the fact that each is ably administered. Depart- 
ment heads, generally, are seeking to improve their services to the 
general public. Some feel that because of added responsibilities, 
they need more people on their staff. We agree that in some depart- 
ments more help is needed. 

Listed below is a comparison of the number of people 
permanently employed, during the last decade, in the various depart- 
ments that comprise Finance and Records: 

1960-61 1967-68 1968-69 1969-70 

Agriculture, County Depart- 
ment of 

County Clerk 

Farmers' Market 

Public Administrator 

Public Guardian 


Records Center 

Registrar of Voters 

Sealer of Weights and Measures 

Tax Collector 











































1960-61 1967-68 1968-69 1969-70 

Director of Finance and 

Records including Staff 2 3 3 3 

TOTAL 213 223 278 279 

Generally, tne number of employees has remained static. 
As additional Superior Court Judges are appointed, State law re- 
quires that a Court Clerk, be appointed. This explains the increase 
in the County Clerk's office. The Public Guardian office has in- 
creased the number of employees appreciably due to the increased 
legal aspects of each case. It is significant that the revenues 
accrued from this department exceed the cost of administration. On 
October 1, 1963, the Tax Collector's office was given the added 
function of the colletion of the Business Tax. To administer and 
collect this tax, forty-three employees were added to the staff. 

The increase in number of employees has resulted in more 
efficient services rendered by the above listed Departments. 


Under the supervision of the California State Director of 
Agriculture, Mr. Raymond L. Bozzini, Agricultural Commissioner, has 
the general duties to promote and benefit the grower and consumer 
by enforcing the provisions of the California Agricultural Code. 

This department, through scientific spot inspections, en- 
forces the Code in the wholesale and retail establishments dealing 
with the sale of produce, eggs, nuts, honey, poultry and rabbit 
meats. The assignment of this department's staff, numbering nine 
people, to their varied functions is done in an efficient manner, 
utilizing their man hours over a varied spectrum of inspection func- 

At present date this department must relocate as their 
rent-free premises at the Southeast Sewage Treatment Plant will no 
longer be available. They would like to relocate with the Sealer of 
Weights and Measures because functions of the two departments are 

The Committee concurs that the Director of Real Estate 
should do its utmost to find suitable quarters for these depart- 
ments as requested by Mr. Virgil L. Elliott, Director of Finance 



and Records, through the Chief Administrative Officer. 

The principal function of the San Francisco County Depart- 
ment of Agriculture is totally related to the enforcement of all 
State laws, rules, and regulations pertaining to agriculture. The 
Committee recommends, therefore, that the Chief Administrative Of- 
ficer approach the State of California Director of Agriculture for 
an increase in their share of the costs of this department. 

FARMERS' MARKET ; This facility, operated under the direc- 
tion of Mr. F. J. O'Connell, Market Manager, was first opened as an 
outlet for surplus and distressed crops from neighboring counties. 
Only farm products produced by small growers are sold. No produce 
purchased at commission markets can be retailed through this outlet. 

Sufficient fees are charged and the Farmers' Market has 
more than paid its operating costs. In addition, capital improve- 
ments have been paid and the City and County has realized, in excess 
of cost of land and capital improvements, the sum of about 

The Committee recommends that the excess be expended for 
proper maintenance of the Farmers' Market, rather than have such 
maintenance come through the Department of Public Works. The Com- 
mittee concurs in the projects as requested by the Market Manager 
as listed in Director of Finance and Records Annual Report 19o9- 

"1. The interior of the Administration Building needs 
painting to maintain the appearance of the office, 
conference room, supply room and rest rooms. Paint- 
ing will also prevent deterioration of the walls 
and woodwork. 

2. Post holes and the use of removable posts at each 
end of the main drive would aid in the safe control 
of traffic when it is expedient to close the main 
drive to traffic. These posts would also safely 
prevent motorists from using the main drive when the 
Market is closed for business. 

3. ... The cyclone fence which prevents people from 
entering the Market at other than proper entrances, 
is damaged. The cyclone fence and the fence posts 
need repair to keep the Market safe and to ef- 
ficiently control the entrance and exit of people 
who use the Market. 

4. Traffic striping is urgently needed: The existing 
crosswalk clearance line and parking lane striping 


throughout the Market is worn so that it is 
partly obliterated. This condition is leading 
to haphazard parking and the resultant loss of 
traffic control, and is a hazard to both motorists 
and pedestrians. 

5. ... Several wooden partitions between the stalls 
are rotting at their base and should be replaced 
to . . . prevent injury as their present condition 
is dangerous. 

6. Painting of stalls: Wooden partitions between the 
stalls and all wooden surfaces at the stall spaces 
need painting. 

7. Security when Market is closed: Floodlights on 
lighting poles at each end of the Market would 
aid in keeping the Market secure at night. Uni- 
form backing to enclose rear of each stall would 
aid in preventing pilferage when the Market is 


This dual department, under Mr. Martin Mongan, County 
Clerk, first serves as the ministerial arm and office of record of 
the Superior Court of the City and County of San Francisco. This 
department is operated with a staff of 65 employees who service 2h 
Superior Court Judges. This compares with a staff of 59 employees 
in i960 who serviced 21 Superior Court Judges. 

While this department collects fees to offset their ex- 
penses, the fees only offset about h^% of their costs. During the 
fiscal year 1969-70 the revenue from fees collected totalled about 
$300,000.00; the expenses for this same period approximated 

The State of California Judiciary sets the fees to be 
collected for services rendered. The Committee recommends that 
our lobbyist in Sacra mento be requested to do his utmost to remedy 
this situation. The legal fees should be "Increased so that the"" 
Superior Court expenses will not have to be subsidized by the 

Two new Superior Court Judges will be appointed to the City 


and County of San Francisco in the near future. Because of this 
the County Clerk must appoint two additional Court Clerks and 
should have two additional office clerks to service these Courts. 

The Committee recommends that this personnel be authorized 
and allowed in budget request, 1970-71, of County Clerk's Office. 

T HE RECORDS OFFICE , also administered by Mr. Martin Mongan, 
County Cle~rk~ receives for recording all papers or notices that 
must legally be recorded, indexes same, and arranges the books of 
record and indices in suitable places to facilitate their inspec- 

During the fiscal year, 1969-70, a modern microfilm 
reader-printer was installed resulting in more rapid and efficient 
service during 1969-70. 

The fees charged by this department result in receipts 
that far exceed the expenditures. The greatest revenue producer 
has been the Real Property Transfer Tax which has been collected 
by the Recorder's Office since January 1, 1968. 

The excess receipts over expenditures for the fiscal 
period, 1969-70, was $351,135.80. The number of employees in this 
office has remained static the last ten years. 


The purpose of the Public Administrator's Office is to 
provide for the protection of the property of deceased persons and 
for the protection of the interests of heirs and creditors in such 

The purpose of the Public Guardian's office is to pro- 
vide a public officer to serve, when needed, as a guardian of a 
person, and has the responsibility of care and custody of said 
person and of the management of his estate. 

Both the above-mentioned offices are ably administered by 
Mr. Con S. Shea and his legal staff, headed by Mr. Jerome Cahill. 
This office is entirely self-supporting as it produces revenues 
well in excess of its operating expense. It is staffed by 28 
people in permanent positions. 



The function of the Records Center is to provide for 
orderly storage, care, and management of San Francisco City and 
County Department Records. 

Most boxed paper records are stored in a privately owned 
warehouse at 144 Townsend Street and the balance at the Presidio- 
Geary Car Barn. 

The Committee recomm ends that the expense of storing be 
elimina ted a n d that the reco rds now stored a t 144 Townsend Street 
"and the" Car Barn be transferred and consolidated ^o one of~TFTe 
unused faciliti es of the Sa n F rancisco Port Authority, and stored 
there at no"~c~ost to the taxpayers. 

All retired records that have been microfilmed are 
stored in the Twin Peaks Tunnel Vault. The Committee recommends 
no change. 


This department, under Mr. Emmery Mihaly, has charge of 
the registration of voters and of conducting elections. 

A permanent staff of 24 people is supplemented by approxi- 
mately 125 people weekly during registration and mailing periods 
prior to election, to about 4100 precinct election officials employ- 
ed during elections. These temporary workers average about 67 
full-time positions if computed on an annual basis. Therefore, 
nearly 90 full-time employees man this department. There has been 
no increase in personnel in the last ten years. 

The use of Electronic Data Processing in vote tabulation 
has come into its own in San Francisco. The use of E.D.P. in the 
vote count of the Primary Election of June 2, 1970 resulted in 50$ 
completion of the count by 12:50 a.m. on June 3rd. Increased ef- 
ficiency in tabulating the General Election of November 3rd result- 
ed in 85$ of the votes being counted by approximately 12:30 a.m. 
on November 4th. This shows a decided improvement. 

Mr. Mihaly and his staff should be commended for their 
efficient operation. 



The primary function of this department is to safeguard 
the consumer public by insuring the accuracy of commercially used 
weighing and measuring devices, as well as checking the weight of 
packaged goods sold commercially. 

This department, administered by Mr. Kenneth G. Royal, is 
staffed by nine people, of which six are inspectors. They are 
operating with antiquated equipment, trying to do an impossible job. 

The California Department of Agriculture, Bureau of Weights 
and Measures, was asked to review the operations of this office and 
make appropriate recommendations. 

The Committee concurs in the findings of this survey, and 
further, insists that at least some of the recommendations be adopt- 
ed by the City and County of San Francisco. 

In order to comply with the requirements of the California 
Business and Professions Code, the following recommendations of this 
survey should be implemented: 

"The County should acquire the necessary equipment, 
manpower, and training in order to fulfill their obliga- 
tion to the consumer in the area of weighing and measur- 
ing devices. 

"It is recommended that the Sealer of Weights and 
Measures* office be moved to a more desirable location 
for the performance of this function. The location 
should be more accessible to the public and industry 
and should provide the necessary facilities for the 
testing of taximeters, odometers, electric meters, 
quantity control of packages and maintenance of stand- 

"There should be an increase in activity and ef- 
ficiency in the Quantity Control Program for packages, 
with implementation of an undercover buying program." 

Further, the Committee recommends that promulgation of 
the services of this department be made by issuance of a pamphlet 
describing the services or this department. To distribute tnTs 
literature effectively and inexpensively, a suggestion was made by 
an employee of this department. These pamphxets coula be inclosed 
with the Water Department invoice mailing. According to Mr. Royal, 



the printing cost of 120,000 pamphlets would be approximately 
JT50" OTO 0~ "ThTs expenditure should be included in" the 19/0-71 


Incidentally, the distribution of such informative litera- 
ture is standard procedure in most of the counties in California. 


This office, under the direction of Mr. Thad Brown, Tax 
Collector, has the responsibility to collect all taxes as levied b;, 
enactment of the Board of Supervisors. In the fiscal year, 1969-70, 
this office collected $297,701,888.00 in taxes, an increase of 
$47,105,806.00 over the fiscal year, 1968-69. 

Due to the enactment of additional taxes in 1970, to be 
levied in 1971, this department's work load will increase. Because 
of this a reorganization of this office was effected in order to 
absorb the additional work load with a minimum number of new clerks 

Mr. Brown requested, in his budget, authorization to hire 
19 additional people. This was passed by the Mayor's Office, but 
the number was cut down to seven by the Board of Supervisors. These 
seven shall be investigators who will be assigned to making field 
investigations to bring about compliance with registrations in con- 
nection with the Business Tax Ordinance. The Board of Supervisors 
has left the door open to additional personnel when the effect of 
collection of new taxes has been experienced. 

Since the Tax Collector's staff was increased in 1968 by 
42 positions with the passage of the Business Tax Ordinance, and 
again increased by seven because of the projected new taxes, the 
Tax Collector's office was cramped for space. Physical changes are 
now in progress in order to make maximum use of the limited space 
available. The Bureau of Architecture and the Tax Collector have 
tentatively drawn up plans for the remodeling project. 

The ill-suited mezzanine storeroom, mentioned by the 
Grand Jury of 1969, will still be used as office space, but only by 
field investigators, who will be in the office only for short dura- 
tions of time. The 10 to 14 clerks who worked in this loft area 
will be moved to the main floor when the alterations of the Tax 
Collector's office are completed. 


TAX COLLECTOR (Continued) 

The Committee feels that much progress has been made by this 
Office in 1970 through the efforts of Mr. Thad Brown and his super- 
visors and that they should be commended for their fine work. 


There are sour ces of monies available to effect moderniza- 
tion of courT~ahd administrative procedures in City Government . 
Grants a re availa b le fro m t rie United Stat es Govern ment and from 
various "private fu n d's such~as the Ford ^ ounHa'tio n ." It is necessa r y 
on the part of the~C*o u rts and AdminisTrativ e Agencies to" s how that 
they have in it iated a~pr o gram a nd ha ve plans thai, are definite to 
"continue tha£~program before they are eligible for funds. 

The modernization of c ou r t calendar procedures now being 
instituted by the County Cler ic w ould qualify the finance and Kecords 
Department to receive these funds. 

The Committee recommends that the Director of Finance and 
Records research the possibility of obtaining grants or funds to be 
used in the modernization of Court ana Administrative procedures. 

Arnold Blum 

George Sanderson 

Gene F. Cervelli, Chairman 


The Purchasing Department buys all materials and supplies 
and arranges contractural services for all departments of the City 
of San Francisco. Additionally, it functions to repair and maintain 
various items of equipment for all City Departments, excluding the 
Public Utilities, while operating central stores to handle and 
distribute materials. It is responsible for the maintenance of 
most of the City's rolling stock (e.g., Police and Fire Department 
vehicles) . 

Prior Grand Jury reports have recommended the creation of 
a new position within the Purchasing Department. This position 
would be known as the Supervisor of the Divis ion of Specifications 
and Standards. To date the position remains non-existent. 

After several discussions with Mr. Conway, it is the 
opinion of this committee that, in order to allow this department 
to function at maximum efficiency, the position must come into 
existence. To reiterate the findings of prior committee reports, 
the duties of the Supervisor of Specifications and Standards would 
be to: 

1. Analyze and interpret data relating to a standard of 

2. Standardize equipment, materials and supplies. 

3. Review long existing specifications, and to develop 
and modify them in the interest of economy and 

4. Research new materials and products. 


The Public Works Committee of this Grand Jury during the 
last year was exposed to a vast number of activities being con- 
ducted in the subject department - one of the largest departments 
in the City government. Of special interest to the Committee were 
several activities, two of which relate to publicly aroused 



environmental issues. 

It is noteworthy that the Department is expending very- 
considerable efforts on the water pollution control program. The 
staff is now in the process of developing a master plan for the 
management of the dry and wet weather discharges from the City's 
combined sewerage system. The master plan, to be finalized sometime 
in 1971, will be oriented toward the primary objective of bringing 
all discharges from the City into compliance with the reauirements 
of the regional regulatory body. The implementation of the plan 
is presently envisioned to reauire the expenditure of some $200 mil- 
lion over a 20-year period. The Committee concurs wholeheartedly 
with the efforts that are being concentrated on this program and 
recommends that in the future all work in this direction not be 

The Committee also noted that during this past year the 
Department devoted much attention to the City's solid waste dis- 
posal problem. The Department was one of the principal parties 
involved in the preparation of a waste disposal agreement under 
which San Francisco will truck-haul its solid waste to the City of 
Mountain View for disposal. This arrangement will provide San 
Francisco a disposal means for five years and, by using the large 
quantity of waste as fill material, will greatly facilitate an 
early completion of a regional recreational park at Mountain View. 
Hauling of waste to Mountain View is expected to commence at the 
end of October, 1970. The Committee is concerned that the dis- 
posal method thus arranged for a five-year period will only be an 
interim solution. It recommends that the Department shall develop, 
by no later than the end of 1972, a long term solid waste disposal 
plan for use following the Mountain View commitment. 

During the inspection of the routine maintenance and 
operation activities of the Department, this Committee noted with 
much interest the activity relating to the construction of side 
sewers. The Department reported that the maintenance and repair of 
a side sewer is the responsibility of the owner of the property 
for which such sewer serves. The repair of a side sewer for only 
a home could easily run as high as $800. This procedure seems to 
the Committee to be inconsistent with those for other public 
services, such as water, gas, electricity, telephone, street light- 
ing, etc., individual repairs to which are not directly chargeable 
to the affected owners but are incorporated in the over-all rate 
structures. This matter appears even more inequitable in the light 
that the City was either the installer or the paid supervisor of 
the installation of the original side sewer paid for by the owner. 
Also, the problem of a side sewer could develop gradually over many 
years during which the ownership of property served could have 
changed many times, but the last owner would still be held fully 
responsible. The Department also reported many cases involving 



owners of older homes in financial straits. This Commit t ee firml y 
believes the responsib: 3 ity f or the maintenance and repairs of 
sid e severs shjuld rest with the City a nd recommends the acceptance 
of this responsibility by the City . 

As a result of newspaper articles relative to funds due 
the City by BART by virtue of engineering services performed in 
connection with the BART project, the Committee investigated the 
accounting procedures of the Department of Public Works. 

It was found that bills were submitted to BART for 

services rendered. BART reque s ted more detailed information from 
the Department of Publ ic Works a s to th e charges. Apparently the 
request for this detailed information was never received by the 
City, and BART not receiving the requested information obv i ously 
did not make payment to t h e City. The importa nt point is that the 
Department of Public Works did not follow up with a second request 
for payment . 

The principal reason for the confused situation resulted 
from the sudden transfer of the Accountant in charge of the unit 
to the Board of Education, necessitating the temporary assignment 
of one of the Accountants to be in charge of the unit. His apparent 
lack of familiarity with the details of the accounting system was 
the reason for the breakdown in the billing procedures. 

As a result of the Committee's investigation the Director 
of the Department of Public Works hap issued a detailed set of 
instructions to the Accounting Bureau as to procedures, follow-ups, 
and periodic reporting to the Director's office, in order to avoid 
a repetition of the BART billing problem. This procedure is now 
in effect and has resulted in all of the back bills being recon- 
ciled and approved for payment. 

It is recommended that sufficient training be given to 
employees in subordinate positions in that they can assume higher 
duties when the occasion demands. 


The Real Estate Department furnishes real estate services 
for all of the other departments of the City and County of San 
Francisco and the San Francisco Unified School District. It 
handles all purchases, sales, negotiates leases, both as Lessee 



and Lessor, and handles the acquisition of land by Eminent Domain 
proceedings. It handles the sales and leases of properties declared 
surplus. These sales and leases produce income and return properties 
or property interests to the tax rolls. 

Another function of the Real Estate Department is furnish- 
ing loan and grant finance services for the Federally Assisted Code 
Enforcement (FACE) Program. Since the Program started about four 
years ago, the department has processed loans totaling more than 
$5 million to assist persons affected by the FACE Program. 

The Real Estate Department, this last year, has been en- 
gaged in complex special projects such as the proposed acquisition 
of the San Francisco Maritime State Historic Park facilities pursuant 
to Senate Bill II87, the Alcatraz project, the sale of air rights 
over the Geary- Presidio trolley coach facilities, and the sale or 
lease of the Pleasanton Industrial Tract of the Water Department. 

An area in which improvement can be made is in that of the 
interdepartmental work order procedure where the cost of services 
performed by the Real Estate Department is paid for by the department 
receiving those services through a transfer of funds. This is the 
proper procedure where funds are derived from special sources such 
as gas tax funds and the FACE Program, but it imposes a severe 
restriction on the Real Estate Department as well as the department 
seeking such services. On numerous occasions a department must wait 
until funds can either be budgeted or obtained by supplemental 
appropriations. This creates an intolerable situation where depart- 
ments urgently require the services of the Real Estate Department 
and are unable to receive this service without three to six months 
delay. The budgeting of 50% of the technical and clerical staff 
would result in a considerable saving in cost to the City and permit 
the Real Estate Department to proceed with work when needed and to 
perform other functions producing further economies. 

The 1970 Grand Jury, as has previous Grand Juries, recom- 
mends that functions of the Real Estate Department and the Utilities 
Property Management Bureau be merged. During the last fiscal year 
a Senior Right of Way Agent was assigned full time to the Water De- 
partment on an interdepartmental work order basis to perform the 
functions formerly performed for the department by its Agricultural 
and Land Division Manager. 

Hrant J. Avakian 
Jack M. Lipman 

Arnold Blum, Chairman 


The Disaster Corps is the department, responsible to the 
Mayor, which plans the deployment of the City's equipment and 
personnel during a disaster. 

In the case of a disaster all departments of the City would 
function under the Mayor thru a master plan developed by the 
Disaster Corps. 

Since the Disaster Corps is 50$ funded by the Federal 
Government and 50$ by the City the cost t^ the city is less than 
$100,000.00 per year. 

We are pleased to note that the Board of Supervisors did 
not follow their Finance Committee's recommendation to eliminate 
the Disaster Corps and transfer its functions to the Police and Fire 


The Department of Electricity is a one hundred man depart- 
ment, headed by Burton H. Dougherty. The main functions of this 
department are installation, maintenance, and repair of the City's 
parking meters, traffic signals, two way radio equipment and fire 
alarm system. 

Our complements to Mr. Dougherty's department which has 
been able to maintain this important service to the City by absorbing 
a shortened workday (7 hour day vs. an 8 hour day) by much of his 
work force without additional personnel or funds. 

Harry E. Gray 

William P. Greene 

Charlton H. Buckley, Chairman 


A comprehensive management survey of the Recreation and 
Park Department has been initiated by the General Manager. Local 
businesses have provided financial assistance and executives to 
serve on various task forces for a six month study. Although the 
study has not been completed , it has produced many recommendations, 
some of which are now being followed. This study is being accom? 
plished without cost to the City. 

Over the past twenty years the Recreation and Park Depart- 
ment has been assigned numerous facilities and delegated to take on 
new operations. This has been done without adequate budget or 
necessary personnel increases. This problem of over-extension is 
one of the more serious facing the Department at this time. Men, 
supplies and equipment are spread too thin. 

In view of the over-extension problem, this committee rec- 
ommends that the San Francisco Maritime Museum Association be trans- 
ferred out of the Recreation and Park complex. The Maritime Museum 
is incorporated as a Non-Profit Organization and although the 
director's salary and building maintenance is included in the Rec- 
reation and Park Department budget, this Department exercises no 
control over the director or museum. Consideration should be given 
to merge the Maritime Museum with the other San Francisco Museums. 

Recently, pressure has been brought on the City to acquire 
the State Maritime Historic Park, which consists of the Hyde Street 
pier, Victorian Park and the Haslett Warehouse. An analysis of the 
potential cost and revenues of City operation has been made and this 
pointed out that the City could expect a net loss of $206,000.00 
per year for the combined operation. This committee recommends the 
above property not be acquired unless it can be shown by a specific 
development proposal that the City will not suffer any financial 

In order for the Recreation and Park Department to in~r 
crease its capacity to render services with a minimum of delay 
through inter-departmental r§d tape, the jurisdiction for auto 
repair service and engineering should be transferred to the Recrea- 
tion and Park Department. 

All mechanized equipment owned and operated by the Recrea- 
tion and Park Department is serviced at the auto shop located in 
Golden Gate Park. The building is owned by the Department; the 
repair services are under the jurisdiction of the Purchasing Depart- 
ment. The Recreation and Park Department operates a number of tools, 



ranging' from power mowers to graders of a specialized nature relat- 
ing to its operation. It is critical that Recreation-Park control 
this vital supporting function. The Department must be able to 
establish priorities for equipment repair. To accomplish this the 
employee in charge of the shop must be responsible to the Recreation 
and Park's General Manager. Serious bottlenecks have occurred in 
recent years. The pre sent ^div ision of res ponsibility has k ept out 
of service import an t equipment r equfrel T"xor _ the h igh level main - 
tenance of Recreation and Park properties . 

In January, 1961 the Recreation and Park engineering 
services were transferred to the Department of Public Works in order 
to centralize comparable functions in a single department. Since 
that time the change has had a detrimental effect upon the Recrea- 
tion and Park Department and ultimately the citizens of San Francisco, 
Rec-Park engineering is charged with developing designs, plans and 
specifications for new Recreation and Park facilities, and for 
repairs, improvements or extensions of existing facilities. The 
design function should be responsive to policies formulated by the 
Recreation and Park Commission and by the General Manager. Aside 
from the usual interdepartmental delays and division of responsibili- 
ty the current arrangement is costly to the taxpayer. Certain 
Recreation and Park salaries are allocated to the Department of 
Public Works for engineering. In addition Recreation and Park is 
charged an overhead fee for the same services, which results in 
either increased budget costs or reduced amounts available for im- 
portant construction. Further, the engineers are now housed in City 
Hall making close contact with Recreation and Park management locat- 
ed in Golden Gate Park difficult. It is further recommended that 
all or at least responsible design personnel be relocated to former 
headquarters at McLaren Lodge. 

The maintenance of San Francisco Golf Courses is the job 
of the Park Department, under the able supervision of Mr. Jack Kelly. 
This committee is of the opinion that the Harding Golf Course water- 
ing system could be greatly improved by installing a modern automa- 
tic sprinkling system. Inasmuch as Harding Park's receipts have 
increased it is recommended that the Mayor and Board of Supervisors 
approve an ordinance to use the additional revenue for these nec- 
essary improvements. 

San Francisco Zoological Gardens initiated admission fees 
this year for the first time and has proved to be successful. All 
net proceeds are to be used for Zoo operational and long needed 
capital improvements. Forty eight employees operate the zoo seven 
days a week, 365 days a year, caring for over two million visitors 
annually and about 1250 animals, requiring special care and 



There is an immediate need for an assistant head animal 
keeper. This committee recommends that one animal keeper position 
be upgraded to assistant head animal keeper. The upgrading of this 
position would result in an additional cost of approximately $68.00 
to $83.00 per month. 

The San Francisco Police Department and the Recreation and 
Park Department are to be commended in establishing the park and 
beach patrol. This squad on mini-bikes has been very effective, 
making over 700 arrests in six months. It is recommended, men and 
budget permitting, that the Park Police Force be expanded in order 
to adequately patrol the 120 parks, squares and playgrounds. This 
Park Police Force would minimize vandalism which has increased over 
the years. 

This Committee of the Grand Jury commends Mr. Joseph C. 
Caverly, the General Manager, his staff and the many dedicated employ- 
ees of the Recreation and Park Department for the many accomplish- 
ments achieved this past year. 


The California Palace of the Legion of Honor and the M. 
H. De Young Museum are in the process of merger. Mr. Ian M. White, 
the capable director of the California Palace of the Legion of 
Honor, is now director of both museums. When finalized this merger 
will result in more efficient management. Several visits were made 
to both museums and the operation of these departments have met with 
the approval of this committee. 

The Grand Jury recommends, as did the 1969 Grand Jury, 
that the triangle area in front of the De Young Museum and the 
California Academy of Sciences be open for automobile parking on 
Sundays . 



The California Academy of Sciences is the oldest sci- 
entific organization in the western United States. It is also a 
center for research in the life and earth sciences , has collections 
of scientific specimens and a publisher of scientific papers. 

The Academy is open every day of the year f^r 10:00 A. M. 
to 5:00 P. M., and the public attendance averages over 3 3 000, 000 
per year. Since the opening of Cowell Hall in May of 19^9^ the 
maintenance and guard departments have been understaffed. 

We commend Director Doctor George E. Lindsay, Associate 
Director Robert T. Orr and the entire staff for their ability to 
maintain and improve the California Academy of Sciences. 

Arnold Blum 

Wayne R. Burke 

William A. Flynn, Chairman 



During fiscal 1969-70, major maintenance and improvements 
were made in the Opera House, the Veterans' Building and the San 
Francisco Museum of Art. 

The present facilities are overcrowded. If San Francisco 
is to be provided with the various musical events which desire to book 
into San Francisco it is essential an addition be added to the War 
Memorial complex. At present an architectural firm is in the process 
of developing working drawings as well as cost estimates for the 
building and adjacent 1,000 car parking facility. The location of 
the proposed Performing Arts Center to be located on the property- 
west of Franklin Street, between Grove and McAllister Streets. 

The Grand Jury Committee recommends that a study be made of 
the 11 00 seat theatre i n the" Veterans' Building for possible use as 
a modern, up to^ate^T ^ ltimate playhouse. Such a venture would in 
our opinion be another source of badly needed revenue. 


The San Francisco Public Library encompasses the Main 
Library, a business library, a bookmobile and twenty-six neighborhood 

branches . 

The present Main Library building is totally inadequate to 
efficiently serve today's needs and grossly inadequate to serve 
estimated future needs. 

The Arthur D. Little Company is presently concluding a study 
of the Public Library services as they relate to the needs of a new 
Main Library. The final report will be issued about December 10, 1970, 

Preliminary indications are, the ADL will recommend con- 
struction of a 550,000 square foot building on the Marshall Square 
site (across the street from the present building). Further, that 
by 1975 it is expected the Library will occupy about 400,000 square 
feet. The additional space would be used for other City needs. The 
present Main Library building would be converted to miscellaneous 
convention and office needs related to the Civic Center. Cost 
estimates for the new building and conversion of the present building 


for other uses - based on 1973 dollars would be about $38 million - 
financing would be by general obligation bonds. 

The Library Commission, the City Librarian, John F. Anderson 
and his staff are in our opinion, doing a very commendable job. And 
will continue to do so, if provided with the necessary working tools. 

The Library is understaffed. Its current staff of 370 
serving the general public is 15 short of the minimum requirement of 
the American Library Association for a. City the size of San Francisco. 
The San Francisco Library should, in our opinion, be permitted to up- 
grade its present level of staffing. Doing so would not on]y permit 
it to render better service but would also permit its rendering more 
hours of service. 

The 1970 - 71 budget is about the same at the 1969 - 70 
budget. Insufficient finances hinders the progress so badly needed 
to bring the Library up to minimum standards. It could also start 
a downward spiral which may be difficult to contain. 

Subscriptions for periodicals must u n der City Charter be 
bid on a one year contract. 'This condition prohibits the Library 
from taking multi-year subscriptions. If permitted multi-year sub- 
scriptions, an estimated $15,000.00 to $1«,000.00 annual savings 
would be effected. We believe multi-year bids can be obtained and 
still be in compliance with the City Charter by inserting a cancella- 
tion clause in the contract. We recommend that the City Librarian 
pursue this matter with the City Attorney-.- 

The annual savings of $15,000.00 to $18,000.00 could then, 
hopefully, be diverted to purchase of books - which are badly needed. 

The entire Library personnel are to be congratulated on 
receiving two National awards. Also for its many interesting and 
educational programs for serving the citizens of San Francisco - 
particularly students who are tomorrow's leaders. 

The Committee urges that top priority be given to the 
Library in budget and personnel matters. 


The Board of Permit Appeals is charged with the responsi- 
bility of hearing appeals of citizens from the decisions of the 
Departments of Public Works, City Planning, Police, Fire and Public 


The present filing fee, regardless of subject matter, 
preparation and time involved, is a flat $10.00 per appeal. During 
the fiscal year 1969 - 70, the Board heard 4l6 appeals. The filing 
fees totaled $4,160.00. 

The Board is presently considering a graduated fee schedule 
which will be more remunerative with the services rendered. If 
approved by the Board of Supervisors it is estimated that under the 
new schedule the annual fee would be $16,000.00 to $18,000.00 per 

The Board of Permit Appeals and its Staff, in our opinion, 
are generally doing a sincere, conscientious job for the benefit of 
citizens who have occasion to appeal decisions of the other depart- 
ments . 

William A. Flynn 
Gustav Knecht, Jr. 
Wayne R. Burke, Chairman 



The City of San Francisco can be proud of our Coroner's 

Coroner Henry W. Turkel, M. ^. displays enthusiasm and 
pride in his department normally reserved for a beginner so that it 
is difficult to realize he is in his 19th year. 

Luring his tenure the work and its thoroughness have in** 
creased three fold yet his number of employees remain the same. 

He maintains top quality staff by sharing University of 
California Pathology and Toxicology professors on a part time basis. 

Each M.D. performed 800 autopsies as reported for the year 
ending June 30, 1970. Most complete and informative report. 

Boctor Turkel compliments the San Francisco Boards of Su- 
pervisors who over the years have allowed him to keep up with new 
equipment so that his facilities are as modern as any in the country. 


1970 offered no greater example of "Changing Times" than 
in the field of pornography and obscenity. 

The Committee shocked and gravely concerned from their find- 
ings at mid-year requested the Jury further investigate and take 
action to prevent the showing Qf sexual acts on stage and screen. 

The Jury reacted and by a majority vote requested the San 
Francisco Board of Supervisors and the California Senate to pass 
legislation they were at that time considering. The Senate of the 
California Legislature did not pass the requested Bill No. 806. 

The Jury condemned all exhibition and sale of obscenity 
and pornography in San Francisco and supported the efforts of the 
trial courts and the Police department in enforcing the laws. 

The Board of Supervisors responded that any such legisla- 
tion if appealed to the federal court would probably be found to 
be unconstitutional. 


PORNOGRAPHY (continued) 

Within a period of months restrictions of what may be shown 
or said in a public pl^ce are gone. Movie houses are showing all 
sexual acts with sound on colored screens. Newspapers, that should 
aid in the maintenance of public morals, are accepting money to ad- 
vertise these shows. 

The majority of the jury still abhors the existing permis- 
siveness . 




The Police Committee of the 1970 Grand Jury has made per- 
sonal visits to all Police units and facilities We hive met with 
Chief of Police Alfred J. Nelder and discussed with him the various 
problems affecting the department and the programs in effect to 
combat those problems. We have accompanied officers during their 
patrol hours to acquire first hand knowledge of the department and 
its operation. During the past year we have learned a great deal 
about the department. 

Since the appointment of Alfred J. Nelder as Chief of 
Police on February 9, 1970, a great many new programs have been 
started in the Police Department. We would like to comment on a few 
of them. 


It has been the policy of Chief of Police Nelder to assign 
members of the department to appointive positions on merit and 
demonstrated ability to perform the duties of the position. In 
addition, Chief of Police Nelder has made it a practice to make 
appointments to positions having jurisdiction over major units of 
the department from the rank of Captain. Some of the appointments 
which have been made from the rank of Captain are the Department Sec- 
retary, Director of Planning and Research Bureau, Property Clerk, and 
Director of Criminal Information. 

Assignments as officer in charge have been made from the 
rank of Lieutenant for the important units such as Bureau of Special 
Services and Intelligence Unit. 

This policy of making appointments and assignments from 
ranking members of the Department, which has the full support of the 



Police Commission , has improved the morale of the members *f the 
department immeasurably. 

A Captain of Police has been designated commanding offic- 
er of the Headquarters Crime Prevention Unit, consisting of the Parks 
and Beach Squad, Helicopter Unit, Dog Patrol Unit. Tactical Squad 
and Mounted Unit. This important division of the department now 
has the command authority to effectively carry out its many 

The Police Committee commends the Police Commission and 
Chief of Police Alfred J. Nelder for upgrading the various bureaus 
within the Police Department by appointing members with sufficient 
rank, experience and ability as commanding officers. 


Assignment to a specialized unit is a commendable goal 
for any member of the department. To assign officers to such units, 
unless they have demonstrated their ability to perform its special- 
ized functions, is detrimental to the morale of officers who are 
worthy of transfer because of their past work. 

In our study of the department, we have been impressed 
with the caliber of the officers who have been assigned to the 
Bureau of Inspectors, Narcotics Unit, Juvenile Bureau and other 
specialized units. All of them have outstanding records and are 
deserving of the confidence that has been placed in them. 

We feel this is a good policy that should be followed in 
the future. When officers know that good work is rewarded, morale 
is high. 


The formation of this squad by Chief of Police Nelder 
shortly after his appointment as Chief has been instrumental in re- 
ducing crime in many of the city's parks, and particularly in 
Golden Gate Park. Many arrests have been made by this special unit 
and the department has been commended by the citizenry and the 
employees of Golden Gate Park for making it safe once again to work 
in and enjoy. 

We commend Chief *bf Police Nelder for having the foresight 
to attack the problem of crime in the parks by the formation of the 
Parks and Beach Squad and by equipping them with mini-bikes so they 
could patrol all areas of the park. Their success to date has been 
tremendous and we would recommend that the unit be increased as 
personnel become available so that it can operate in all of the 
City's parks and along the Ocean Beach. 



All members of the department, with the exception of those 
assigned to plainclothes activities, such as Inspectors, are requir- 
ed to wear their uniforms while on duty. The effect of this has 
been to show more uniformed officers on street patrol to prevent 

We believe this is an excellent policy and should be 


The Police Department was granted additional civilian 
employees in its 1970-71 budget for the purpose of releasing police 
officers for duties for which they are specially trained. Civilian 
employees are replacing police officers in the Bureau of Communica- 
tions, City Prison, Bureau of Identification, Traffic Bureau and 
other units of the department. This program, when completed, will 
enable the department to assign in excess of one hundred patrolmen 
to street patrol duty. 

We endorse the policy of using civilians in place of 
police officers whenever possible so that police officers can be 
assigned to active police duty. In this connection, we would re- 
commend that jurisdiction over the City Prison be removed from the 
Police Department and placed under the control of the Sheriff or 
some other city department. The City Prison is a custodial activity, 
and as such should not be under the supervision of the Police 
Department . 


Cognizant of the importance of the police working with 
youth, Chief Nelder, shortly after his appointment as Chief of Police, 
initiated a Police Youth Program. Officers assigned to this pro- 
gram work out of the Juvenile Bureau and visit the various public 
and private schools in San Francisco to discuss police and crime 
problems with the students and to give them an understanding of the 
role of the police in society and their responsibility as good 
citizens. Over 40,000 school children have participated in the pro- 
gram and results have been good. 

Students have been brought to the Police Range at Lake 
Merced for demonstrations by various units in the department, such 
as the Helicopter Unit, Dog Patrol Unit, Parks and Beach Squad, etc. 
This program has brought a closer understanding between the student 
and the police department. During the summer school vacation, stu- 
dents were taken on a trip to Disneyland, boating and fishing trips 
were arranged, and lessons in golf and bowling were provided. 


POLI C E _ YOUTH^PR^GRAM (continued) 

This program, which is one of the first of its kind in the 
country, has been accepted by the School Department; in fact, daily 
requests are made by the various schools to have members of the 
program talk to the students. 

The program is a well-rounded one and we reccmmend that it 
be continued and expanded. 


As an adjunct of the Police Youth Program, Chief of Police 
Nelder instituted a Drug Abuse Program which is one of the finest of 
its kind in the country. Officers assigned to this program visit 
the city's schools and bring to the students an awareness of the 
dangers of narcotic drugs. By educating students as to the evil of 
drugs and drug addiction, the Police Department hopes they will 
avoid drugs. 

The Police Committee knows full well that the juvenile 
drug problem is on the increase. We think the Police Department's 
program will be an effective weapon to combat this problem and 
commend the Police Commission and Chief of Police Nelder for attack- 
ing it so forcefully. 


To combat the rising number of auto thefts, a special 
squad was formed to conduct periodic checks of drivers and autos at 
specified locations. The program, entitled "Operation Checkpoint" 
has been successful not only in apprehending drivers in stolen cars 
but in making arrests for various crimes. This activity plus a 
city-wide effort by all department units, has been instrumental in 
substantially decreasing the number of auto thefts during the past 

The Police Committee recommends that this program be 


For the first time, a Suggestion Panel has been formed 
within the department. Officers have been urged to submit any 
suggestions they may have to improve the operation of the department. 
To date, there have been several suggestions submitted and approved 
by the Panel which are in the process of being put into operation. 
In this manner, the department is making use of the expertise of 
its many members to the fullest extent possible. 

The Police Committee believes the use of a Suggestion 
Panel is a forward step in police administration and congratulates 



the department for using the thoughts of all its members rather than 
of a few. 


Greater emphasis has been placed on Police Community 
Relations and the personnel in this unit has been increased. 

Members of the unit are working closely with other units 
of the department in all .areas of the city. This unit has been 
successful in reducing social tensions in our city. The unit also 
cooperated with the U. S. Marine Corps in organizing summer vacation 
trips to the Marine Corps camp at Pickle Meadows. During the summer 
school vacation., athletic programs were conducted to keep youngsters 
busy and off the streets. The success of the various programs of 
the Police Community Relations Unit has resulted in a lessening of 
tensions between youths and the Police. 

A close relationship is maintained between this unit and 
the Juvenile Bureau so that their different programs with youth will 
not overlap but will compartment one another. 

To better understand the culture and language of the 
Spanish speaking community numbering approximately 110,000 people. 
Chief of Police Nelder arranged for thirty members of the depart- 
ment to attend the Centro Social Obrero Language and Vocation 
School where they will be taught the Spanish language and be able 
to establish better communications between the Spanish speaking 
people of San Francisco and the Police Department. 

A similar program has been started within the Chinese 
community where six officers are going to school to learn the 
Chinese language and customs. This will result in better communica- 
tions and understanding with approximately 60,000 Chinese speaking 
members of our community. 


During the past year, the Police Department recommended 
and had approved an ordinance establishing a Police Officers Train- 
ing Fund within the department. The money for this fund comes from 
the Peace Officers Standards and Training Commission of the State 
of California and is payment to the department for expenses incurred 
by the department in training its members. The establishment of the 
Police Officers Training Fund now makes it possible for the depart- 
ment to greatly expand its training programs without reducing the 
amount of police protection provided for the citizenry while officers 
undergo training. It should be noted that the funds received from 
the Peace Officers Standards and Training Commission (POST) to pay 
for this expanding training is not tax funds but is an assessment 



levied on fines paid by persons convicted of criminal offenses. For 
exery $20.00 or fraction thereof of a fine, the person is assessed 
an additional $5.00. Thus, criminals who are fined for criminal 
offenses must contribute to a fund used for better training of police 
officers. In our modern society where training is so important, it 
is vital that the Police Department provide as much training as 
possible for its officers. 

That the new programs put into effect in the Police Depart- 
ment since the appointment of Alfred J. Nelder as Chief of Police 
by the Police Commission have been successful is evidenced by the 
decrease in the number of major crimes committed when compared with 
1969. While crime has been increasing in California and throughout 
the United States, serious crime in San Francisco has decreased. 


In its study of the Police Department, the Police Committee 
learned first hand the working conditions and problems of police 
officers. We have studied the fringe benefits provided by other 
police departments in California as well as those provided for 
civilian employees in San Francisco. We have found that the working 
conditions and fringe benefits provided for the San Francisco Police 
Officers are not comparable with those of other jurisdictions. We 
feel this is an injustice and should be corrected as soon as possible, 
Some of the benefits we would endorse are: 

l a Premium pay for night work 

2. Longevity Pay 

3. Incentive Pay for officers with 
special qualifications. 

In conclusion, we would like to commend the members of 
the Police Commission and Chief of Police Alfred J. Nelder for their 
efficient administration of the Police Department. We would also 
like to commend the officers of the department for their devotion 
to duty and for the courageous manner in which they have protected 
the people of San Francisco. We regret that during the past year 
four courageous young members of the department were killed in the 
performance of duty. Their deaths have been a tremendous loss not 
only to their families and the Police Department, but to the City 
of San Francisco as well. 


Work accomplished by these men range from plumbing, elec- 
trical and window repair service to settling family disputes besides 
actual police work. 



We found these officers to be most dedicated and successful 
in promoting race relationships amongst the minorities who consti- 
tute the bulk of the residents in the San Francisco Housing Project. 

We suggest these men be authorized to wear a star marked: 

It is the feeling of these men that such a star would 
command more respect. 

Gene F. Cervelll 
Edison T. Uno 

Jack M. Lipman, Chairman 



The Port was transferred from State to City and County 
operation in February 1970. 

The Port's basic goal this year is to improve port facil- 
ities cargo handling methods. Its principal objective is to provide 
the home port for Lighter Aboard Ship (LASH) vessels. In this 
connection the following projects have been proposed. Some are 
presently underway. 




48-acre LASH terminal in the India Basin area. 

Grain terminal on Islais Creek channel. 

Container terminal on some 110 acres immediately ad- 
jacent to the LASH terminal. 

Two-berth 48-acre facility in India Basin, which will 
be a primary container facility. 

An additional 80-acre facility at the Alvord Grant, 
adjacent to Central Basin. 

Ferry Port Plaza in the area now occupied by Piers 
1 - 7. 

U.S. Steel multi-purpose passenger terminal in the 
areas now occupied by Piers 14 - 24. 

Major improvements to upgrade existing piers for modern 
cargo handling also include strengthening the apron and increasing 
its width at Pier 23. 

The Ferry Port Plaza and the U.S. Steel building projects 
are extremely controversial and as of this date have not been re- 
solved. This Committee has no recommendations regarding these 
matters. However, we do believe the port should use its facilities 
to their best economic usage as required under the transfer act. 
Further, that the Port Authority should utilize its property to its 
best financial advantage. 

Regardless of the final outcome of these controversies the 
Grand Jury feels that the requirement that the Port Authority spend 
a minimum of $100 million from bond issues or other sources over 
the next 25 years for new maritime facilities or improvements to the 
Port is unwise and should be removed. We believe the capital 


PORT AUTHORIT Y (continued) 

requirements for the Port over such a long period of time should be 
determined by those responsible for the operation of the Port and 
not rigidly set by State law. 

The line budget used by the City and County of San Francisco 
is for a business venture, a difficult procedure. The Port Authority 
has recommended the budgeting procedure of the State of California. 
This Committee also recommends that the line budget be changed. 

Under Civil Service, employees are more difficult to ob- 
tain. Also approval of contracts are slower than under State opera- 
tions. Hopefully discussions will bring about a mutually satis- 
factory resolution of these matters. 

The Grand Jury Committee commends the Port Authority on 
its aggressive program for developing the Port into one of the 
world's outstanding ports. 

William A. Flynn 
Gustav Knecht, Jr. 

Wayne R. Burke, Chairman 



Meetings were held with the top administrative staff of the 
Department of Social Services and with members of the Social Services 
Commission, and a review was made of the functions, responsibilities, 
and operations of the Department. 

The caseloads of the Department have increased by about 20$ 
in the past year, the same as the nationwide increase in welfare 
rolls during this period as reported in the press. No additional 
employees have been provided to this Department since July 1, 1969* 
despite the one-fifth increase in workload. As caseloads continue to 
increase, the Department will be beset by increasing problems unless 
necessary staff is provided to handle the increased workload. 

RECOMMENDATION: That an adequate number of staff be 
provided to handle the increasing 
workload of the Department. 

Not only have the budgeted positions not been increased, 
but the Department is faced with from 50 to 100 unfilled positions 
at any one time because of delays in the filling of vacancies result- 
ing from civil service lists of eligibles not being available and 
from the time consuming procedure which must be followed in filling 

RECOMMENDATION: That civil service examinations be held 
promptly as they are needed and that 
the processing of requisitions for 
personnel be expedited in all ways 
possible by the Civil Service Commis- 
sion and others involved. 

For the past five years, Grand Juries have recommended that 
the offices of the Department of Social Services be centralized in 
the 13th and Mission Streets area where the Department now occupies 
two City-owned buildings at 150 Otis Street and 1680 Mission Street. 
This would eliminate the other three widely scattered buildings: two 
leased buildings at 965 Mission Street and 1360 Mission Street and 
the City-owned building at Bush and Stockton Streets, surrounded by 
the Sutter-Stockton Garage. Such a concentration of office space 
would result in increased operating efficiency of the Department and 
would remove these offices from downtown San Francisco. 

There are proposals from two non-profit corporations now 
before the Board of Supervisors which would make this concentration 
of offices possible with little if any cost to San Francisco above 
what is now being paid for rent and which would, in addition, result 



in an expansion of the Sutter-Stockton Garage to take in the property 
now occupied by the 535 Bush Street building. At the end of a period 
of 25 years., the City would own free and clear the property which 
would be purchased in the 13th and Mission Streets area, and any 
additional cost in the interim would be more than offset by savings 
resulting from increased operating efficiency. 

RECOMMENDATION: That the Board of Supervisors give favor- 
able consideration to the proposals for 
the expansion of the Sutter-Stockton 
Garage and for the purchase and remodeling 
of office space and facilities for the 
Department of Social Services in the 13th 
and Mission Street area. 

The total expenditures of the Department of Social Services 
for the fiscal year 1969-70 were $105,571,829. The San Francisco 
taxpayers' share of this was $25,616,543, or 24$ of the total, with 
the balance being paid by the federal and state governments. During 
the past five years from fiscal year 1964-65, th e total expenditures 
increased by bl%. The federal share of "the cost increased by IQlfo", 
the share met by the state increased by 61%, wnile that met by local 
taxes increased by 114%. An increase in funds is needed from the 
broader tax base of the federal and particularly of the state govern- 
ment to ease the burden on the local taxpayer. 

RECOMMENDATION: That all efforts continue to be made to 
seek increased financing of the public 
welfare programs from the federal and 
state governments. 

Rudolph W. Arfsten 
Gene F. Cervelli 

George Sanderson, Chairman 



There is a tremendous backlog of cases both in the civil 
and criminal divisions of the Superior Court. There are over 7,000 
civil cases and approximately 800 criminal cases. The law is so 
written that unless a defendant in a criminal case waives his right 
to trial within sixty (60) days, then the court must try the case 
within this time limit. 

There are many situations contributing to the backlog of 
cases in the criminal division - an increase in the crime rate, a 
greater protection of rights of the defendants is required, which 
often increases the length of trials, and a need for the Legislature 
to change some laws and procedures to assist the judiciary. 

The Judges of the Superior Court are well aware of the 
backlog of cases on the criminal calendar and under strict legal 
procedure these criminal cases are to receive the first attention 
in court proceedings. As an answer to this problem Judge Francis 
McCarty in 1969 established a Master Criminal Calendar as a 
recommended procedure to speed up the disposition of these cases. 
He was followed in this work by Judge Robert J. Drewes. 

Currently Judge Walter F. Calcagno is handling the Master 
Criminal Calendar and he has started the necessary preparation to 
make use of data processing methods to assist the court in a better 
control of the criminal calendar. January 4, 1971 has been set as 
the target date for the start of this program. In this endeavor he 
is being assisted by court attaches Ralph Sheehan, Robert Elb and 
Mrs. Virginia Trader. 

The initial operation of this program will be expanded 
within several months. Additional information will be added to the 
program so as to assist other departments connected with the courts • 
District Attorney, Public Defender, Sheriff, Adult Probation De- 

It has been brought to the attention of this Committee 
that there are available funds from various governmental sources 
and private foundations to help update administrative procedures 
in the courts. It is necessary to develop an initial and sub- 
stantial plan before money can be applied for. We recommend that 
this source of money be investigated as to availability. 

This Committee reviewed the methods of establishing trial 
jury panels used in the Superior Court. In 1965 Judge Raymond J. 
Arata, then Presiding Judge, initiated the first order to start the 


SUPERIOR COURT (continued) 

use of data processing methods in the selection of trial jurors. 
The processing of trial jury panels is at its ultimate point of de- 
velopment, insofar as data processing is concerned. It has been a 
benefit not only to the Superior Court but to the County Clerk and 
the Sheriff. It has allowed the court to make better use of person- 
nel and was the source of personnel to start the Master Criminal 
Calendar. This system of trial jury processing is operated and 
maintained at an extremely low cost figure. 

The Presiding Judge, Carl H. Allen, and the Executive 
Officer, Bernard J. Ward, have many problems to contend with in the 
administration of the courts, but the problem that is of most con- 
cern is the need for space and the need is immediate. 

There is an urgent need for a courthouse building. In 1920 
the Superior Court was placed on the fourth floor of the City Hall. 
Original plans called for a courts building to be constructed in the 
Civic Center, but funds were not available, and the courthouse was 
not built. The fourth floor of the City Hall was originally 
intended for a storage or loft space. So for the past fifty years 
the Superior Court has been housed in a loft or storage area. 
Definite efforts should be taken by the judiciary, the legal pro- 
fession and interested citizens to construct a courts building. San 
Francisco is the only county in the state without a courthouse. 

The Legislature has approved the appointment of two addi- 
tional Superior Court judges and these judges will soon be appointed 
by the Governor. These additional judges will help somewhat to 
relieve the pressures on the criminal and master calendars, but 
these appointments alone will not bring the calendars in line. 

Presiding Judge Carl H. Allen has inaugurated a system of 
using temporary judges to help relieve some of the court's backlog 
of cases. These temporary judges are lawyers whose names have been 
furnished to the court by the Bar Association, and these men hear 
one or several cases. The court is to be commended for using every 
means possible to bring the court's calendar up to date. 

We wish to commend the Judges of the Superior Court and 
their attaches for the work they are accomplishing under very ad- 
verse conditions, not of their making, and to the people of San 
Francisco we urge them to take a strong position for their judges 
and their courts, and see that they have all of the administrative 
help and assistance that is required in these troubled times. 



This Committee is concerned with the accommodations of the 
Law Library under the direction of Librarian Harold E. Rowe. We have 
inspected the operation of the library and found it well organized 
and useful to the judiciary and legal profession. 

The library serves the legal profession in research on law 
and legal matters. The number of volumes grows each year. It is 
unfortunate that they must store books in basement areas where there 
is the possibility of damage. Again t h e problem of spa c e and th e 
need for a courts building presents itse lf . The law libra ry should 
have sufficient room in any court structure that is built. 


This Committee visited the Adult Probation Department, 
which is presently under the direction of Mr. Warren Jenkins, who is 
Acting Chief Adult Probation Officer. We believe that he is doing 
a good job and is to be complimented for his interest and efforts. 

The Adult Probation Department has a tremendous work load. 
The Department is under the jurisdiction of the Judges of the Superior 
Court. Besides handling persons placed on probation by the court, 
this department is handling and responsible for the collection of 
moneys from absent fathers who are court obligated to pay child 
support, the collections of fines imposed by the courts, and the 
collection of money of restitution ordered by the courts. This 
results in a tremendous amount of work and requires a large staff 
to handle all of the persons under supervision. 

Under Warren Jenkins this department has established the 
start of a data processing procedure to handle the paper work for 
the probation officers and a means of controlling and accounting for 
the moneys from absent fathers, restitution, and fines. Jenkins has 
enlisted the assistance of data processing department personnel to 
establish this program which will be extremely helpful and effective 
in management of the department and ease the work load of the pro- 
bation officers. 

This Committee has learned that where defendants are 



placed on probation instead of being sent to state prisons, under 
most circumstances the City and County, under a subvention process, 
will be given moneys. It is known that some persons can be main- 
tained in society as probationers, and in most instances improve 
their lot, at a considerably less amount than if the persons were 
placed in prison. This is not a new thought of releasing persons, 
non-violent, back to society as soon as possible or on straight 

There has been some public discussion of combining the 
Adult Probation Department and the Juvenile Probation Department. 
We would strongly recommend against such a pract ice. It might pos- 
sibly look like a saving at first glance, but a study should be 
conducted before this is done. This Committee be l ieves that the two 
fields of juvenile and adult proba t ion are dissimilar . National 
figures indicate that more money and time is spent with the juvenile 
because of dependency and youth - than on the adult offender. 

Stuart R. Adams 

Maurice L. Goldman 

Harry E. Gray, Chairman 



It is the feeling of the current committee that if San 
Francisco is to continue operating a Youth Guidance Center, a forward- 
looking program should be initiated. The present Board does an adi- 
mirable and commendable Job with the tools they have to work with. 
There is an ever-increasing need of financial aid, both for super- 
visory personnel and maintenance as well as the necessity of caring 
for the tremendous number of cases which are referred to the Center 
every day 

In certain areas of maintenance, the City seems extremely 
shortsighted in not selecting the assistance and counsel of the San 
Francisco Building Trades Industry to aid in teaching and supervising 
the young people, who are inmates, in doing something constructive 
with their time. The need for constructive advice and supervision is 
most pressing. Such a plan could be of immense benefit to the young 
people • 

As for supervisory personnel, two men per cottage, which is 
the term used for each dormitory area, may be adequate as long as 
there is no trouble. It appeared to this committee that if thirty- 
five to forty seventeen-year-old boys decided to rebel - emergency 
bell or not - a lot of damage and casualties could result before 
peace and order could be restored. 

To simply reiterate last yearns report - as well as the 
report of 1968 - seems a superfluous job. However, we do feel 
impelled to itemize the major areas where improvement is essential. 

1. The building and grounds are entirely inadequate to 
satisfactorily care for the ever-increasing number 
of cases that the Center is required to deal with. 
Not only are additional classrooms and recreational 
areas needed, but due to the overcrowded cottages, 
both for boys and girls, additional detention areas 
should be available with the additional staff to 
maintain them. This would help eliminate a serious 
security problem by decreasing the ratio of super- 
visory personnel to inmates. 

2. Due to the strict schedule which must be adhered to 
so that order can be maintained, there is too much 
leisure time between appointed tasks. There should 
be supervised direction during the entire day and 
even after dinner. Help from volunteers ahd the 
Guardsmen is a great asset, but the need for 



additional recreation facilities and supervisory 
personnel is urgent , 

3. It is also urgent that delinquents be separated from 
neglected or abandoned children and treated accord- 

i|. There are two honorary camp type schools for boys at 
La Honda: Hidden Valley for 10 to 15-year-olds and 
Log Cabin for 15 to 17-year-olds. There is no such 
facility for girls. While the camps share a recrea- 
tion hall and swimming pool which causes obvious 
problems, there are far greater needs that must be met 
before attempting to improve these camps. 

5. There is a definite need for youth counselors . There 
should be available men or women whose sole responsi- 
bility is gaining the confidence of their charges and 
trying to rehabilitate them and not to sit in judgment 
of them. A great many of the youths are runaways, 
subjects of neglect or those who have been picked up 
for some minor violation of the law. These cases should 
be counseled rather than censured, and qualified per - 
sonnel should be availabl e. 

As stated at the beginning of the report, the men and women 
who are charged with the operation of the Youth Guidance Center and/ 
or its various facets do a tremendous job and are to be highly com- 
mended. While their struggle for improvements and what they must 
surely feel essential changes may seem futile, they continue to do an 
outstanding job e They conceal their frustrations and maintain and 
optimistic attitude in the hope that some of their requests might 
be granted. 


The Art Commission is dedicated to the betterment and 
aesthetic beauty of the city of San Francisco. It is composed of ten 
members, appointed by the Mayor, and representing a cross-section of 
cultural and business executives. This Commission along with the six 
ex-officio members (made up of the Mayor and presidents of the de 
Young Museum, the Legion of Honor, the Public Library, the Recreation 
and Park Commission and the City Planning Commission) have a sphere 
of influence over six major catagories, 


ART COMMISSION (continued) 

First, and perhaps one of their main responsibilities, is 
the approval of the design of any structure built on city property. 
This also includes the approval of any gift offered to the city. 

In line with the above, it is the implementing agent for 
the 2% ordinance, which allows up to 2% of the cost of any public 
building to be spent for the building's beaut if ication. This can be 
used for art work, statues, or in any way that the Commission feels 
will add to the beauty of the city. 

It is in charge of the outdoor art show and is empowered to 
spend up to $5>000 to acquire art works for public offices. 

Another of its responsibilities is the neighborhood arts 
program. This is a relatively new endeavor and is just now being 
noticed and appreciated. 

The Art Commission is in charge of the Civic Choral Group 
and produces the summer Pop Concerts. 

The entire Commission does an outstanding job and on a very 
limited budget performs a very necessary service for the city. Under 
its very able Executive Director, Martin Snipper, the Art Commission 
continues to operate on an ever increasing high-level of efficiency. 

Wayne R. Burke 
William J. Welsh 

Maurice L. Goldman, Chairman 

■ HO- 


The 1970 Grand Jury Committee studied at great length pre- 
vious Grand Jury Reports, as well as being aware of much written and 
vocal criticism of the Civil Service Commission and the General Mana- 
ger, Personnel. 

In deciding how best to investigate the Civil Service De- 
partment some obvious facts influenced our course. They were: 

(1) The General Manager, Personnel serves at the pleasure of the 
Commissioners. Shortly after the strike of city employees early in 
1970 the Commission held a meeting to decide whether or not the 
General Manager should be removed. The meeting was publicized and 
interested parties were invited to testify. To our knowledge not one 
department head attended. The General Manager was retained. 

(2) Later in the year in a meeting with Mayor Joseph L. Alioto a 
question was raised concerning the General Manager and previous grand 
jury recommendations asking for his removal. The Mayor stated that 
the General Manager was doing a good job in a very difficult position. 

It was decided by the Committee to concentrate on the broad 
problem areas which need to be corrected before substantial improve- 
ments can be realized. 

Two problems which are inter-related and which we consider 
serious, have been existing for some time (1) limited tenure and 
(2) the City Charter. 

LIMITED TENURE : This method of hiring was a hold-over from 
World War II when there existed a tight labor market. It has been in 
use ever since. Previous Grand Jury Reports have suggested abolish- 
ing Limited Tenure. Nothing has been done. Presently there are some 
2,000 Limited Tenure Employees. During this year, Commissioner John 
Molinari submitted a resolution which was supported by the Commission, 
recommending the phasing out of Limited Tenure over a two year period. 
This will necessitate an appropriation of approximately $600,000 a 
year for two years. It is to be used to clean up the backlog of some 
300 examinations. In Mr. Grubb's presentation to a joint meeting of 
the Board of Supervisors' Finance and Personnel Committees, he stated 
that it costs the City $5,000,000 a year to maintain this hiring prac- 
tice. It appears that the savings to the taxpayers plus improved 
side benefits both to the City and to the employees make it mandatory 
that this resolution and the necessary funding be approved by the 
Board of Supervisors and the Mayor. We support the resolution. 

In addition the Committee believes there is an injustice to 
those employees on Limited Tenure. They are without job security, 
plus the fact that they are not allowed to participate in the retire- 



ment fund and the health insurance programs. This tends to create 
dissatisfaction and poor morale which brings about low productivity 
among the Limited Tenures. 

It is our firm conviction that if Limited Tenure is abol- 
ished many of the personnel problems that all departments are 
experiencing will be greatly reduced. 

THE CITY CHARTER : The other problem which hampers Civil 
Service from working effectively, is the City Charter. If any pro- 
gress is to be made in the operations of all the departments within 
the City, the Charter must be revised. The voters must be made aware 
of the high cost of operating the City with antiquated rules and regu- 
lations. It is the Committee's belief that the voters will demand 
some positive action when they learn of this cost. 

Further, it is our opinion that in order for the City to get 
a fair share of qualified employees the Charter restrictions have to 
be removed. There are several examples where the City has lost quali- 
fied people to private industry because of the delay brought on by 
the miles of red tape which the Charter supports. 

Another example of the short -comings of the Charter is the 
"protest proviso." The General Manager states that twenty percent 
(20#) of his staff's time is spent on challenges by those taking the 

We find it impossible to comprehend when a qualified person 
seeks a position with the City why he or she has to wait on an aver- 
age of ninety (90) days before being certified as a permanent em- 

The urgency of streamlining the Charter looms all the more 
important when you consider such things as collective bargaining by 
city employees. The city managers should be given the same advan- 
tages in bargaining as managers in other industries. We think the 
Charter prevents this. 

Because of this and other associated problems we recommend 
the formation of a task force to start immediately to revise the 
Civil Service portion of the Charter. It is hoped that these revi- 
sions would be placed on the ballot during the year of 1971. We 
recognize the problems which the lack of time creates, however, we 
feel the rewards to the taxpayers and the City employees will be well 
worth the effort. 

It is a matter of concern to this Committee that there 
exists in the annual salary ordinance an item which states that any 
department head who has had his position for five (5) years be guaran- 
teed his existing salary if he be demoted. This in our opinion is a 
security which goes beyond that which the Civil Service should provide, 
A City employee should be compensated according to the existing pay 


THE CIT CHARTER (continued) 

scale fcr the position held. We recommend that this provision be dis- 
continue in the future. 

In conclusion, this Committee would point out that the lack 
of suff cient staff in the Civil Service Department indicates, as 
based o. available statistics, that the San Francisco Civil Service ranks below many other similar communities. 


This Committee visited with the Secretary-General Manager 
of the .etirement System Eoard, Daniel Mattrocce, who with a great 
deal of competence reviewed for us the operations of this department. 
We have also visited with the Board Members and have attended a num- 
ber of he official meetings to determine for ourselves the complete 
operations of the Retirement System Eoard, the actuarial, and the 
office rocedures. 

We feel that the Retirement Fund should receive prime con- 
sideraton from the Board of Supervisors, the Mayor, and the Civil 
Service Commission in obtaining or retaining acceptable and experienced 
investir.nt counsellors. It is our feeling that more lucrative salary 
provisions would attract outstanding investment counsellors. The 
Retirem-nt System in several instances in the past has been unable to 
compete with other municipalities and/or business and industry in 
obtaini.g or retaining recognized investment counsellors. This fund 
amounting to millions of dollars should receive the attention and 
cons id nations that it deserves. 

We feel that it should be the province of the Retirement 
System toard to propose the necessary inducements to obtain and re- 
tain at all times recognized investment counsellors and that in the 
event tiat this was not possible, that the Board should have the 
power t> engage on a contractual basis the services of recognized 
investment house and/or banks. 

The Retirement System has experienced difficulty in the 
past w:;h the application of data processing methods to the tabula- 
tion ari control of employees and City contributions to the Retire- 
ment Fiid. There has been discussion of seeking outside agencies 
to brir^ this processing up to date. There has also been discussion 
in seeking another method or system to accomplish this. We would 
feel th.t first there should be a summit meeting of the Mayor, Board 
of Supervisors, Retirement System Board, the Controller and the 
Manage: of Data Processing to determine that the present operation of 
data processing could accomplish the desired end of bringing the 


THE CITY CHARTER (continued) 

scale far the position held. We recommend that this provision he dis- 
continue in the future. 

In conclusion, this Committee would point out that the lack 
of suffiient staff in the Civil Service Department indicates, as 
based or available statistics, that the San Francisco Civil Service 
Department ranks below many other similar communities. 


This Committee visited with the Secretary-General Manager 
of the retirement System Board, Daniel Mattrocce, who with a great 
deal of ompetence reviewed for us the operations of this department. 
We have .lso visited with the Board Members and have attended a num- 
ber of t.e official meetings to determine for ourselves the complete 
operations of the Retirement System Eoard, the actuarial, and the 
office procedures. 

We feel that the Retirement Fund should receive prime con- 
siderate from the Board of Supervisors, the Mayor, and the Civil 
Service ommission in obtaining or retaining acceptable and experiencec 
investment counsellors. It is our feeling that more lucrative salary 
provisias would attract outstanding investment counsellors. The 
Retirement System in several instances in the past has been unable to 
compete rith other municipalities and/or business and industry in 
obtainir^ or retaining recognized investment counsellors. This fund 
amounting to millions of dollars should receive the attention and 
considerations that it deserves. 

We feel that it should be the province of the Retirement 
System bard to propose the necessary inducements to obtain and re- 
tain at ill times recognized investment counsellors and that in the 
event trat this was not possible, that the Board should have the 
power tc engage on a contractual basis the services of recognized 
investmeit house and/or banks. 

The Retirement System has experienced difficulty in the 
past witi the application of data processing methods to the tabula- 
tion anc control of employees and City contributions to the Retire- 
ment Furl. There has been discussion of seeking outside agencies 
to brin( this processing up to date. There has also been discussion 
in seeking another method or system to accomplish this. We would 
feel thct first there should be a summit meeting of the Mayor, Board 
of Supervisors, Retirement System Board, the Controller and the 
Manager )f Data Processing to determine that the present operation of 
data prcessing could accomplish the desired end of bringing the 



contributions, etc., up to date. Then, if the decision was that this 
could not be accomplished and another system was to be applied, that 
the new or second system should be one that could be converted to 
the operations of the present Data Processing Department's methods 
and machinery. 

It was the report of several previous Grand Juries that the 
records of employees should be consolidated into one source of infor- 
mation that could be used by Civil Service, Retirement and Health 
Service. It is the feeling of this Committee that this is something 
that should be undertaken as soon as possible to help in the stream- 
lining of employee records . It is possible with a combination of 
this type of record keeping that the work of the various departments 
would be lessened and that the Data Proc e ssing Department could 
handle the combination effectively . It would be the suggestion of 
this Committee that if thi s arran gemen t wa s positively considered , 
that the Data Processing applications should be first by individual 
departments and then combined. 


The Health Service System operates under a Board Method 
consisting of five (5) members elected by the City employees and 
ex-officio members consisting of the Chairman of the Finance Committee 
of the Board of Supervisors, a representative from the office of the 
City Attorney, and the Executive Director, Lyle J. O'Connell. The 
Health Service System Board operates the health service programs for 
the City employees. 

The personnel under the direction of Lyle O'Connell are to 
be complimented for the patience they exhibit in carrying out the 
duties of the office. It is often perplexing for people in dealing 
with health insurance and doctors and hospitals, especially in time 
of personal stress. The various interviewers in this office show a 
great deal of concern and patience for those needing information and 
services . 

As Members of the Grand Jury and also Members of a Particu- 
lar Committee or Committees, we receive copies of audits conducted 
into various departments of the City and County. We are unaware of 
receiving any audit from this department. We want to make this clear. 
We investigated the operations of this department and find no critique 
of the department from a financial control standpoint, but we would 
say that from a sound business standpoint and as a protection to the 
employees using the system, the Board and the Executive Director in 
charge of the system that an audit should be conducted of this very 


imp ortant department . We w ould recommend to the Boa rd and to the 
Executive Director tirat a request for this audit should' be made part 
of the budget requests for the next fiscal year . 

We also recommend to the Health System Board that they 
include in the next budget request funds to allow the Executive 
Director to attend conventions and business meetings concerned with 
the interest and advancement of health service systems. It is very 
necessary for the officials of this department to be aware and alert 
to the many changes in health insurance and programs and the ramifi- 
cations of the application of Medi-Care and Medi-Cal. The City should 
make the m e ans available for officials of this department to be in 
contact with others in the field through organization meetings and 


The City Attorney rendered an opinion in 1966 which stated 
the following: 

"The Grand Jury has no jurisdiction to routinely in- 
vestigate the Economic Opportunity Council, because 
it is not a county office, but is only a private non- 
profit corporation." 


In 1969, the District Attorney concurred with the above 

Based on this opinion, the Committee decided not to investi- 
gate this agency. However, the Chairman did meet with the Executive 
Director of the Economic Opportunity Council and found him very 

Because of the ruling by the City Attorney which limits the 
Grand Jury's investigative power, the Committee recommends that this 
organization be dropped from future County Grand Jury's respbnsibi- 
lities . 

Rudolph W. Arfsten 
William P. Greene 

William J. Welsh, Chairman 



The 1970 Grand Jury Committee on the Controller's Depart- 
ment, composed of Foreman Raymond Hackett, Committee Chairman W. P. 
Greene, and members Stuart Adams and Harry Gray, met with Nathan B. 
Cooper in his office on April 2, 1970 for a fireside chat as to the 
conditions of his department, Personnel and Data Processing. 

Mr. Cooper had some answers to queries that were on the 
vague side, i.e., Data Processing at present costs the City 
$1,890,000.00 per year. Asked about forecasting the needs for the 
next 5 or 10 years, programming and costs, he was very evasive. In 
today's business world it is imperative and very necessary to look 
forward, and more so, in the City and County of San Francisco Govern- 
ment accounting and the means to the end result. Again the question 
of limited tenure was brought about with the answer that Civil 
Service did not come up with the proper examinations to fill certain 
vacancies. At this point, we would like to say that in certain cate- 
gories, the starting salaries are not high enough to attract men or 
women from industry. After further questioning about controls and 
other figures, we were told to talk to Mr. Martin Judnick, Chief 
Accountant, General Audit Division. 

Our first meeting with Mr. Judnick was on April 16, 1970 
and a general discussion on many points of accounting and procedures 
of the City were talked over. This meeting allowed me to see the 
General Ledger of Accounts Receivable. One item of $180,170.00 for 
Interceptor Serwer- Bancroft- Griffith, entered on books August 18, 
1969* still outstanding at this date. 

Authorization Board of Supervisors Resolution No. 190-67 
approved March 23, 19o7, reads as follows: 

Authorizing the Chief Administrative Officer and the 
Director of Public Works to execute and file application and execute 
all documents required in connection with an offer and acceptance of 
Federal Grants for sewage treatment works. 

Further: Offer & Acceptance. 

The Grant Contract was executed by S. M. Tatarian, Director 
of Public Works, on July 23, 1969, whereas the enabling Resolution 
No. 190-67 was approved March 27, 1967 . It appears that said Grant 
Contract (Controller's copy) was not executed by the Chief Adminis- 
trative Officer as required. Resolution No. 190-67 not approved by 
the City Attorney as provided in Charter Section 26. Further in- 
vestigation disclosed that upon completion of the project the cost 



was charged against a Sewer Bond account, rather than the account 

Subsequently, after this disclosure, a journal entry was 
made. Our Point in this disclosure is, that proper supervision and 
control are not maintained in the Controller's Department. Further 
discussion with Mr. Judnick brought to light the fact that Federal 
and State Grants to the City and County of San Francisco as of 
March 31, 1970, unaudited, totaled in excess of 94 million dollars, 
with full knowledge that in the next 10 years this amount could be 
doubled with the anticipated increase of cost and inflation. This 
total of 94 million was a document in detail prepared by Mr. Judnick, 
unaudited, and presented to Mr. Cooper, the Controller, on June 9, 
1970, and a copy was given to Mr. W. P. Greene, with the understand- 
ing that the Grand Jury would give Mr. Cooper several weeks to digest 
the contents. On July 20, 1970, THE EXAMINER headlined their article 
about the amount involved, the document was given to them by Mr. 

On July 23, 1970, ten (10) members of the Grand Jury met 
with Mr. Cooper and Mr. Judnick and discussed the document in detail. 
The conclusion of the Grand Jury of Mr. Cooper's answers to the 
various questions was negative, to say the least. He did bring to 
light one receivable due from Golden Gate Bridge Highway District 
since 1929-30 in the sum of $367,210.55 (this was set up on the books 
before Mr. Cooper took office). Why this item was still carried as 
a receivable all these years is not understandable. Again, poor 
control and supervision. A letter addressed to Mr. W. P. Greene, 
stating that an opinion in the Golden Gate Bridge and Highway Dis - 
trict vs. Luehring case, the City and County of San Francisco cannot 
recover this money. Opinion of City Attorney T. O'Connor confirms 
the facts. 

When this situation was called to the attention of Mr. 
Cooper, his assistant, Mr. Gonsolin, appeared before the Grand Jury 
with documents showing that a "Reserve" had been set up on May 6, 1959 
for this amount. Again, poor control and supervision, as the item 
of $367,210.55 was carried as a receivable and the Reserve not shown. 
This amount has finally been removed from the General Fund as of this 
date. Again, in the month of July 24, 1970, to be specific, newspaper 
article 'Bart Denies Owing City the Sum of $337,000.00.' This sum 
of money is for work performed by City employees on Bart projects for 
the years 1964 to 1970. 

A letter by S. M. Tatarian, Director of Public Works regard- 
ing billing of this amount: "Shortly after our billing in April 1969 
there occurred a major staff change in our Bureau of Accounts. The 
accountant in charge was promoted to a position with the Board of 
Education and his position has been filled, since his departure, by 
an accountant of the Bureau on a temporary basis. This person was 



unaware that bills were outstanding and that bills for some work had 
not been invoiced." (Since then instructions have been issued in 
order to avoid a repetition of the unfortunate situation.) These 
three incidents prove only one thing in accounting: if you have a 
C.P.A. firm audit books, all items on the books should be audited, 
and specifically in the Controller's Department where the Receivables 
are not verified. As in the case of Golden Gate Bridge and Highway 
District, it is reasonable to believe that there are other items in 
this category. All the more reason for a C.P.A. to do a more thorough 

As of November 25, 1970, Mr. S. M. Tatarian's Office in- 
formed members of the Grand Jury that all but $33,000.00 of the 
above amount has been collected. 

The examination of the Employees Retirement System as of 
June 30, 19^9? was performed by Farquhar and Heimbucher and finally 
submitted to the Controller under date of August 18, 1970, 13-1/2 
months after starting. The G rand Jury is of the opinion that such 
a report should be returnecTTn at lea's t~9"0~ days and should be so 
stipulated i n the contract with any C.P.A. firm employed" ! In this 
report of examination on page 6, discloses the market value as of 
July 1, 1970 of common and preferred stock held on June 30, 1969 wa s 
approximately $7,170,000.00. There is no mention of the market value 
of Bonds in this report. 

The monthly Cash Audit is known as such, a monthly report. 
The last report submitted to Mr. Cooper by the General Audit Section 
was at the close of business December 31, 19^9 & n d presented as of 
July 22, 1970 , a lapse of over" six months. The reason for such time 
delay rests in the Outstanding Warrant Division, as no reconcilement 
of Outstanding Warrants has been made available to the General Audit 
Section. Granted only the Cash has been counted and checked with the 
Treasurer each month. 

The Grand Jury after looking over the physical properties 
of the Warrant files that are maintai n ed in a loft with boxes and 
boxes of Warrants; the se should be in a fireproof vault; in the case 
of a fire in this loft~5o"fh life and properties could be lost. IT 
is our suggestion that this situation be corrected within a reason- 
able time. 

In order to comply with the Charter, Governmental Account- 
ing Section 26905 quotes "Examination of Treasurer's Books". "Not 
later than the last day of each month the Auditor shall examine the 
books of the Treasurer as of the close of business of the preceding 
month to determine that the Treasurer maintains current and adequate 
records for internal control of transactions of his office and that 
the records of the Treasurer are in agreement with the records of 
the Auditors". This has not been done for six months due to the 



tie-up in Reconciling Warrants Outstanding! 

Again, lack of control and supervision on the part of the 
Controller's Department. 

It is the conclusion of the 1970 Grand Jury that a very 
comprehensive study should be made of the Controller's Department 
relative to developing and maintaining systems and procedures and 
better coordination between various City and County departments, 
including the Board of Supervisors, Mayor's Office and the Control- 
ler's Department, and including numerous State and Federal agencies, 
to meet present day requirements. 

It is believed that the City would be better served if a 
new division or department be established for the handling of all 
Federal and State grants and subventions and that an adequate staff 
be employed full time to supervise these funds, that at present are 
all out of line as far as supervision, control, billing and collec- 
tion of receivables due within a reasonable time. System is very 

In the C.P.A. report for any fiscal year all outstanding 
receivables should be verified and any exceptions and uncollectible 
items should be noted in their report. 

As noted previously, some items outstanding for years now 
appear as uncollectible, amounting to thousands of dollars (unaudit- 
ed to now). It is also suggested that each department check periodi- 
cally with the Controller's Department to verify their records with 
the Controller, and his audit staff verify said report and report 
back to the Controller any exceptions. 

As of September 30, 1970 Martin Judnick, Chief Accountant, 
General Audit Division, retired and up to the date of this publica- 
tion he has not been replaced and there is no indication from Civil 
Service when an examination will be available for this most important 
position in the Controller's Department. 

As stated earlier the Grants receivable by the City can 
become enormous. 

1. Three specific instances within a week occurred. 
$Five (5) Million Dollars for San Francisco 
Redevelopment Agency. 

2. It is expected that the San Francisco Redevelopment 
Agency will require $40 Million Dollars to complete 
the project. The Agency to ask for $21 Million 
Dollars immediately. 

4 9 


3. City to apply for $22 Million Federal Grant under 
the Urban Mass Transportation Act of 1970. 

4. All of these figures add to the immensity of the 
Grants; and the City will be asked to match some 
of these funds. 

All of these projects take money and in many instances the 
City advances money for long periods of time, cash outlays, and 
then the various government agencies are billed for the monies. It 
is the opinion of the Grand Jury that some method should be devised 
to enable the City to receive some interest on the monies advanced 
for all or a portion of these amounts. 

The 1970 legislative session enacted Government Code 
Section 930, effective November 23, 1970. 

Government Code Section 980 reads: 

"Whenever a request for payment from the state of 
a local entity pursuant to the terms of a contract for 
the construction of a public work project as defined in 
Section 1720 of the Labor Code is properly filed and the 
validity of such claim is not disputed or has been settled 
or agreed upon, payment of such claim by the disbursing of- 
ficer of the state or public entity shall include interest 
at the legal rate of 7 percent per annum commencing 90 days 
after the proper submission of such claim." 

Mr. Cooper has advised all Department Heads as of 
November 20, 1970 Instruction No. 649 that contract payments be 
processed promptly. This affects only State Contracts and not 

The 1970 Grand Jury also recommends that the Finance Com- 
mittee of the Board of Supervisors ask the Controller for a complete 
report up to date on Grant projects and that Grants as suc h not be 
put into the General Fund of the City, but a separate Ledger 553 
controls be established. 

Stuart R. Adams 
Harry E. Gray 

William P. Greene, Chairman 



Many of the situations that prevail in the Superior Court 
are also problems in the Municipal Court - case loads, space require- 
ments, new judges, updating administrative procedures, etc. We do 
not want to minimize the Municipal Court in not stating these matters 
in full, as it would only add to the length of this report and be 

The Municipal Court has a great number of cases, often with 
the same repeating defendants, in crimes that are classed as "crimes 
without victims," such as alcohol addiction , homosexuality, d rug 
a ddiction . In addition, the Municipal" Court has the supe rvisio n of 
"the Traffic Fines Burea u and the Traf fic Court . 

The Presiding Judge, Leo R. Friedman, Court Secretary, 
James J. Cannon, and Jury Commissioner, Bruno Fardin, are faced with 
many administrative problems, the most pressing are the traffic fine, 
which is a matter of additional personnel, and the space problems for 
additional judges. 

The Municipal Court h^s inaugurated a system of using only 
six (6) trial jurors on civil cases instead of the usual twelve (12). 
It is necessary, though, to have the approval of the attorneys on 
both sides of a case to function with only six (6) trial jurors. We 
commend the judges of the Municipal Court for their efforts to 
develop an experience factor in civil juries of reduced numbers. 

There have been various comments on the use of Night 
Courts. We would think that an "in-depth" study should be made before 
any commitments are given toward establishing such a court system. 
Consideration should be given to the types and kinds of cases that a 
Night Court could handle. Consideration should be given to the 
amount of personnel that would be required to handle such matters 
without activating a large section of the Municipal Court. Currently 
the Municipal Court Judges are engaged full time on daytime schedules 
and it would be necessary first of all to determine how extra judges 
could be provided for the Night Courts and still at the same time 
keep the daytime schedule of courts to full capacity. 

Presently the Municipal Court is developing an excellent 
system for establishing trial jury panels and the initial processes 
for data processing application to the court calendars. 

Stuart R. Adams 

Maurice L. Goldman 

Harry E. Gray, Chairman 



This office under the guidance of Joseph E. Tinney has been 
most enlightening. Ke and his Administrative Assistant, Val Kins, 
have done a remarkable job of efficiency in strc-amlininlnc- eV< 
phase of his office. 

Assessor Joseph E. Tinney announced that San Francisco's 
assessable land, buildings and personal property have a full cash 
(fair market) value of over $9.5 billion. 

Property in San Francisco is assessed at 25$ of fair market 
value and the Assessment Roll for 1970-71 reflects assessed valua- 
tions of $2,385,574,264, an increase of $33,869,273 over last year's 

1) The assessed valuation of land and buildings, reflecting 
new construction, alterations, re-valuations of large office build- 
ings and equalization procedures, showed a gross increase of more 
than $49 million over last year. Deductions for acquisitions by tax 
exempt entities, demolitions, etc. amounted to upwards of $16 million 
in assessed valuation. Further deductions due to Constitutional 
exemptions increased over $3 million in assessed valuations. 

2) New construction added 446 units to the Roll. A break- 
down of this figure shows 226 dwellings, 82 apartment buildings, 42 
flats and 96 commercial and industrial structures. 

Major alterations to existing properties, which resulted in 
increased valuations, amounted to 1,475. 

There were 135 demolitions during the past year and 403 
properties were acquired by tax exempt agencies. The Redevelopment 
Agency alone removed from the Roll property amounting to $4,465,100 
of assessed value. Decreases in the Roll amounted to $11,653*724 of 
assessed value due to demolitions, revaluations, fire damage, reduc- 
tions made by the Assessment Appeals Board and acquisitions by BART 
and tax exempt entities. 

3) Assessed valuations of Constitutional exemptions such 
as veterans, welfare, churches, colleges and orphanages, rose from 
$104,876,585 last year to $107,944,874 this year, an increase of 

4) Tangible personal property (business inventories, machin- 
ery and equipment) including the estimated assessment of state-assess- 
ed properties, amounted to $284,483,280 in assessed valuation, an 
increase of $3, 173.041. 



5) Exemptions for which S n Francisco will be reimbursed 
by the State fall into two categories: homeowners 1 exemptions and 
business inventories. Homeowners* exemptions numbered 76,208, an 
increase of 1,151 over last year, carrying an assessed valuation of 
$57,155,875, an increase of $863,125. 




This most important department in City government is under 
the able supervision of John J. Goodwin. 

During the year 1970 two changes took place in this depart- 
ment. For many years bank deposits of the City and County of San 
Francisco have been secured by the actual deposit of certain types of 
bonds, i.e., either United States Treasury Bonds or bonds of munic- 
ipalities. As of July 1, 1970, all of these bonds were returned to 
the respective banks and receipts for the amounts involved were deliv- 
ered to the City Treasurer, relieving him of the work load of cutting 
coupons on all of these bonds at least twice a year and delivering 
said coupons to the various banks. The dollar value of this exchange 
amounted to some Three Hundred Millions of Dollars ($300,000,000). 

The second change was the relieving of regular San 
Francisco Police Department officers from their duty of guarding the 
office of the Treasurer of the City and County of San Francisco, a 
measure that has been a tradition with this office for many years. 
They have been replaced by civilian Police employees with no Police 
background. As explained to the Grand Jury members they will be 
trainees at the Police Academy. Their uniform is a jump suit of 
light blue color and they will have a Police badge of sorts and side 
arms. Time will tell of their efficiency. 

This office handles the equivalent of approximately Six 
Millions of Dollars ($6,000,000) in warrants and over a period of one 
month over One Hundred Forty-six Thousand (146,000) warrants are 


TREASURER (continued) 

processed. It has been one of the major projects in this department 
to have sufficient manpower to do a proper job. Since Welfare is 
now paid twice a month it means the handling of double the number of 
warrants as before and this will require more manpower. IT IS OUR 

One recommendation the Grand Jury would make would be in 
the security measures in this office. In order to gain admittance 
to the office proper it is necessary to be admitted through a gate 
controlled from inside the office. The security vault in the inner 
office should be under joint custody, i.e., two persons should have 
control of keys to and from this area. In several visits to this 
area the Grand Jury noticed that securities and other valuable doc- 
uments, coupons, coin and currency were in open spaces on counters 
and desks. We think that in joint custody each entry to and from 
the vault proper should be recorded in a permanent book of entry 
disclosing the time of day and the day of the month and year. 


The Electronic Data Processing Department is under the 
direction of Mr. Henry Nanjo. After several meetings of the Grand 
Jurors with Mr. Nanjo, some clarification as to the many problems 
that face this department was brought to light so that the Grand 
Jurors could discuss them. 

The cost of this data processing project for the year 1969- 
1970 was estimated at $1,890,000. It is one of the objects of this 
department to update the data processing machinery so that a greater 
input and consequently a greater output will result. The cost for 
the year 1970-1971 is estimated to be $2,350,000. Our thoughts are 
that if the present machinery cannot produce the end result, of 
greater output, is it feasible to order new equipment? 

It has been the findings of many Grand Jurors in their 
contact with many of the department heads that the department heads 
felt that there was not a harmonious relationship between themselves 
and data processing people. 

This field is so enormous in that it can process work for 
all of the departments of the City and County and it is difficult 
for people not thoroughly acquainted with this work to know what 
actually takes place or what is needed for the Data Processing 
Department to function with their particular departments. 



As mentioned in the Report on the Office of the Assessor it 
took about two and one half years to get the full and final effect 
into proper order, but it was only with the full cooperation on both 
the part of the staff of the Assessor and the programmers and other 
personnel in the Data Processing Department that a satisfactory 
result was achieved. 

Also, Ralph A. Sheehan, Administrative Assistant to the 
Executive Officer of the Superior Court, Bernard J. Ward, has worked 
over five years to bring about a completely automated system for the 
processing of trial jurors from the time the names are drawn from 
cross-section listing to the time the trial jurors are actually 
placed in service. 

These two instances represent a great deal of work and 
close cooperation by Mr. Tinney and his staff and Bernard J. Ward 
and his staff with the personnel of the Data Processing Department. 

A comment about the November 1970 Election Returns. It 
has been noted that ninety percent (90$) of the returns were counted 
by 1:00 A.M. the next morning which is a great improvement over the 
June 1970 returns. 

The staff of the Data Processing Department should be at a 
total of 275 persons as approved by the budget. There were 30 va- 
cancies. Part of the problem here is in the fact that it is dif- 
ficult to obtain personnel for salary reasons. The starting range 
in some categories in San Francisco is $795*00. In Alameda County 
the starting salary is $862.00, and in Los Angeles County it is 
$914.00. Mr. Nanjo reported that after an employee is with San 
Francisco for some time and an opening occurs in Alameda County, the 
employee leaves San Francisco for the higher paying job. 

It is our belief that in many of the departments some of 
the Data Processing work or most of it could be done by a Data Proc- 
essing Center at about the same cost (if a cost basis could be 
Obtained from the city on its own items) or less. If the work is 
sent to these centers they have a deadline to meet for the output and 
every effort is put forth to meet these deadlines. We have been 
advised that the Retirement Board has investigated the output of the 
Bank of America facilities to update the Bond Portfolio. 

In this field of Processing Centers their manpower is gear- 
ed for the many problems of daily transactions and in most instances 
they have some specialists that have the answers and we strongly feel 
that this phase of Electronic Data Processing should be investigated. 
Due to the great amount of new and old projects some completed and 
some not, that every effort should be made to have a sum of money 
budgeted in the coming year for a qualified team to overhaul, inves- 
tigate, and recommend the various programs as they are and what they 
should be. 



As mentioned before with the cost increase year by year, 
the management team should scrutinize this department in detail. 

Previous Grand Juries nave reported in many instances the 
updating of departments by certain dates and it is our belief that 
this has not been accomplished in this year of 1970. 

Stuart R. Adams 
Harry E. Gray 

William P. Greene, Chairman 



The Department of City Planning is both charged by law and 
functionally concerned with the following kinds of planning activities, 
all as part of the planning and development process: 

1. The preparation of plans, programs and basic policies 
on a comprehensive, city-wide basis. The time scale 
of such plans, programs and policies is both immediate 
and long range. 

2. The preparation of district plans and development 
programs for distinct areas of the city, as delineated 
by unique locations, special circumstances, or 
identifiable physical, social or economic problems. 

3. The provision of special reports, development plans 
and professional services as related to implementa- 
tion of plans and programs. 

4. The conduct of continuing responsibilities and tasks, 
such as formal response to Master Plan referrals; 
preparation of case materials for the Commission's 
monthly Zoning Hearing: review of non-conforming 
uses and zoning violations; coordination of design 
review process: a ^d provision of a sizeable public 
information service. 


Comprehensive Planning 

In June, the Department published The Improvement Plan for 
Residence — A Proposal for Cit i zen Review . The contents of this 
document focus on establishment of longer-range objectives and policies 
for housing and the translation of these into shorter-term targets 
and programs. Major recommendations of the report represent a com- 
bined effort of the Mayor's Office, Housing Authority, Redevelopment 
Agency, Human Rights Commission, Department of Public Works, Real 
Estate Department, and City Planning. Nearly 2500 copies of the 
report have been distributed at large. Following an intensive period 
of public review, the document will be revised and portions presented 
to the Planning Commission for adoption as part of the Master Plan. 

In April, the fourth annual issue of Changes i n the San 
Francisco Housing Inventory was published. It noted tnat the Cxty 
achieved its smallest one-year net gain in housing of the decade. 

The Urban Design Study, in progress for nearly two years and 


financed in part by a federal grant of approximately $180,000 is now 
approaching completion. Tris year preliminary reports Nos. 4, 5> 6, 
7 and 8 were published, entitled respectively Exi sting Form and Image , 
Urban Design Prin ciples, Soc ial Reconnai ssance , Implem entation 
Approaches , and Citywide Urban^fJesTgn" Plans . The final report will 
be published early next year, and following a period of public review, 
presented to the Planning Commission for adoption as part of the 
Master Plan. 

Achieving a Commo n Information System , first published in 
February, 1969 , was reissued in abridged form in October. It is the 
first step of the Department in establishing a means for the City to 
facilitate cooperative action in information collection, storage and 
use. Also in October, the Department published the first issue of 
Access; Newsletter for Common Information , intended to keep partici- 
pants advised of progress and essential developments in establishing 
a common information system. 

Another major emphasis during the year was in the develop- 
ment of a two-volume study geared toward transportation policies. 
The first volume, Background for Transportation Policies , will con- 
tain an exhaustive review and analysis of existing and projected 
transportation problems and needs. The second volume, Basic Policies 
for Transportation , will present the objectives and policies of 
transportation planning as an element of the Master Plan. 

Area Planning 

The Federally Assisted Code Enforcement program (FACE) 
offers San Francisco a major opportunity for neighborhood improvement. 
The Department recommends areas in the City where FACE would be most 
beneficial, and once an area has been selected, prepares applications, 
provides neighborhood liaison, and assists in the development of a 
detailed public improvement plan. The housing rehabilitation program 
is administered by the Department of Public Works. Since the program 
was launched, federal loans and grants amounting to $5-5 million 
have been appropriated to finance rehabilitation work in four neigh- 
borhood areas (Glen Park, Great Highway, Arguello Park and Buena 
Vista Heights). This year, the Department worked with residents of 
Alamo Square, Bernal Heights, Duboce Triangle, Inner Richmond and 
Upper Ashbury neighborhoods in developing improvement plans and 
federal grant applications totalling $5-3 million for plan implemen- 

In September 1969, the South Bayshore Plan was presented at 
a joint meeting of the Planning Commission and the Bayview -Hunters 
Point Model Neighborhood Agency. This year, Master Plan elements of 
the Plan were adopted by the Planning Commission, and the Plan is now 
used as the physical basis for model neighborhood planning. The 
Department spearheaded efforts in obtaining a $50,000 federal grant 



The Department's staff is housed in t ie- 

pendent structures; the -air. offices at 100 Larkin Street., bi 
annex at 1212 Market Street. This presents the c": 3 of 

decreased staff efficiency and coordination increased i on 

staff energies for distribution of supplies and use of machines and 

confusion in the public's mind when arriving for meet ir.r- ~ 
picking up materials. 

Another major problem is lack of funding for common infor- 
mation services and systems. Without essential data (on hand, up-to- 
date and reliable) j the Department is placed in a " liffj ~lt 
position in formulating basic policies and in meeting the public : 

continuous demand for accurate, precise information. It is worth 
noting the great interest of the Police and Fire Depart tents in 

establishing this system, as related particularly to their public 
safety programs . 

The Department anticipates an increase of professional 
services as related to neighborhood planning and ; _■ ".er.t _:r:rr=.-- 
ming. Perhaps the major thrust, however, will lie in staff efforts 
to develop and tie together the Basic Policies Report , a document of 
major significance to the City's long-range objectives and policies 
in terms of eleven community elements : residence, recreation, urban 
design, education, social services, health care, public safety, 
commerce; industry, manpower and transportation. 


Programs administered : 


The Authority administers the development :: ell off-street 
ing when such parking is a product of the revenues Wri- 
the off-street parking fund or when the facility is built : 
non-profit corporation with ultimate ownership to vest in the 
City of San Francisco. 

a. G-cals - the continuing study of the need for future - 
facilities so that they will be available concurrently with 
the demeu; therefor. 

b. Operation - the Authority acts as a catalyst between various 

City agencies and private parties in order to implement the 
hereindescribed goal. Specifically, the Authority conducts 
surveys as to parkjng demand; investigates the financial 
feasibility of specific parking programs and, upon the 
accumulation of all the necessary data, makes its recommenda- 
tions to the Board of Supervisors. Further, it conducts an 
on-going study of rate structures in order to, by means of 
rate revisions, balance parking supply with parking demand. 

Programs : 

a. The service is City-wide in nature. 

b. Parallel agencies - the Authority works in close conjunc- 
tion with the City Controller, City Planning Commission, 
Department of Public Works, and the Director of Property, 
through whose offices sites are acquired upon recommenda- 
tion of the Authority. 

c. There are no state or federal agencies with related 
functions, except in those instances where the Authority 
can acquire sites for parking from the Redevelopment 
Agency at a cost less than the going value of the 
property. A portion of the Fifth and Mission Garage 
site, all of the land acquired for the Japanese Cultural 
and Trade Center Garage, and the Golden Gateway Garage 
were acquired in the foregoing manner. 

Other information : 

During the current fiscal year 1970-1971, two off-street parking 
facilities have been completed or will shortly be completed, as 
noted below: 

a. Neighborhood parking facilities, with financing from parking 
meter revenues: 

Bay View District parking lot (Palou Avenue and Mendell 
Street) providing 15 spaces at a project cost of 

West Portal District parking lot #2 (Claremont-Ulloa 
Streets) providing 24 spaces at a project cost of 

NOTE: Completion of the above mentioned projects will 
bring the total number of neighborhood parking 
lots in operation to 21, representing 7ol stalls 
at a cost of $4,476,468. 


for staff assistance to the Model Neighborhood Agency to implement its 
planning program. 

For the past two years, the Department has established 
increasing liaison with community groups and individuals in the China- 
town area. This summer, the Department secured a federal grant of 
$75,000 to finance an action-oriented planning project confronting 
two immediate problem areas: housing and recreation. A nineteen- 
member citizens advisory committee has been organized, representing 
a broad spectrum of the Chinatown community, and the committee meets 
publicly each month. 

The Department is just now embarking on a neighborhood 
planning program in the Haight-Ashbury district, and is continuing 
with its area liaison activities in the Richmond and Mission areas. 

Development Programming 

Primary activities in this category include preparation 
of the annual Capital Improvement Program for the City, design 
review and implementation of Market Street reconstruction, and the 
Urban Beautification Program. The latter, a federal grant program, 
provides assistance to the City for improving the attractiveness of 
street areas and other public places. The amount of the award for the 
I969-7O program will be about $422, 000. 

Additionally, the Department completed its review and 
recommendations regarding the Regal Pale Brewery Preliminary Rede- 
velopment Plan, and continues to provide major amounts of staff time 
in the development review and programming process for the northern 
Waterfront area. 

Planning Code and Referrals 

Administration of the City Planning Code (Zoning Ordinance) 
and Master Plan referrals are continuing responsibilities of the 
Department, as established by the Charter. Significantly, Conditional 
Use applications for fiscal year 1969-70 numbered 97, up from 62 for 
fiscal year 1968-69, representing greatly increased demands on staff 
resources and energy. 

In addition to the above administrative work are two 
special studies of this year- Market Street sign control and the 
proposed Jackson Square Historic District. 


New sites under consideration : 

The Parking Authority's planning for additional projects includes 
the following parking facilities : 

a. "Air Rights Project" over Mission-Bartlett Parking Plaza. 

The Housing Authority will construct 131 apartment units 

for senior citizens over the existing parking lot. 

Present plans call for construction to commence in June 1971. 

b. "Sutter-Stockton Garage Addition" 

The City of San Francisco Uptown Parking Corporation has 
offered to finance the transfer of City land from the 
Department of Social Services to the Real Estate Depart- 
ment, and construct thereon at its own expense an addi- 
tion to the existing "Sutter-Stockton Garage" by extend- 
ing such facility to the southeast corner of Stockton 
and Bush Streets, thereby increasing such facility by 
500 parking stalls, making a total of 1,370 parking stalls 
at an estimated cost of $5,100,000, $1 million of which 
will be paid to the City for use of the Stockton and 
Bush Streets property as an addition to the Sutter- 
Stockton parking facility. 

This proposal is awaiting Board of Supervisors' approval. 

c. "Union Street neighborhood parking facility" (Fillmore 
and Filbert Streets) 53 spaces at a project cost of 
$473,600 has been referred back to the Parking Authority 
for further study. 

d. "Yerba Buena Center Garages" 

It is contemplated that two, 2000-stall garages will be 
developed to complement the overall redevelopment plan 
known as the Yerba Buena Center. 

It is further assumed that the garages will be under munici- 
pal sponsorship, with policies similar to our other City 
garages. The estimated construction costs are $24, 127*340. 
The annual debt service requirements via non-profit corpo- 
ration financing would be $2,248,000. 

This proposal should be presented to the Authority in the 
near future. 

e. Projects under study requiring new site recommendations 
because of interim changes in original use: 

Haight-Ashbury District (Haight and Cole Streets), 
32 spaces 


Outer Irving District (23rd Avenue), 40 spaces 

Mission District (l8th and Capp Streets), 23 spaces 

Mission District (20th and Capp Streets), 74 spaces 

Clement Street (6th Avenue), 23 spaces 

Portola District (San Bruno Avenue), 22 spaces 

5. Parking control : 

The effort of a higher level of parking enforcement was clearly 
seen when meter revenues during the first six months of 1970 
increased approximately 10$. This favorable trend reverses a 
long-term downward experience and the Authority reiterates its 
thanks to the Parking Committee of the Grand Jury of 1969 for 
having helped in obtaining the necessary increase in traffic 

This Committee believes that the parking garage tax has a 
destructive effect on the downtown "Shopping Center, " where a 
healthy retail environment is a major factor in maintaining the 
City's tax base and its reputation as the hub of the Bay Area. 

Therefore, the Committee believes that every effort should be 
made to maintain low rates in the City-owned garages such as 
Union Square, Portsmouth Square, Sutter-Stockton, Ellis-0 'Farrell. 


The Committee notes, for instance, that the rates for Union Square, 
where all indebtedness is paid off, has risen considerably in the 
last few years. 

The rates used to be 25/, then rose to 35/, 30/, 35c 7 and now 45/. 
It would seem that the original purpose of the garage is being 
lost to the detriment of the shopper and the downtown stores. 

Regarding the garage tax, a survey by the Committee indicates 
that many private garage owners increased their rates by almost 
one-third before the new garage tax went into effect in order to 
overcome their estimated loss of revenue. 

Following is a list of what some garages are now charging in 
downtown San Francisco: 

St. Mary's Square Garage 

1/2 hour 70 cents - each additional hour 55 cents 
Maximum 24 hours $4.00 


System Parking - Kearny and Sacramento Streets 

Day Rate 35 cents first 1/2 hour - 35 cents each 
additional hour - Maximum $3.00 (plus tax) 
Monthly Parking $62.50 (plus tax) 

Portsmouth Square - Kearny Street 

1st Hour 30 cents - 2nd Hour 35 cents - each additional 

Hour 45 cents 

24 Hour Maximum $3-70 

Metro-Park - Kearny and Washington Streets - ( lot ) 

60 cents first 1/2 hour 
Maximum 10 hours $3.00 

Savoy Garage - Kearny and Pacific 

First hour $1.30 - each additional hour 70 cents 

Maximum to 6:00 p.m. $2.75 

Night Rates - first hour $1.30 - each additional 

one-half hour 70 cents - Maximum 24 hours $4.00 

Montgomery Parking - Merchant and Montgomery Streets - (lot) 

65 cents first half hour - each additional half hour 
65 cents - Maximum 10 hours $3 .25 

Mills Building Garage Public Parking - Pine Street 

1/2 hour 65 cents - each additional 1/2 hour 65 cents 
Maximum all day $4.50 

Russ Building Park Transient Rates 

1 hour 75 cents - each additional 1/2 hour 25 cents 
Maximum 12 hours $3-50 
Maximum 24 hours $4.00 

Metropolitan Parking Corporation - Sutter and Grant 

55 cents each 1/2 hour 
$3-75 Maximum 12 hours 
$5.00 Maximum 24 hours 
Monthly Parking $62.00 

Union Square 

First hour 45 cents - each additional hour 45 cents 
Maximum 24 hours $3-75 


Olympic Park - Sutter and Taylor Streets 

First hour $1.00 - each additional hour 50 cents 
12 hours $3.50 
Maximum 24 hours $4.00 

Olympians - Mason and Post Streets 

1 hour 


2 hours 


3 hours 


4 hours 


12 hours 


24 hours 


Downtown Center - Mason and O'Farrell Streets 

1 hour 50 cents 

6 to 12 hours $2.75 

12 to 24 hours $4.00 

Night Rates $2.50 Maximum 6 p.m. to 3 a.m. 

(rates include 25$ tax) 


1 hour 45 cents 

each additional hour 45 cents 

Maximum 24 hours $3-15 


The San Francisco Housing Authority, which already operates 
more than half of all public housing in the five-county metropolitan 
Bay Area, continues to be confronted with a demand for low rent units 
uncommens urate with the population of this City and County. 

At the end of the year, more than 30,000 persons were re- 
siding in public housing. The Authority's waiting list file contains 
applications from 4,450 elderly people and some 2,500 families. 

In its continuing but seemingly hopeless effort to cope with 
this demand, the Authority is currently operating 25 projects with a 
total of 5,974 units. It leases 900 apartments from private owners. 
Five new projects totalling 642 units are under construction and eight 
other projects providing 1,400 units are in the advanced planning 

Despite the new construction, all financed by 4o-year 


federal government loans, and extensive planning, it is unlikely that 
the Housing Authority will satisfy the demand for low rent units. 
The following summation of the Authority's plight was published in a 
San Francisco newspaper editorial: 

"In this time of an acute housing shortage, public housing 
is the chief hope of those in the lowest economic class. The more 
such housing is built, the more poor families are attracted to the 
central city to occupy it. The consequences include not only soaring 
welfare, education and police costs but bankruptcy for the housing 
agency. " 

All of the evidence reviewed by this Committee indicated 
that providing housing for families with incomes at the poverty level 
is a regional problem that will only be solved with coordinated 
regional planning by all of the counties of the Bay Area acting in 

Housing for the elderly i s a special problem. It stems 
directly from the ever-increasing number of persons who retire at 
age 05 on fixed incom e s that are i nad equate to cover the costs ot 
living in a central city . The aged do not have mobility" . They must 
be near the services that are available only in the big cities . 

The Housing Authority operates six projects with 5^0 units 
designed specifically for senior citizens. Five other projects that 
will provide another 638 units for elderly tenants are under construc- 
tion and others are being planned. 

While the Grand Jury does not have formal investigative 
powers respecting the Housing Authority, the Committee's interest in 
this agency was welcomed by the Executive Director, Eneas J. Kane, 
and the staff was cooperative. The Commissioners are dedicated 
citizens who spend a great deal more time on public housing matters 
than that required for their regular meetings. 

Mr. Kane, who is president of the National Association of 
Housing and Redevelopment Officials, is a noted expert in his field 
who is frequently called to testify on housing matters before Congres- 
sional committees. His efforts have helped promote the passage of 
federal legislation beneficial to San Francisco. 

The San Francisco Housing Authority, in common with such 
agencies in every big city in the Nation, is in a critical financial 
situation. The inflationary wage-price spiral keeps operating 
expenses high while federal regulations and the fact that 65 percent 
of the Authority's tenants are recipients of public welfare assist- 
ance keeps rental income depressed. 

Because of its precarious fiscal position, the Housing 
Authority has not been able to make its voluntary payment in lieu 
of property taxes since 1966. Mr. Kane has assured the Committee 


that an "in lieu" payment approximating $215,000 will be made for 
the past year. 

William A. Flynn 

Gustave Knecht, Jr. 

George S. Livermore, Chairman 



The work of the Human Rights Commission can be translated 
into terms such as equal opportunities, dignity of the individual, 
racial harmony, justice, and other basic rights which come into sharp 
focus in most urban centers. San Francisco is very fortunate in 
having a successful program which has minimized the problems that 
often result in conflicts when basic human rights are abrogated. 

The scope and urgency of their work is vital to the under- 
standing and resolution of many of the acute problems which have 
plagued our city and society. There is ample evidence to prove that 
the Human Rights Commission and the professional staff are perform- 
ing a remarkably effective campaign to eliminate the inequities, 
injustices, discriminatory practices, and other problems which make 
their work difficult and challenging. 

During this past year their new projects and accomplish- 
ments include: 

1. C^vil Service Commission's Task Force established to 
study recruitment and selection procedures to insure equal 
opportunities for all. 

2. Completion of an ethnic survey of civil service employees, 
an important measure of minority employment. 

3. Achievement of a minority apprenticeship ratio for San 
Francisco of 35$ in cooperation with the Apprenticeship 
Opportunity Foundation which resulted from the Human 
Rights Commission work and the Building Trades. 

4. Continued liaison and cooperation with Chief Alfred J. 
Nelder and the San Francisco Police Department, resulting 
in the elimination of the Chinatown Squad, support for 
Police-Community Relations, promote community cooperation 
for a drug abuse educational program, and consultation 
services to law enforcement agencies. 

5. Employer paid insurance coverage of 1,300 Chinese garment 
workers and improvement of their working conditions and 

6. Negotiation between the Building Trades Council and the 
Hunters Point-Bayview Model Cities Agency providing 
substantial construction jobs to residents of that area. 

7. Involvement in the efforts to fund bilingual instruction of 



San Franciso Spanish-speaking and Chinese-speaking school 
children from Federal Funds. 

8. Consultation and support with various city agencies and 
representatives of minority communities to the end of 
solving some of the problems in areas of jurisdiction; 
City Planning, Library, Public Housing, Mini Parks, and 
other allied areas. 

These special projects and programs are in addition to the 
regular business of the routine complaints, investigations, reports, 
interviews, and associated work areas which are the day-to-day 
activities in serving the community in areas of employment, housing, 
education, poverty, legal aid, and counseling. 

It is apparent th at due to th e lack of st aff to effec tively 
implement and enforce the "No n discrimination O r dinanc e , as amended in 
December 1968, the Human Rights Commission faces continuing embar- 
rassment and breach of faith with the community . Also, the lack of 
staff limits the Human Rights Commission's ability to work with the 
white community, a vital task to eliminate polarization. 

The increasing number of complaints to the Human Rights 
Commission as the community's spokesman function make the work 
difficult and frustrating resulting from the increasing quantities 
that merit the attention of the Human Rights Commission. 

The budget for the past three years has been: 

iq68-69 $ 182,000 

1969-70 185,000 

1970-71 206,000 

In each of these fiscal years, the size of the staff 
remained the same, some non-personnel operating items were eliminat- 
ed and the small increase is a reflection of salary increments. The 
basic staff includes eight professionals and six clerical workers. 

A survey of all personnel of the Human Rights Commission 
reveals a vote of confidence in the leadership and objectives of the 
Commission. The consensus of the staff reflect a high degree of 
dedication, sincerity, and efficiency. 

The Mayor and the Board of Supervisors should insist on 
regular reports from the Human Rights Commission to keep abreast of 
their many programs and projects. The taxpayers should also be 



informed of the goals and objectives of this important commission. 
Constant communication on this subject should be maintained with 
labor unions and their representative. 

It is the opinion of this Committee that it would be false 
economy to trim the budget of the Human Rights Commission for it is 
in times of urban crisis that the disadvantaged , oppressed and the 
minorities need the assistance of a sensitive governmental agency. 

It should be the intention and purpose of all of the 
people of San Francisco as well as the Human Rights Commission in 
developing these programs for the disadvantaged that standards - 
social and economic-will be maintained. 


Traditionally it has been the practice to report separately 
on each department of the City and County including the office of 
the Mayor, Board of Supervisors, and the Chief Administrative 
Officer. This Committee after discussing the importance of this 
matter decided to present these reports of the Mayor, Eoard of 
Supervisors, and the Chief Administrative Officer as a single unit, 
generally, but also allowing for specific departmental presenta- 
tions and/or discussions. 

This committee believes that these three units of govern- 
ment establish and implement the basic policies and attitudes of the 
City toward current and future affairs and events that affect the 
lives of the people of San Francisco. 

The usual format of Grand Jury reports follow a simple 
mechanical presentation of praise and commendation for the work of 
the department or its chief officer, a general explanation of the 
function of the department, a review of its accomplishments, and 
a few observations, suggestions and recommendations.. 

It has been stated that Grand Jury members are amateurs 
investigating professionals, those professionals who have the 
experience and expertise to avoid the disclosure of any of the 
serious deficiences that may plague their department. Seldom do they 



give the insights of those who perform the day-to-day functions of 
the department. Seldom do they pinpoint the causes of major prob- 
lems of inefficiency, incompetency, waste, inadequacy of personnel 
and resources, and finally the lack of implementation of recommenda- 
tions made by Grand Jury Committees. 

How effective are the recommendations made by the Grand 
Jury? One has but to look at the number of recommendations present- 
ed in previous Grand Jury reports to discover that too often the 
same deficiences and problems are perpetuated by ignoring them. It 
is acknowledged by many that the preparation of reports and recom- 
mendations is an obligation that has become an exercise in futility. 
Many veteran city administrators dismiss the reports as an annual 
nuisance not to be taken seriously. 

The Mayor, individual members of the Board of Supervisors, 
the Chief Administrative Officer and their respective staffs are 
the most powerful forces in city government. It is their re- 
sponsibility and duty to seriously review the recommendations of not 
only Grand Jury Reports, but all reports prepared by commissions and 
task forces. 

The vigorous effortsof these Officers of government should 
be most intense for in recent years and presently there has develop- 
ed a growing mistrust and lack of confidence in the general adminis- 
tration of our city. Critical issues such as the growing tax 
burdens of the small property owner, inflation, crime in the street, 
education, pollution, unemployment, soaring welfare costs, inadequate 
social services, substandard housing, problems of the aged, and many 
other factors have accentuated the disenchantment and frustration 
of various segment of our communities. 

It should be also acknowledged that there is no reasonable 
expectation for positive and progressive improvement as long as 
corrective measures are not implemented by the leadership of those 
in decision making positions. The primary responsibility of the 
Mayor should be to be an advocate of improvement, constant improve- 
ment. We believe that there are numerous issues which demand 
decisive leadership at all levels of government at the top and we 
feel that leadership requires courage, imagination, sensitivity, and 
other qualities admired in progressive leadership. 

This Committee would like to offer some constructive 
thoughts to the officers of this city and county to promote leader- 
ship, to bring about a greater consciousness of the needs of the 
city and -county, and to discuss these in the light of yearly Grand 


(continued J 

Jury Reports, the corresponding departmental comments, and methods 
of implementation. 

Each year nineteen citizens pass through the experience of 
serving on the Grand Jury. Added to this there are a great number 
of other civic-minded individuals who have served on commissions 
and committees who have a strong basic concept of the operations of 
the city and county government. This pool of talent, ability, and 
experience is an important resource that could be utilized effec- 
tively to continue the involvement of private citizens in an advisory 
capacity to city officials. An organization of this type of volun- 
tary citizen participation working under the mayor could be divided 
into convenient groups to study certain phases of government or to 
be task, forces or ad hoc committees to attack, immediate and pressing 
problems. A common complaint by voters, taxpayers, and residents 
is that elected public officials seldom participate in the neighbor- 
hoods and communities affairs. Grass roots citizen interaction by 
civic leaders is vital and essential. 

This Committee suggests that an enlightened public by full 
disclosure of evidence and facts to the mass media would result in 
progressive change to improve the over-protected status quo environ- 
ment present in many of our city departments. The public media 
including newspapers, radio, television, and other forms of mass 
communications can play a vital role in making the responsibility 
of change shift from a very few key officials to the response of an 
enlightened citizenry. 

A knowledgeable public has the responsibility to exercise 
the power of the electorate. This committee believes it is the 
duty of the leadership of this city to encourage all eligible 
citizens to use the right to vote. According to the latest U.S. 
Census figures, approximately 500*000 San Franciscans are over 21 
years of age and eligible to vote. The Registrar of Voters notes 
that approximately half of those eligible actually voted in the last 
election. An informed public must also have the power of the ballot 
to effectively respond to the needs and problems of the city. Every 
elected official is sensitive to the public opinion on various 
subjects including controversial subjects such as bay front develop- 
ment, pornography, ecology, crime, busing, urban redevelopment, etc. 

In conclusion, it is evident that the Grand Jury Committee 
Reports confirm the thesis that most of the problems of civil 
government in San Francisco can be attributed to three very vital 
factors: budget (money), politics, and the City Charter. It is no 


(continued ) 

secret to the citizen, taxpayer, city officials, public servants, 
and other knowledgeable persons that these three facts, money, 
politics, and the City Charter, are most of ten used to excuse, 
explain, justify, defer, delay, ignore or blame the problems of our 
city. This conclusion may be an over simplification of the numerous 
complex problems facing administrators; however the fact is that it 
is a realistic approach based on much evidence and testimony from 
a wide cross-section of municipal government personnel. 

The chronic symptoms of city government are often difficult 
to detect by reading Grand Jury Reports. This Committee makes no 
apologies for the lack of praise and commendations. We believe our 
responsibility is to be honest and forthright. 

Besides the specific recommendations that will be tabulated 
from other Grand Jury Committee Reports and listed for the Depart- 
ments of the Mayor j Board of Supervisors, and the Chief Administra- 
tive Officer, this Committee recommends: 

1. Fulfill the responsible leadership necessary to 
review, investigate, and implement the recommen- 
dations made by the Grand Jury as well as other 
advisory organizations. 

2. Assert strong leadership and direction to revive 
the difficult and vital need for Charter Revision 
for presentation to the voters by November, 1971 • 

3. Evaluate the present system of line budget procedures 
which appears to be restrictive and inefficient. 
Initiate the proper legislation to substitute a 

more equitable and effective method of budget systems. 

4. Promote public awareness and education on all 
vital issues by a massive educational program in 
cooperation with the public media. 

5. Initiate prompt remedial legislation to relieve 
and reduce the rising tax rate to the small 
property owner and those citizens who live on 
fixed or limited incomes. 

6. Establish a responsible and effective mechanism 
whereby citizens may seek assistance, information, 
redress, and sensitive human relations to offset 


(continued] " ~ """" 

the hugh, cold indifferent image of City Hall 
by the average citizen. 

7- Eliminate or minimize the political influence in 
the appointment or promotion of citizens to areas 
of power or decision making, substituting ability 
and knowledge for patronage. 

8. Re-establish the many qualities that have made 
San Francisco great by not alienating the young, 
the disadvantaged, the unrepresented, the minorities, 
and other segments of our community who feel 
estranged and indifferent. 

9- Elevate and promote equal opportunities and repre- 
sentation of women in our community affairs. 

10. Promote affirmative action to eliminate dis- 
crimination in all forms based on race, color, 
religion, age, sex, or national origin. 

Hrant J. Avakian 
George Sanderson 

Edison T. Uno, Chairman 



Before beginning our work we met with the 1969 Grand Jury 
and also, separately, with its School Department Committee. We re- 
viewed the 1968 and 1969 Educational Committee Grand Jury Reports and 
found that the School Department had already put some of their 
recommendations into effect and was taking steps to implement others. 
This led to the conclusion that we should inquire into other areas. 

On April 1, 1970, we met with Superintendent Jenkins and 
learned his reasons for implementing the QUALITY - EQUALITY EDUCA- 
TIONAL PROGRAM. He related plans for the Richmond Complex. To 
start this, supervisors and faculty as well as para-professional 
assistants were specially selected. Moreover, many volunteers were 
to be actively involved. 

Members of the Committee visited the Alamo School during 
the Richmond Complex Laboratory School Summer Session. Children were 
happily working at their assignments and using modern educational 
material and equipment. We were especially pleased to see children 
using their library and to meet some of the non-professional 
volunteers. It is hoped that programs, such as the one conducted in 
the Richmond Complex, will result not only in an enriched but also 
an accelerated education for the children, develop self-reliance, 
good study habits and enable children to be prepared better for their 
next steps. It may take several years for a group of this type to 
demonstrate unusual progress through all the subseauent grades. 
Therefore, we should not expect immediate startling results but 
evaluation should be made at regular intervals. 

It was learned shortly after April 1, 1970, that Dr. Jenkins 
was resigning as Superintendent of Schools. This led us to decide 
to wait before proceeding until Dr. Shaheen, the new Superintendent, 
had time to familiarize himself with his new position. 

On December k, 1970, we met with Dr. Shaheen to discuss 
his plans for the Department. He made available his memorandum of 
September 28, 1970, addressed to Members of the Board of Education, 
in which he outlined his ideas on the development of a Master Plan 
for Education in the San Francisco Schools. Both his short and long 
range plans were stated succinctly. Dr. Shaheen r s proposals will 
take some time to put into operation. Time will tell what progress 
may be made. 

The size of the Central Office Staff, in relation to teach- 
ing staff, was questioned. Dr. Shaheen is aware of this problem and 
is looking into it carefully. The consultant firm of Booz, Allen 
and Hamilton has been retained. Their report is presently in 



committee and receiving consideration. We feel it was important to 
secure the services of outside management consultant and urgently 
recommend that every consideration be given the recommendations. It 
is essential that the administration of the Central Office be im- 
proved and any savings be made known to the general public. 

It is urgent that we get more assistance from parents in 
controlling pupils' deportment in school and enroute to and from 
school. Dr. Shaheen plans to use television and meet with parents 
and committees from various areas to gain cooperation and community 

We were concerned with the amount of time and effort spent 
on testing the effectiveness of various programs. Most of the testing 
is required by the State. Recently, the new State Superintendent of 
Public Instruction, Wilson Riles, stated that he was investigating 
testing and thought it could be greatly reduced and the related 
effort applied to more fruitful fields. A report card system that 
expressed the teacher's appraisal of students should be of greater 
value in determining their progress than the computerized testing 
and grading now used. 

Vandalism in our schools is appalling. The School Depart- 
ment has the services of the American District Telegraph and Pacific 
Fire who have installed alarm systems so that they may respond to 
problems involving vandalism. Too few vandals have been apprehended. 
Additional steps should be taken to control this destruction of 
property. More exterior lighting and a change in the time schedules 
for custodial personnel might accomplish this result. Approximately 
$254,000 was spent during this fiscal year to repair just glass 
broken by vandals. Certainly, this wasted money could better be 
used to improve educational opportunities. 

This Committee is very concerned with drug problems of 
our young people. The "Overview Report" by Francis Todd, Supervisor, 
Health and Family Life Education, dated October 21, 1969, is a very 
comprehensive report and describes the cooperation developed between 
the Health Department, the School Administration and personnel. All 
are trying their best to alleviate this situation. It was not clear 
whether teachers are being instructed so that they will recognize 
the early symptoms of drug use. We strongly recommend that instruc- 
tion of this kind be continuous so that the teaching staff may 
identify cases of drug use and work toward securing prompt remedial 

The 1970-71 budget for the School District is $110,918,920. 
It is $10,641,273 more than for the fiscal year 1969-70. This in- 
crease is in part due to salary increases and adjustments totaling 
$6,958,627. Other increases include $1,207,114 for installation of 
the Richmond Complex and $2,000,000 for the Field Act tax levy. 



$3,757,379 included in the previous budget has been eliminated be- 
cause enrollment was less than estimated and there was a decrease in 
cost of certain services and, because of turnover, some replacements 
were made with employees only eligible for lower salaries. 

There appears to be a problem with budgets. The Publica- 
tion Budget, the State Budget and the Budget presented to the City 
Board of Education as well as one adapted to the requirements of the 
City Controller all differ. It is recommended that this procedure be 
simplified so that duplication of effort may be eliminated. 

In examining the budget, it was learned that the Federal 
revenue was approximately $1,295,000 and that from the State, 
$17,069,528. This is certainly a small part of the total budget of 
$110,918,920. The current school budget approaches the maximum 
allowable under present regulations for funding operations. Because 
of this, it is incumbent upon the management of the Department to re- 
evaluate and reconsider priorities in relation to various programs in 
effect. The individual local taxpayer is quite concerned about the 
escalation of taxes. A good part of the increase in taxes is for the 
operation of the School Department. Hence, this requires considerable 
attention and some action must be taken so that the Department will 
operate within permissible budget. 

The Committee and other members of the Grand Jury have been 
very much concerned with the maintenance of our school buildings. A 
greater share of the budget should be allocated to keeping them in 
proper repair to prevent premature obsolescence. Moreover, a clean, 
well-kept, cheery' school - one that is bright and colorful - should 
have a salutary effect on the teaching staff as well as students. 
It would also afford an opportunity to impress children with their 
responsibility for the proper care of their schools. This ties in 
with what should be done currently with regard to the needed 
rehabilitation and updating of many of our schools. Unless the 
Department demonstrates an ability to maintain its schools properly, 
the present attitude toward bond issues may continue. 

It was interesting to learn that we have approximately 170 
schools, including some for special purposes. These schools are 
staffed by over 7,000 employees, including various types of adminis- 

In the Central Office there are 485 classified positions, 
265 of which are permanent and 220 temporary. The latter group 
causes a serious problem because of turnover. The Civil Service 
Commission furnishes these employees. It is noted that the School 
Department is having the same problem as other City departments in 
regard to temporary employees. The Civil Service Commission plans 
to implement a program over the next two years which will permit re- 
placing temporary employees with permanent employees. The chief 



reason for turnover in temporary employees is because they are not 
entitled to benefits granted permanent employees. 

Of the total staff, 352 are in administrative positions, 
100 of which, according to the organization chart, are in the Central 
Office. There were 4,557 certificated teachers employed, plus 
approximately 228 who staffed Children's Centers, a total of 4,785- 
While 3^710 classroom teachers were assigned to schools, 1*083 were 
not included in the Divisional totals mentioned above. 22o were 
assigned to Children's Centers, 201 to senior high schools for 
special allocations and 301 were assigned to junior high schools for 
special allocations. Likewise, 264 teachers were allocated to 
elementary schools and were not reported as classroom teachers. 87 
teachers were assigned to work in the Central Office. With so many 
teachers specially assigned, it seems that there is ample opportunity 
to re-evaluate the special assignments. Possibly some of this staff 
could be used in more basic programs. 

In connection with the teaching staff, we feel it is 
important to learn their evaluation of the programs and operation of 
the School Department and have their recommendations. We were 
pleased to learn that Dr. Shaheen sent a questionnaire to all teachers 
and had 4,730 responses. 3,652 of the staff indicated what they 
liked best and almost all 4,730 expressed some concern about our 
school system. The questionnaires that were returned have been 
tabulated and reported in the SAN FRANCISCO UNIFIED SCHOOL DISTRICT 
NEWS LETTER of November 30, 1970. It is hoped that this exchange of 
ideas will have some tangible results. This, to us, is most 
important because participation in planning by the teaching staff 
could improve the relationship between staff and administration, 
resulting in better understanding and improvement in overall coopera- 
tion and morale . 

In addition to the program which Dr. Shaheen has for teacher 
participation, he also has a plan whereby students participate. This 
is good student-administration communication and the benefits to be 
obtained are obvious. It is most satisfying to be able to participate 
in a discussion that has to do with ones involvement in any program. 
Students today, especially in the upper grades, feel a real need for 
this. Such communication must be kept alive and motivated to help 
solve some of the problems that are plaguing our schools. This is 
especially so in regard to deportment. It should encourage students 
to be proud of their schools and use them well. 

Consideration is currently being given by the State Legis- 
lature to revision of laws and regulations applicable to tenure. It 
is recommended that tenure regulations be reviewed in light of 
present day circumstances. The need for flexibility in staffing both 
administrative positions and teaching positions is essential. Due 
regard must also be paid to treating all fairly. 



The School Department provides excellent training in the 
industrial arts and certain other occupations. We would like to point 
out that the fastest growing areas for employment are in the service 
occupations. It is recommended that programs for this type of employ- 
ment be implemented and expanded accordingly. 

The Wakefield Act was recently passed by our State Legis- 
lature. Litigation is presently in Court to determine validity. In 
the interim, busing is proceeding. There is considerable antipathy 
to busing as against the Neighborhood School concept. While busing, 
per se, is of little educational value, it appears necessary to comply 
with integration requirements. We make no recommendation because of 
pending litigation. 

There is considerable contact between the School and the 
Public Works Department in regard to work to be done, planning and 
obtaining bids and recommendations in regard to City codes. It is 
recommended that the Superintendent of Schools appoint a member of 
his Department to contact an opposite member of the Public Works 
Department to set up procedures to expedite the handling of requests. 
It was observed that there has often been unusual delay in complying 
with School Department requests. 

It is indicated that Dr. Shaheen plans to have a survey of 
the entire school operation made by professional educators. We urge 
civic support be given him in this endeavor. 

We have a new San Francisco School Superintendent, also a 
new State School Superintendent. Both apparently have new ideas to 
put into effect. We wish them well and urge all to assist them as 
much as possible. They will have to establish priorities as to their 
objectives and plans. Not only must they determine what is most 
urgently needed but also must obtain necessary funds. 

In the course of our investigation, we found everyone most 
cooperative. There are many dedicated people working in our school 
system and we wish to compliment them for their dedication and un- 
tiring efforts. We appreciate their problems and the sacrifices 
often necessary to improve our schools and keep them operating as 
efficiently as possible under difficult circumstances. 

George S. Livermore 
Edison T. Uno 

Rudolph W. Arfsten, Chairman 



In considering the San Francisco Redevelopment Agency -- 
its activities in 1970 and its plans for 1971 -- this committee 
developed a keen interest in the City's Northern Waterfront and 
proposals put forward by the Agency for a coordinated program for 
"harmonious" development of the area. 

This interest reflects the deep concern on the part of 
a broad section of the community over what the future holds for 
this magnificent area., described as "the most valuable piece of 
real estate in the Nation" and "the most beautiful port in the 

During the course of our inquiries, we reached the 
conclusion that the area is in danger of being ruined for the 
citizens of the City because current development proposals are 
piecemeal and on an ad hoc basis. 

The committee feels that there is no real, over-all de- 
velopment program for the Northern Waterfront which would provide 
assurances that it would be developed and improved in a uniform, 
harmonious and desired manner. 

In reaching this view, the committee took note of the 
fact that two years ago, at a cost of $200,000, a planning study 
for the Northern Waterfront was completed, and that, on the basis 
of the study, the City's Master Plan was amended in June of last 
year as it applies to the area. 

The Northern Waterfront Plan, as outlined in the Master 
Plan, contains many social, economic and physical improvement 
objectives for the area, but there is no mechanism for carrying 
it out in a specific, coordinated way. 

Four ingredients are essential if any over-all program 
is to be implemented successfully: 

First, the program must reflect the desires and the 
needs of interested citizens; 

Second, the program must coordinate the actions of all 
public agencies and departments which would make contributions: 

Third, the program must include the identification and 
attainment of funds needed to finance the costs involved; and 

Fourth, there must be an agency with the capacity to 
carry out the program ... to assure that each element is provided 
at the proper time in the proper place. 


The committee recognizes the fact that the Port Com- 
mission has the responsibility for operating port facilities in 
terms of shipping, longshore activities and general management. 

This committee, naturally, recommends no change in that 
situation. Rather, it is proposed that the Redevelopment Agency 
provide its service to the Port Commission regarding the physical 
improvement of particularly those sections which are not needed 
for direct maintenance but which can provide the port with needed 

Thus, the renewal program could be carried out on a 
partnership basis under a corporate agreement. That agreement 
would provide that the Port Commission have the power to approve 
the sale or lease of any land under its jurisdiction, as well as 
agreement to cooperate in carrying out the over-all program. 

Following are some of the benefits which could be 
achieved through Redevelopment Agency participation: 

(1) Retention of the working port and its conversion 
as necessary to keep abreast of current technology in the field 
of maritime shipping. 

(2) Generation of new job opportunities . . . particular- 
ly in maritime-oriented industry and business ... to meet the 
needs of the unemployed and under- employed of the City. 

(3) Provision of housing in appropriate locations. Such 
housing should be for all income groups and might very well in- 
clude homes for people who work on the Waterfront and who have 
retired from such work and would like the opportunity to remain 

in the areas where they have spent the main part of their lives. 

(4) Provision of much-needed park, water- oriented 
recreation facilities and open space, including plazas and prom- 
enades . . . providing general access to the Waterfront. 

(5) Provision for the historical preservation of the 
several buildings of merit which now exist throughout the area 
and for the rehabilitation of those sound structures whose re- 
tention would be compatible to the area's general development. 

(6) Protection of the natural topography, views, 
vistas and sight lines, particularly from Telegraph Hill and 
the Bay. 

(J) Improvement of the City's economic base. 
f8) Optimize revenue to the Port and the City. 
(9) Provision for some very special facility in the 
area such as a Maritime Labor Center. 

(10) Development of a human-scaled transportation system 
so that people could move easily and conveniently throughout the 
Northern Waterfront from the Fisherman's Wharf area to the 
Embarcadero Plaza and entertainment center at the foot of Market 

(11) Provision of peripheral parking structures to 
serve both the downtown and Fisherman's Wharf areas. 

(12) And finally, the removal of the Embarcadero 
Freeway, which in its present form, blights the Waterfront and 


so effectively separates the City from its Waterfront. 

There is a desire for all of these benefits. Put how 
are they going to be provided? The Redevelopment process holds 
a real possibility for their achievement. 

Further, the committee believes that the Redevelopment 
participation would not hamper or halt every on-going activity 
in the area. Accomplishments such as the Ice House, the Fibre- 
board Building and the Ferry Park Plaza, once that issue is 
settled, should remain or go forward. 

All of the above concepts should be evaluated by the 
Redevelopment Agency with all public and private agencies in- 
volved before any formal proposals are brought to the Board of 

Particularly, we believe that the Redevelopment Agency, 
if given the responsibility for developing and carrying out a 
unified improvement program for the Northern Waterfront, should 
work on a partnership basis, not only with the Port Commission, 
but also with a citizens' group. 

Such a citizens' group should include labor organi- 
zations, Telegraph Hill residents, shipping firms, property owners, 
the Chamber of Commerce, conservation groups, SPUR, etc. 

Redevelopment on the Northern Waterfront would involve 
heavy financing, so this Grand Jury Committee explored this 
matter in detail with M. Justin Herman, Executive Director of 
the Redevelopment Agency. 

First, he informed us that the Boston Waterfront is 
now receiving over $30 million from the Department of Housing and 
Urban Development. 

Although Mr. Herman told us that HUD funds are currently 
in short supply, he added that it is reasonable to expect that 
more funds will become available in the near future, and that, in 
the meantime, the City should be preparing its program through 
the Redevelopment Agency. 

We believe that the Redevelopment Agency should seek 
funds immediately from HUD to conduct a survey on the feasibility 
of preparing and carrying out a renewal program for the Northern 

In other redevelopment areas, the face of the City 
continues to change. The year 1970 was a "very good year" for 
San Francisco and 1971 promises to be an even better one ... as 
projects continue through planning to actuality. 

We noted that in every project area every effort was 
being made by compassionate Redevelopment staff on the project 
level to insure betterment of the social, economic and physical 


welfare of the people involved in the relocation process. 

Redevelopment Progress: 

A-l In the 108-acre Western Addition A-l Project, 
ground was broken July 9th at Ellis and Laguna Streets for 
Western Park Apartments, a complex of 183 units of low- to- 
moderate income housing for senior citizens. Western Park. 
Apartments is a project of Northern California Presbyterian 
Homes, Inc. It is scheduled for completion in 1971. The 
venture is the second in A-l for the sponsor. The first was 
the Sequoias-San Francisco, a retirement complex at Geary 
Boulevard and Octavia Street. (During the past decade, A-l 
has managed to make 36 per cent of its total l,8l8 housing 
units available to low- to-moderate income families.) 

A-2 Here, where there will eventually be a total of 
4,000 new low- to- moderate income housing units, ground was 
broken for a two-part development totaling 158 units and 
sponsored by the First Friendship Institutional Church. The 
first part of Friendship Village, with 63 units, has been 
completed on McAllister Street between Buchanan and Webster 
Streets. Ground was also broken during the year for Prince 
Hall Apartments, with 92 units. The complex, which takes up 
almost an entire block bounded by Golden Gate Avenue, Webster, 
McAllister and Fillmore Streets, is sponsored by the Prince 
Hall Masonic Grand Lodge of California and was built and 
designed by Black architectural and construction firms. It is 
nearing completion. 

Chinese Cultural and Trade Center . The year 1970 saw 
the completion of the 572- room Holiday Inns Hotel and 450- car 
garage on Kearny Street on the site of the old Hall of Justice. 
The hotel is part of the Chinese Cultural and Trade Center, 
scheduled for completion in 1971. 

Hunters Point- India Basin. A year of activity by the 
Redevelopment Agency in these areas has shown that citizen par- 
ticipation in renewal planning can work. The 134-acre Hunters 
Point area is the site for new housing, a new commercial center, 
new recreation facilities and new school buildings. Development 
is replacing worn-out, dilapidated buildings comprising the 
Hunters Point Naval Shipyard housing of World War II. It adjoins 
India Basin, formerly Butchertown, an industrial complex designed 
to provide sorely-needed jobs for Bayview- Hunters Point residents, 
In India Basin, 125 acres will be turned from an undesirable 
industrial land use into an attractive, modern Industrial Park 
with 8l acres of development. It is estimated that jobs will 
increase from 1500 to 3900. 

Diamond Heights . In this area, described as a "show 
case of residential projects", three additional projects were 
announced in 1970. A redevelopment team will build 620 garden 
apartments on Red Rock Hill on a site bounded by Clipper and 
Duncan Streets and Diamond Heights Boulevard. Construction 
will begin in 1971. In June, the Redevelopment Agency dis- 
closed plans for 154 garden apartments on Diamond Heights 
Boulevard. The developer is the L. B. Nelson Corporation of 
Palo Alto. The completion date is mid-1971. In October, ground 


was broken for 104 units of moderately priced housing on the 
eastern slope of Diamond Heights Boulevard. The project, Vista 
del Monte, is sponsored by Mission Neighborhood Centers, Inc. 

Yerba Buena Center. The human side of urban renewal 
is graphically illustraTed - Tn Yerba Buena, the $300 million 
project in the area south of Market called "Skid Row." 

There has been criticism from some quarters over 
Agency relocation policies and practices in this "pocket of 
poverty," but committee study finds such criticism unjustified 
and often self-serving on the part of certain individuals. 

Here are the facts about how the Agency has worked 
compassionately to help solve the residency problems of people 
living in the project area, as well as their social, economic 
and medical problems, on the basis of committee investigation. 

The Agency has helped to rehouse in decent housing, 
at prices they could afford, more than 1,200 individuals and 
families. Those people have received $27,000 in moving expenses. 
They have received $43,000 in added rehousing benefits. 

In addition, the Agency's New Start Center, established 
three years ago by the Agency, the Department of Public Health 
and the Department of Social Services, has assisted more than 
2,000 persons with medical, psychological and social problems. 
New Start is also the site of an Alcoholism Detoxification Unit 
at the Mars Hotel, a unique approach to the treatment of the 
disease which has drawn nation-wide attention. 

Another 1,900 persons remain to be helped, almost 
entirely individuals. Most of these want to live in downtown 
hotels, our inquiry showed. It was found by the committee 
that 100 hotels and apartments have space available that meets 
Agency health and safety requirements. Thus far, it has only 
been necessary to use about one- fourth of these hotels and 

The 25 acre Yerba Buena Center, one of the most com- 
plicated ever undertaken by a redevelopment agency anywhere, 
will house in a mammoth three-block complex -- bounded by Third, 
Fourth, Market and Folsom Streets -- the following: 

A 350,000 square foot exhibit hall, a 14, 000- seat 
sports arena, a 2, 200- seat theatre, parking garages with 4,000 
spaces, a downtown airline terminal, office buildings, an 
Italian Cultural and Trade Center, a semi- closed Galleria, a 
connecting mezzanine to BART, and a large hotel. 

All of this represents an enormous response to the 
rejuvenation of San Francisco's South of Market District. 

William A. Flynn 
Gustav Knecht, Jr. 

George S. Livermore, Chairman 




The San Francisco Fire Department is an eighteen hundred 
man department under Chief William F. Murray that provides fire 
protection for the City and County of San Francisco. 

From this Committee's visits with Fire personnel throughout 
the year, we found that most members of the Department are well 
satisfied in their chosen profession of public service. It is indeed 
an unusual pleasure to find a large City department whose employees 
enjoy their work and take personal pride in maintaining the overall 
high image of the Department. 

There are two problems which are growing larger yearly 
because of budget cutting forced on the Department by the Board of 
Supervisors. First., the worn. -week of the Fire Department is being 
reduced from 51.7 hours per week to 43 hours per week to keep a 
preelection campaign promise of Mayor Alioto's. When the work.-week 
is reduced, there are three ways the Fire Department can move to 
keep the operations at full strength: (1) Deactivate fire fighting 
units- (2) reassign fire fighters performing nonfire fighting duties 
to fire fighting duties; or (3) new employment. 

Four units have been deactivated this year as the work-week 
went to 49.7 hours per week- next year the work-week will drop to 
48.7 hours and more men must be found to cover fire fighting jobs 
necessary to protect the City. For many years all Department requests 
for additional fire fighting personnel have been eliminated from City 
budgets. This must stop immediately and the Chief of the Department 
allowed additional men to maintain the daily work force at full 
strength. Deactivation and job switching have covered this problem 
until now, but it must be faced by the Board of Supervisors and the 
Mayor and solved with funds for additional fire fighters. 

The second problem and potentially more dangerous is that 
of equipment replacement. Until the last few years the Fire Depart- 
ment's budget included a yearly amount to be used to rsplace fire 
fighting vehicles and equipment on a fifteen year amortization schedule, 
The last couple of years the amount has been reduced by the Board of 
Supervisors so that the replacement had to be put on a twenty year 
schedule which is completely unworkable, because at that age most of 
the equipment is out of production and replacement parts are unavail- 
able and must be individually manufactured in the City shops at great 
time and expense to the City. As of this year, the Board of Super- 
visors has seen fit to completely eliminate all funds for replacement 
of Fire Department equipment from the yearly budget of the City and 
hope that the Fire Department can. operate on its existing equipment 


until such time as the voters of San Francisco approve a bond issue 
to purchase the necessary new trucks and equipment. 

Since the voters have already turned down one bond issue for 
the Fire Department's equipment, it seems like folly for the Board 
of Supervisors not to face the facts that budget items must be 
restored to prevent any further deterioration of the rolling stock 
of the Fire Department. If in the future the voters decide to pro- 
vide a sum of money through a bond issue, then that item could be 
reviewed in the budget with the thought of reduction or elimination. 

This Committee feels that these two problems must be solved 
immediately or recognized as a responsibility of the Mayor and the 
Board of Supervisors, as the Fire Department is doing the most it 
can possibly do with the funds provided by the City budget. 

In closing, the entire 1970 Grand Jury wishes many happy 
years of retirement to Chief Bill Murray, who retired in January 1971 
after 50 years with the San Francisco Fire Department. 

To new Chief Keith P. Calden, many years of service leading 
the best of Fire Departments. 

William P. Greene 
Harry E. Gray 

Charlton H. 3uckley, Chairman 

• 86- 


This committee visited with the Public Defender, Edward T. 
Mancuso, and his Chief Assistant, Robert Nicco, and discussed the 
operations of this department. 

The Office of the Public Defender in San F-ancisco repre- 
sents all of those persons who are indigent and unable to provide 
their own legal services for a defense of their case. The Office of 
the Public Defender represents people in felony as well as misde- 
meanor matters and also provides representation for juveniles in 
moving traffic cases. The Public Defender has deputies at the Hall 
of Justice, City Hall, Youth Guidance Center, and at San Francisco 
General Hospital for the sanity hearings. With all of this represen- 
tation the operational cost per case is the lowest in the State of 
California . 

The Office has a staff of well trained deputies who take a 
personal interest in the matters and persons that they have to 
defend. An outstanding example of their devotion to duty and the 
defendants is the recent case where a defendant struck the deputy, 
inflicting injuries. Yet the Deputy went on to defend the defendant 
with complete disregard for his injuries. 

Public Defender Mancuso discussed with us the defense 
problem he had with the cases from State College. In order to pro- 
vide sufficient defense he enlisted the aid and assistance of outside 
attorneys. In cases of mass arrests in other areas this same 
technique was adopted from the experience of San Francisco. 

A review of the files in the Office of the Public Defender 
revealed a considerable number of letters from graduate law students 
and lawyers who had passed the California Bar asking to be con- 
sidered as an appointee when such opportunities were present. Many 
of the letters indicated that the writers had a high regard for the 
office and the legal procedures it followed. 

The Public Defender is always cost minded but never at the 
expense of the defendants. As an example there was recently 
established another section to the office and personnel were located 
or relocated there. We were told that the desks and chairs were 
taken from the city warehouse of used furniture, instead of buying 
new e-mipment. Also, a room for interviewers has been rearranged so 
that desk space is fully utilized and phone eouipment is kept to a 
working minimum. 

The Public Defender extends to this Grand Jury and to the 
Members of the 1971 Grand Jury a firsthand review of the practices 


PUBLIC DEFENDE R (continued) 

of his office, starting with the first contact of the defendant by the 
deputy to the conclusion of a case or cases. This is a worthwhile 
experience and indicates the openness of the office in revealing to 
interested and responsible people the exact functioning of the Office 
of the Public Defender. 

This Committee feels that this is an outstanding office and 
the Public Defender, Edward T. Mancuso, and his Chief Deputy, Robert 
Nicco, deserve high praise for the record and conduct of the office. 


The Office of the City Attorney, also the County Counsel, 
is located on the second floor of the City Hall. An inspection of 
the area reveals the urgent need for more space to accommodate ade- 
quately the activities of this office. Other Grand Jury Reports have 
recited this same need, but we are again as a Committee recommending 
that definite steps be taken to provide additional roam for this 
important office. 

The Office of the City Attorney represents the departments 
of the City and County Government and much like the structure of the 
Grand Jury Committees, the City Attorney has a deputy or deputies 
assigned to each office, so that there is developed an expert in the 
area of operation of each office or department. The functions of this 
office of the City Attorney are vital to the proper legal operation 
of the City and vital to protecting the citizens of San Francisco and 
their investment in their Government. 

The City Attorney and his staff handle all of the civil 
actions of the City and County, which includes the employees, officers, 
and the various commissions under the Mayor and the various Boards or 
Departments under the Mayor and/or the Chief Administrative Officer. 
Litigation involving the school district is handled by this office 
only when the matters are referred to it. 

During the past year the total number of actions handled 
were l,06l; of these there were 645 cases where recovery in money 
damages were sought because of death, personal injury, and property 
damage. There were ninety actions involving eminent domain, con- 
tracts, antitrust suits, injunctions and prohibitions. There were 
312 cases that involved workmen's compensation. The Ik cases on 
appeal were concluded. 

The City Attorney and his staff handled 4,737 claims from 



people against various departments of the City and County. 

In an effort to prevent legal actions various departments, 
boards and commissions of the City ask for legal opinions from this 
Office and during this year the necessary research, preparation, and 
presentation was carried on in 83 written legal opinions. 

This office is also charged with the legal work in connection 
with the preparation of 393 ordinances and 837 resolutions during the 
past year for the Board of Supervisors. There were 22 written opin- 
ions rendered to the Board of Supervisors during the past year. 

The City Attorney maintains a staff of deputies in Sacra- 
mento, two in number, who review all of the legislation that is 
presented at the Legislature. Any legislation affecting San Francisco 
is referred to the respective department or office by these deputies 
and these deputies also handle the answers to this legislation from 
City and County Departments and represent the City at the State 
Legislature level. 

The protection that this office of the City Attorney-County 
Counsel gives to San Francisco cannot be measured in tangible results. 
The protection, direction, advice, is given and followed by City and 
County Departments and the possible consequences in dollar values that 
have been averted are merely reflected in the overall successful 
operation of the City and County of San Francisco. 

There are new duties added to the Office of the City 
Attorney with much new legislation that is being made effective and 
the office has taken much of this additional activity in stride. It 
is reaching the point where additional assistance in deputies and 
secretaries is mandatory. The office could use at least three to 
four more deputies and sufficient secretarial workers. We the Com- 
mittee firmly recommend the addition of four deputies and two legal 

The 1970 Grand Jury wish to pay compliment to City Attorney 
Thomas M. O'Connor and his staff for an outstanding job in the legal 
representation and protection that he gives to the people of San 
Francisco and their City and County. 



It is the sworn duty and obligation of the District Attorney 
to represent the People of the State of California - locally San 
Franciscans - in the prosecution of and/or the presentment of criminal 
charges against the alleged defendants. A review of the efforts of 
this office to arrive at the point of being ready to go to trial, 
to make a presentation of a matter, or to determine that there is not 
sufficient evidence or witnesses to hold a defendant will reveal a 
considerable amount of activity in working with law enforcement 
agencies, visiting the scenes of the crimes, assisting in locating 
witnesses, conducting interviews with witnesses, and determining the 
reliability and credibility of evidence and witnesses. There is a 
tremendous amount of background work involved in the activities of 
this office that is little known to the average citizen. 

It is also the duty and obligation of the District Attorney 
to see that justice is done in bringing to trial, as soon as possible, 
those persons charged with crimes. This office is the motivating 
agency and it must b? equipped with sufficient funds, personnel and 
equipment to carry out the work. It is particularly true in this 
present day age of lawlessness. The office must be doubly prepared. 
It might be considered an old cliche that: "Justice delayed is 
Justice denied." Whether it is old or new, cliche or not, it Is 
particularly true that the only way to slow down the waive of crime 
that is threatening to overwhelm law endorcement, the courts, and the 
rights of the people to their lives, homes, and a normal pursuit of 
happiness is to support demands that Justice be done and be done 
auickly and firmly. The District Attorney has deputies assigned to 
all of the Criminal Departments of the Municipal and Superior Courts 
at the Hall of Justice and the City Hall] to the Juveniie Court for 
the presenting of charges against juveniles] and to the Psychiatric 
Court at the San Francisco General Hospital. Recently four new 
deputies were assigned to the District Attorney to help relieve the 
pressures of the work, but with the two new Superior Court and two 
new Municipal Court Judges being assigned, the four new deputies are 
placed with these new departments and the pressure still remains 
if not increased. The Superior Court in an endeavor to reduce the 
backlog of criminal cases intends to assign more civil departments 
at the City Hall to criminal cases. This will not only reauire 
additional deputies for the Superior Court Criminal Departments, but 
will also increase the need for background personnel, investigators, 
stenographers, clerks, and others. 

We are recommending that the District Attorney make a 
survey of the needs of his office - budgetwise and personnelwise - 
and develop and present a three to five year master plan to the 



Mayor, Board of Supervisors, and the Members of the 1971 Grand Jury. 
The provisions of the plan would be reviewed yearly and diminished 
or augmented as the facts would indicate. At the end of the stated 
or agreed upon period the plan would be made inactive as long as the 
backlog of criminal cases had reduced sufficiently. To have the 
District Attorney begging and pleading for manpower, while crime goes 
unattended and criminals go unpunished, prevents him from doing the 
work which is his sworn duty, responsibility and obligation. 

The Office of the District Attorney is operated on a pro- 
gressive, modern, scientific, legally and humanely sound basis. In 
this regard from a modernization standpoint the initial studies for 
the application of data processing methods in the Office of the 
District Attorney have been finalized and there is sufficient monies 
in the present budget to make these plans effective and bring this 
office into cooperation with the other agencies in the use of data 

The Grand Jury commends the District Attorney, John Jay 
Ferdon, and his Chief Deputy, Walter Giubbini, along with the members 
of a dedicated staff for an outstanding job under the most trying 
and often unpopular circumstances. 

Charlton H. Buckley 
William J. Welsh 

Hrant J. Avakian, Chairman 



The Members of this Committee have made visits to the 
Office of the Sheriff, to the jail facilities at the Hall of Justice 
and at San Bruno, and along with other members of this Grand Jury 
have visited the facilities at San Quentin Prison. The Committee has 
also reviewed various material, national and local in scope, pertain- 
ing to the subject matter of the jails in general. 

The Members of this Committee are aware of the requests 
that have been made to present charges against the Sheriff. Under 
the Sections of the Penal Code and Government Code the Grand Juries 
in most of the counties of California have the right and power to 
present charges against an elected and/or public official. We have 
been legally advised that this is not true in San Francisco County, 
as the Charter of the City and County of 1932, which was approved by 
the legislature at that time, takes precedence over the penal and 
government codes. 

Under the Charter of San Francisco County any charges to be 
presented against a public and/or elected official are to be present- 
ed by the Mayor and reviewed and/or acted upon by the Board of 

We are also legally advised that in the making of a report 
on any department of county government in which comment is made on 
any official or person who has not been indicted by the Grand Jury, 
that these comments shall not be deemed privileged. 

This Committee feels that the previous censor of the Sheriff 
is sufficiently severe enough punishment for any of the conditions 
of the jails for which he could be proven solely responsible. Consid- 
ered from a practical objective viewpoint there are other conditions 
that have contributed to the present jail problems. 

The jail facilities are inadequate, over-crowded in trying 
to handle present confinements and segregations. Some of the previous 
Sheriffs, as well as the present Sheriff, have had problems with 
insufficient budgets and were required to appeal for supplemental 
appropriations. There is currently insufficient personnel to handle 
security and custodial service at the jails, in the courtrooms, in 
transportation of defendants and prisoners, and administrative work 
involved in the criminal and gisril duties of the Office of the 
Sheriff . 

We have recommended in our correspondence to the Office of 
the Sheriff a positive approach that could highlight, now and for the 



future, the principal problem areas in jail operations. We are recom- 
mending to the Sheriff that weekly figures and statistics be prepared 
and furnished City Officials, the Courts, and the news media, that 
would reveal the occupancy of the jails as to total inmate oc- 
cupancy, along with a tabulated arrangement of crimes by category. 

This Committee wou ld r ecommend t he establishment of a 
Department of Corrections"only if it is "financed by and admi nistered 
by all the Bay Area Counties - inclu d ing mental an d physical rehabil- 
itative features, probat ion arrangements, product ive v;ork and school- 
ing programs. Otherwis e it wo"uid~be"fTnancial'iy prohibitive for 
San Francisco alone to furnish professional services, required staff- 
ing, security and detention facilities which for some persons and 
under some conditions must remain a part of confinement procedures . 

San Francisco must maintain custodial and security services 
in connection with prisoners and defendants and trained personnel 
will be required to effect this, regardless of what department or 
office has jurisdiction. Now if San Francisco alone is to have a 
Department of Corrections, then we must ask the people of Ban 
Francisco whether they can carry the tax burden to support a custo- 
dial-security service and a Department of Corrections. 

This Committee would like to consider some phases of 
confinement as they may pertain to defendants or prisoners in a 
Department of Corrections on bay area county cooperative basis, and/ 
or under the custodial and security programs of a Sheriff's Depart- 
ment . 

The National Survey of Corrections indicatesthat where an 
offender is in custody for a period of thirty (30) days or longer 
that there is a considerable difference in cost between keeping 
persons in a jail or institution or in the community on a probation 
arrangement. As a general national average the yearly cost to serv- 
ice a felon on probation is $198.00 and the cost to keep a felon in 
prison is approximately $1,966.00. The yearly cost to service a 
misdemeanant on probation is approximately $142.00 and the yearly 
average cost to institutionalize a misdemeanant is $1,046.00. Tnis 
would tend to indicate that probation arrangements in those cases 
where it was possible would be less burdensome on the taxpayers, 
more helpful to the community, less likely to develop bitterness or 
further lawlessness in the defendants, and bring relief to the jails 
and other institutions involved in the rehabilitation and/or custo- 
dial security control of prisoners and defendants. 

"Crimes without victims" account for a large proportion of 
the offenses in most of our courts and jails throughout the United 
States; and it is particularly true in San Francisco. Most of the 
"crimes without victims" are in the misdemeanor classification and 
include, alcoholism, prostitution, homosexuality, and drug addiction. 
National averages indicate that these "crimes without victims 



account for close to fifty percent of the misdemeanors. Alcoholic 
addiction is the highest. San Francisco has a higher percentage 
than the national average with alcoholics and the percentage of recid- 
ivism is also high. This Committee agrees that something should be 
done to assist these people and jail is not the place to assist these 
people to live in the community. 

Considering that a county jail sentence is for one year at 
the most and that the average time spent in -our county jails approx- 
imates 58 days, little can be done to assist the alcoholic or other 
offenders, particularly those involved in "crimes without victims". 
There must be a desire on the part of these people to change toward 
rehabilitation before they can be reasonably assisted. There is not 
sufficient time in short confinements to develop this personal 
attitude especially under existing laws. 

Also, while a person is waiting trial and confined to the 
jails it is not possible to administer any form of rehabilitative 
programs under present laws. The rehabilitative process can only 
start after the person is convicted and sentenced. Often times, and 
legally reasonable, the person on being sentenced is given credit 
for time already served and this further reduces time for rehabilit- 
ative action to be taken. 

It is extremely unfortunate that the rate of recidivism is 
so high in these "crimes without victims" and that persons are re- 
leased from jail only to return to their former haunts with little 
or nothing to help them adjust or re-ad just their lives. It is par- 
ticularly revealing to visit the Municipal Court Department that 
handles alcoholics and learn of the great number of times that some 
of these unfortunate people have been brought before the court for 
alcoholism - some ranging from 75 to 125 arrests. First of all, we 
need revision of our laws to assist the courts, rehabilitative pro- 
grams to assist these unfortunate people, and most of all a concerned 
citizenery with practical and constructive points of view. 

The Penal Code sets up a definite legal pattern for the 
segregation of persons in jail and with over-crowding conditions 
this is a difficult matter to handle. 

The cost of feeding prisoners in San Francisco Jails is 
comparable with other jurisdictions on a national average. The food 
is within standards set by the Department of Corrections in their 
minimum jail standards. We feel that with some additional monies or 
a reduction in jail occupancy that the quality and standards could 
be increased. It is to be noted in the Department of Corrections 
Minimum Jail Standards that persons in state prisons where they are 
more physically active should have more meat bodied foods than those 
in less active county j^ils. 



It is difficult to maintain standards in jails where there 
is a lack of money, insufficient personnel, and an over-crowding 
problem. Until these situations are effectively remedied there will 
be problems with our jails - inability to maintain strict administra- 
tion rules and most unfortunate, and at times unavoidable, insufficient 
protection for the civil rights of jail personnel and inmates. 

The 1970 Grand Jury makes the following recommendations: 

1. A Department of Corrections established on the basis of 
all of the bay area counties participating. 

2. A comprehensive rehabilitative program. 

3. Adequate laws to support our courts in handling jail 

4. County Jails under the Sheriff for custodial control, 
with a minimum-maximum security program. 

5. An active work furlough program. 

6. Publication of weekly statistics on jail occupancy . 

7. A positive factual approach to budgetary items concerning 
the jails. 

Charlton H. Buckley 
William J. Welsh 

Hrant J. Avakian, Chairman 



Addendum to Final Report 

• -0-- 

The 1970 San Francisco Grand Jury submitted 
these two (2) reports on questionnaires to the 
Sheriff who completed them and returned them to 
the Grand Jury. 

These questionnaires are included here as 
part of the report. 



1. What was the inmate capacity for which the county jails 
were constructed? 

437 Hall of Justice (330 M - 57 F) 

80S San Bruno (750 M - 59 F) . Original capacity 
600 M but in 1969 every 3rd cell had an additional hunk added. 

2 What was the highest inmate occupancy for the years 
1961 through October 1970 for each county jail? 

Year Hall of Justice San Bruno 

1961 291 640 

1962 273 339 

1963 233 816 
1Q64 320 674 

1965 313 702 

1966 3^2 715 

1967 429 738 

1968 447 79^ 

1969 453 357 

1970 552 704 

3. What was the highest ratio of prison personnel to 
inmates during these years? 1962 - 1 Deputy to 11 inmates. This 
is based on total Deputies to total inmates per day. Based on 
Deputies working on 4 to 12 (1 Capt, of Watch and 3 Deputies ), the 
ratio was 1 Deputy to 210 inmates and on the 12 to 8 shift (1 Capt. 
of Watch and 2 Deputies) the ratio was 1 Deputy to 230 inmates 

4. What was the average cost per inmate for maintenance 
and operation of the jails during these years? $3 -003 

5. What was the average daily food cost per inmate during 
these years? $.749 (Sheriff's Department also supplies food 
to City Prison inmates.) 




6„ Were the budgets sufficient to meet operation and main- 
tenance, and food costs during these years? No 

7. How much supplementary budgeting was required during 
these years? $212,078 

Note: Please give detailed explanation for any of the 
above items that require additional information 
for a better understanding of the subject matter. 



Prepared for Week of Monday, December 21, 1970 

1. 4419 Total weekend occupancy - Friday of previous 

week through Monday of current week; 4 days. 
4419 * ^ = 1105 Average daily occupancy. 

2. 1077 Total Occupancy on Wednesday of current week. 

3. 356 Total Number of Felons. 

4. 634 Total Number of Misdemeanants. 

5. 684 Total Number of Inmates under Sentence. 

6. 335 Total Number of Inmates waiting Trial. 

7. 68 Total Number of Women Confined. 

8. 1009 Total Number of Men Confined. 

9. 322 Total Number of Persons Confined for the 

following Reasons: 

10. 143 Alcoholism 

11. 132 Drug Addiction 

12. 15 Prostitution 

13. 27 Homosexuality 


The Public Health Department In San Francisco is directed 
by Francis J. Curry, M.D., who was appointed to the post in June 1970, 
after having functioned as Acting Director for several months fol- 
lowing the retirement of Ellis D. Sox, M.D. 

His responsibilities embrace the administration of: 

San Francisco General Hospital, 

Laguna Honda Hospital, 

Hassler Hospital, 

Emergency Hospitals, 

Public Health Centers, and 

Several Bureaus Relating to Specialized Services. 


When the North Beach-Chinatown Health Center #4 is completed 
this winter, each of San Francisco's five public health districts 
will have a new public health center. Through these five public 
health centers the Department has decentralized to better serve the 
public in the various communities of San Francisco. 


In addition to the public health functions, the mental 
health division has decentralized its program into the five public 
health districts which for mental health purposes are known as 
catchment areas. The purpose of this is to serve people in the 
neighborhoods where they live. It seems that there are neighborhood 
and community gscoups that strongly favor decentralization and equally 
vociferous groups just as strongly opposed. It is hoped that the 
Department's program of decentralization will achieve its purpose 
without creating new problems for the neighborhoods 

Of great concern to some residents is that mental health 
facilities will attract users of drugs and narcotics into their area. 
The Department has indicated, however, that their plan is to treat 
people who live in the immediate area if they need any kind of 
psychiatric care. The Department will continue the operation of the 



Center for Special Problems as a specialized facility for the treat- 
ment of drug abuse, alcoholism, and other special psychiatric prob- 
lems . 

An expanded methadone program for the maintenance of heroin 
addicts has been awaiting funding arrangements. On Monday, December 
28, the Board of Supervisors appropriated $121,000 to operate this 
program for the balance of the fiscal year, $98^000 for professional 
and clerical staff (21 positions), and the balance, $23,000, for the 
accouterments and supplies needed. 


An alcoholism detoxification unit has been opened at the 
San Francisco General Hospital, an alcoholism rehabilitation unit at 
Laguna Honda Hospital and alcoholism half-way house facilities in the 
Mission District. This program is being financed through the mental 
health budget. There is a great need for an expansion of the alco- 
holism program and this depends entirely on the availability of funds 
for this purpose. 


Harbor Emergency is in the Golden Gateway Redevelopment 
Project and is required to move. It will be moved before the fiscal 
year ends into a new facility in the new health center at Mason and 
Broadway Streets . 

The emergency hospitals are functioning in much the same 
manner as in the past several years. The structural design of the 
buildings, except as noted above, is archaic. However, under the 
circumstances, they are well operated and fine staffs are dealing 
with emergency problems in a very competent manner, 

Previous Grand Jury reports have commented on the use of 
regular ambulances used as delivery trucks, using trained drivers to 
transport soiled laundry, drugs and other supplies between the 
various emergency hospitals. This situation remains the same, but it 
should be corrected. 

The Emergency Ambulance Service is in urgent need of a new 
radio system, so that the ambulance dispatcher can communicate with 
ambulance personnel when they are out on calls. For any good ambu- 
lance service a two-way radio communication system is essential , A~ 



supplemental appropriation has been requested for this purpose and it 
is recommended that it be provided soon. 


This Hospital has a new administrator since April 1970, 
Mr, C, Charles Monedero, He is attempting to develop a closer working 
relationship with the community. However, this will be a most diffi- 
cult task, because the Hospital serves all of San Francisco, not any- 
one neighborhood. In addition, the University of California, which 
provides the medical staff, many of whom are paid by the City and 
County of San Francisco, have excluded most neighborhood physicians, 
for the reason that they do not possess the qualifications to be 
appointed to the faculty of the University of California. The exclu- 
sion of these neighborhood physicians is a hindrance, as they minister 
to a large percentage of poor people who become patients of the 
hospital, and a lack of continuity in care is created . It is the 
recommendation of the Committee that the University of California 
should be persuaded to change its policy and permit neighborhood 
physicians to become members of the medical staff . 

The administrative organization of the Hospital has been 
studied by consultants, with a recommendation that action be taken to 
improve it. They specifically recommended that a position of 
Associate Administrator and several positions of Assistant Adminis- 
trator be established to improve the operation of the Hospital.. The 
recommendation stressed that these administrators should have masters ' 
degrees in hospital administration and be paid salaries comparable to 
those paid in private hospitals. It is the feeling of this Committee 
that if this recommendation be pursued, the salary question is of 
prime importance to secure the proper personnel. 

An examination of the billing and accounting department 
reveals that although it has been improved it is still in need of 
strengthening and revision. The Mayor and the Board of Supervisors 
have helped by providing additional positions for this purpose. 
However, the Civil Service Commission has not provided the permanent 
accountants to fill the jobs . 

Approximately 38^ of the Hospital's jobs are filled by 
temporary employees . This situation affects morale and performance 
adversely . It is imperative that the Civil Service Commission act 
without delayTn a positive manner . San Francisco General Hospital , 
taking care of people in matters of life and death, should have top 
priority in all respects, especially in recruitment, examination and 
appointment of personnel . 



It is observed that the Board of Supervisors, in their 
meeting December 28, 1970, approved the creation of a 19-member 
coordinating council to conduct a study of the management of the 
San Francisco General Hospital 

This council should give top priority to whether or not 
the new hospital is needed They must study deeply alternatives to 
the construction of the new hospital. They should most assuredly 
give very serious attention to determining whether San Francisco 
General Hospital should become a community hospital, open to neighbor- 
hood physicians. Also, they must determine necessary measures and 
provide the implementation that will enable the management of the 
hospital to function in a manner to better serve the citizens of San 

The hospital has 822 beds, and on December 29, 1970, 433 
were occupied. However, throughout the year the average daily 
occupancy is about 550 During the year the Outpatient Department, 
including the Mission Emergency, will have given approximately 
230,000 treatments. 


Laguna Honda Hospital is performing excellently in caring 
for convalescent and chronically ill patients and it should continue 
to upgrade the services it provides patients 

Laguna Honda Hospital, a number of years ago, was Laguna 
Honda Home. Today it is an accredited hospital, providing rehabili- 
tation and long term care for the convalescent and chronically ill. 
While maintenance of the present standards is essential, it is felt 
that more should be done to increase the hours of nursing care for 
patients, to treat the more seriously ill. The nursing staff does 
a remarkable job within its budget limitations. 

The Mayor and the Board of Supervisors appear to be some- 
what indifferent to the continuous need for providing funds for 
improvement to the physical facilities (remodeling of wards, replace- 
ment of elevators, and fire safety measures, particularly sprinklers). 

Another major weakness is that the salaries of the hospital 
administration personnel are too low and should be raised to bring 
them in line with current salaries for hospital administrators in 
private hospitals. Unless this is rectified the loss of well-quali- 
fied administrators may well result and the recruitment of qualified 
replacements, because of inadequate salary and benefits, may prove 
most difficult. 



The value of capable administrators cannot be overestimated 
and the relative cost of adjusting the salaries of the few adminis- 
trators would be small. 

The entire staff at Laguna Honda should be complimented on 
the very dedicated and fine job they are doing. 

The capacity of Laguna Honda Hospital is: 


Average Daily 
Licensed Maximum 1766 Occupancy 

Actual 1573 1213 


Hassler Hospital under the aegis of Dr, Tsou is providing g 
excellent care of the chronically ill. 

Hassler is an accredited hospital. However , its accredita- 
tion is being threatened by lack of an adequate fire sprinkler system. 
The Department of Public Health has already requested the Bureau of 
Architecture to take prompt action to remedy this deficiency 

On our Committee's visit, we partook of the food, which was 
good, examined the kitchen facilities, and had a lengthy tour of the 
wards. We were quite impressed with what we saw. The quality of care 
is high-grade and the entire staff has to be complimented on the 
outstanding job in treating the large number of seriously ill, 
including patients with terminal illnesses. 

The capacity of Hassler Hospital is: 

Average Daily 
Beds Occupancy 

227 1S0 


Under state law, the Department of Public Health is 
responsible for the medical care of indigents. From the inception 
of the Medi-Cal Program in 1966, the Department has provided care to 



a great number of patients under this program. The Department is 
regulated by the state, and the Medi-Cal rules apply to the Depart- 
ment. The Medi-Cal Program has greatly increased the amount of 
administrative work and caused many difficulties for the reason that 
many changes have been made in the program's regulations. This lack 
of stability must be recognized as a major weakness and the general 
public made cognizant of the fact that the situation has created 
turmoil for both providers and beneficiaries , 

Emergency Medi-Cal regulations placed into effect December 
15> 1970, could have a profound impact on the people of San Francisco 
and the City and County government, which must study and pursue the 
matter actively in protecting the populace and, in particular, the 
already overburdened taxpayer. The political storm brewing in the 
Legislature should be closely observed and every effort made to 
forestall any incursion against San Francisco City and County 
interests . 

The Committee would like to express its sincere apprecia- 
tion for the courtesy and cooperation extended to it at all levels 
and compliment particularly Dr. Curry's dedication to the task ahead 
of him. He is ably aided by Mr. Joseph Mignola, Jr., who has been 
a fount of knowledge pertaining to the hospital system. 

Charlton H. Buckley 
George S. Livermore 

Stuart R. Adams, Chairman 



At the beginning of the 1970 Grand Jury's service, the 
Public Utilities Commission was responsible for the operation of four 
city departments; the Municipal Railway, the Water Department, Hetch 
Hetchy and the San Francisco Airport. 

Last year's Grand Jury report commented on the lack of 
relationship between these departments, and pointed out that Charter 
Revision, defeated by the voters, would have provided the means for 
the various departments to operate independently of each other. That 
report went on to suggest that the Board of Supervisors hold hearings 
to determine the merits of the elimination of the Public Utilities 
Commission and changing departmental accountability. 

While no such hearings have been held, a first step in the 
separation of these unrelated operations was taken when the voters 
approved the creation of the Airports Commission, and the transfer to 
that commission from the Public Utilities Commission the responsibi- 
lity for the operation of the San Francisco International Airport. 


The Grand Jury applauds this step and calls upon the newly 
constituted Airports Commission to aggressively see to it that the 
airport is provided with excellent management; and that it remains 
self supporting. 

Last year's Grand Jury report stated with reference to the 
Public Utilities Commission: 

"We would like to see the commissioners take a more 
aggressive posture in setting policy. Too often it 
appears ideas emanate from departments which the com- 
missioners then approve." 

In his comments on the Grand Jury report, James K. Carr, 
then General Manager of Public Utilities and now Manager of the Air- 
port, stated: "... the inference in this comment is without 
foundation or merit." Some will agree with Mr. Carr, others with 
the Grand Jury. 

Since the Airports Commission is newly created, this Jury, 
at this time, has no basis to comment on its performance or aggressive- 
ness; but it wishes to express strong belief that the Airports Com- 
mission must adopt a very aggressive posture in setting policy. 


AIRPORT (continued) 

The Jury, in its visits to the Airport, was shown the for- 
ward planning that is being done. While we, as laymen, are not 
qualified to appraise how good the planning is, we are gratified at 
least to know that planning is being done. We call on the commis- 
sioners to be aggressive and knowledgeable enough to appraise its 
quality and appropriateness. 

So far, the Airport has not been a burden on the taxpayers 
of the City and County of San Francisco. Nor should it ever become 
one. The Airport serves residents of and is an economic benefit to 
the entire Bay Area. It is one of the largest employers in San Mateo 
County . Yet it pays real property taxes to the County of San Mateo . 
If it cannot remain self supporting, the burden must not fall solely 
on the taxpayers of San Francisco. 

Presently, the Airport has substantial expansion and capital 
investment plans. Presently, the airline industry is suffering from 
unprofitable operations and is coping with many problems, including 
those of reduction of unprofitable service, introduction and financing 
of the 7^7' s, and the future introduction and financing of the DC10 
and Lockheed 1011 airbus. It will take an aggressive, active and 
alert Airports Commission to assure the taxpayers of San Francisco 
that all capital expenditures at the airport can be serviced from 
revenues to be generated by that airport in the light of present and 
projected conditions in the air transport industry. 

One of the important problems facing all airports, and San 
Francisco International Airport in particular, is the provision of 
adequate facilities for ground transportation to serve the airport. 
Most of us who have used the airport recently probably will not argue 
with the statement that at present, parking and traffic conditions 
there are a nightmare. Some means to supplement the use of the pri- 
vate automobile must be implemented. The models and forward planning 
shown 1he Jury contemplated the extension of BART to the Airport- but 
apparently there is, as yet, nothing firm that this is really going 
to happen, or when, nor do there appear to be alternative plans if 
this cannot be worked out. An aggressive Airports Commission will 
see to it that this matter is coped with in a vigorous, intelligent 
and timely manner. 

Many people visualize that the Bay Area's air passenger and 
cargo needs will best be served when the San Francisco, Oakland and 
San Jose airports are under a single management, directed by an air- 
port authority such as presently exists in other major centers. An 
aggressive Airports Commission must have views on such an important 
matter, and should have a "game plan" to implement them if, in fact, 
the commission's views do embrace the regional concept. 

Uppermost in the commissioners' thoughts and actions must be 
the basic philosophy that the air passengers and air cargo users in 
the Bay Area and the airlines serving the Bay Area must be provided 
with the best service that can be made available without cost to the 
taxpayers of San Francisco. 



The citizens of San Francisco are extremely fortunate in 
their heritage of the Hetch Hetchy Water and Power System, and some- 
what fortunate in their heritage of the City Water Department. 

The Hetch Hetchy Water and Power System places San Francisco 
in a position where it is one of very few cities in the world with a 
dependable water supply of excellent quality and adequate to meet all 
foreseeable needs well into the next century. We have this wonderful 
heritage because many competent, dedicated and foresighted citizens 
of San Francisco planned it that way, starting as long ago as 1901. 

The members of the Grand Jury have visited the facilities 
of the Water Department and of Hetch Hetchy, and are very impressed 
with the foresight and engineering skill of those who created them, 
and with the competence, engineering skill, management ability and 
dedication of those who presently administer them. 

It has been recommended many times that the Water Department 
and Hetch Hetchy be merged and placed under one management. In its 
investigations, this Committee has been unable to find any reason why 
it should not also make that recommendation. 

In any merger, whether it be of governmental agencies or of 
businesses, there are going to be a few people whose job security is 
going to be jeopardized. They and their friends will oppose the 
merger, regardless of its merits. If they and their friends have 
enough influence, the merger will not happen, regardless of its merits. 

There should be, and often is, a way of overcoming this 
difficulty, if the merger is advantageous. 

It is our understanding that the Charter presently permits 
the two departments to merge. Their operations and financing seem 
intimately related. Each department publishes operating figures. The 
Water Department shows sale of water as a revenue item, while Hetcr 
Hetchy (created to provide water) reports sale of electricity , but 
not sale of water in its revenue statement" Revenues for sale of 
water are reported only by the Water Department. The Water Department 
reports as a deduction from revenue an item called "Allocation of 
Revenue to Hetch Hetchy" and Hetch Hetchy shows as revenue an amount 
of exactly the same number of dollars and calls it "Allocation of 
Water Revenue from Water Department." Tbe number of dollars used each 
year varies and appears to be an amount that will make both depart- 
ments ' statements of receipts and expenditures come out even 

We are not sure that this kind of accounting and reporting 
makes any sense, and we think the fact that it is used is evidence 
that there must be good reasons for merging the two departments 

The Grand Jury requests that, in its comments on this 


WATER AND POWER (continued) 

report as required by law, the Public Utilities Commission specifi- 
cally include the following information, in addition to comments on 
the balance of the report. 

1. Whether the Public Utilities Commission now has the 
authority to merge the Water Department and Hetch Hetchy. 

2. If the answer to #1 is negative, what other agency or 
agencies, such as the Board of Supervisors, must act. 
Please confirm our understanding that the Charter does 
permit such a merger now, and that submission to the 
voters is not necessary. 

3. Whether any attempt has ever been made to merge the two 
departments, and if such an attempt was made, when was 
it made, what was done, who did it, and what happened. 

4 Whether any such attempt is contemplated, and if so, 
when, and what is planned to be done, and who plans to 
do it. 

5. If the answer to #3 and/or #4 is negative, please list 
the reasons why, in the Commission's judgment, it 
would not be in the interests of more efficient opera- 
tion of our water and power properties, and in the 
interests of consumers of water and power, and in the 
interest of the taxpayers of San Francisco, to effect 
such a merger. 

In connection with the water and power operations, it is 
important to emphasize that they are not a drain on the taxpayers of 
the City and County of San Francisco. In fact, if the two entities 
were merged, and then accounted for as though they were an investor 
owned utility, they would probably show a profit. This situation is 
a tempting one for politicians, and makes possible such things as 
the transfer on July 1, 1969* of ^3 railway electrical employees 
from the deficit ridden Municipal Railway to the Hetch Hetchy, and 
turning over to Hetch Hetchy the responsibility for Muni's electrical 
system, as well as furnishing it free power. Public Utility Commis- 
sion President McDonnell stated at the time that by thus reducing 
the Muni budget, it would save the taxpayers money, and he went on 
"the transfer makes good sense purely from the standpoint of good 
management . " 

We agree with him on neither point. Maintaining power lines 
for the Muni, and buying power to run the buses is an expense of 
providing public transportation ; and should be accounted for as such . 
To transfer the expense and responsibility to Hetch Hetchy solely 
because the latter is profitable and the former is operating at a 
deficit is not, in our opinion, good management practice, nor is it 
likely to save the taxpayers money, The action of the Board of Super- 
visors on December 14, 1970, in appropriating $769 : 000 of Hetch Hetchy 
funds to relocate trolley bus wires on new one way streets is just 


WATER AND POWER (continued) 

the sort of thing that this leads to. 

If what Commissioner McDonnell meant when he said this move 
made sense from the standpoint of good management was that the 
management of Hetch Hetchy is good and that of the Muni is bad, then 
what would make sense would be to get what he considered good manage- 
ment for the Muni- not to give part of management's job to someone 
else to do. 

These are the kinds of actions that highlight the point that 
the water and power operations, being solvent and profitable, can be 
a tempting target for others While the Grand Jury feels and recom- 
mends that the water and power operations should be removed from the 
Public Utilities Commission, as was the Airport, it feels strongly 
that this must be done in such a way as to insulate them from other 
City agencies, such as the Muni, that might wish to "get their hand 
in the till. " 

Whether a separate water and power commission following the 
pattern of the Airports Commission; or whether putting the water and 
power operations under the Chief Administrative Officer- or whether 
some other means is the best way to accomplish this, should be studied 
forthwith, and action taken forthwith- The Grand Jury recommends 
that the Mayor forthwith appoint a Blue Ribbon Commission of distin- 
guished, concerned and knowledgeable citizens to study this question, 
and submit a plan in the very near future. 

The Charter provides that it is the City policy to own its 
own utilities. If one of these operates profitably, the profits 
should not be subject to raids; they should be available for capital 
improvements-, and to the extent not needed for that, it should be a 
policy decision of the Board of Supervisors whether rates charged 
citizens of San Francisco should be lowered or whether profits should 
go into the general fund of the City and thus benefit all taxpayers 
instead of just water users. The Supervisors should not be in a 
position to chip away at Hetch Hetchy as they did on December 14, 
1970. The Grand Jury recommends that the Blue Ribbon Commission study 
what structure can best accomplish this 


The I969 Grand Jury report for the Public Utilities Commis- 
sion concludes with this paragraph : 

"Lastly we recommend that future Grand Juries appoint 
investigative committees for each department, rather than 
for the Public Utilities Commission as a whole, in the 
hope that more effort can be expended in each area 



In our own Committee's mid-year report , we commented on that para- 
graph as follows : 

"At this time we are impressed with the wisdom of that 
recommendation. " 

We now find ourselves at year end with the Committee having 
done far less work on the Municipal Railway than it would have liked 
to. It appears to us to be such a disaster area that the time re- 
quired to do a thorough job was not available to this group of laymen, 
with their own jobs to perform and with no staff to assist. 

We have seen a fere increase from 15^ to 20^ in 1969, and 
from 20^ to 25^ in 1970. Yet the Muni cost the taxpayers $9,692,000 
in the fiscal year I967-I968; $17,932,000 in the fiscal year 1968- 
1969; $19,296,000 in the fiscal year I969-I97O; and the budget for 
the fiscal year 1970-1971 calls for a deficit of $18,700,000. 

The voters have agreed to permit Muni employees to be paid 
at rates equal to the average paid the two highest salaried municipal 
transit systems in the nation. The opinion has been expressed that 
the legislation did not extract from the Muni employees a quid pro 
quo requirement relaxing some outrageous impediments to efficiency 
imposed by Civil Service rules. One probably must blame the Board of 
Supervisors, not the Public Utilities Commission or Muni management, 
for this. The Board should only submit pay measures to the voters 
which contain such trades. 

A few other matters within the control of the Public 
Utilities Commission and the Muni management for which criticism is 
heard are: 

1. The program of forward planning is deficient or lacking, 

2. Management has been very dilatory over the past several 
years in developing plans to integrate with BART 

3. Comparisons with A C Transit on such matters as ratio of 
employees per vehicle, utilization of operating personnel, 
use of preventive maintenance programs, accident and 
claim expense, all show Muni trailing in its performance. 

Continued public criticism of the Muni cannot be ignored . 
The drain on the taxpayers requires attention While there seems to 
be a considerable body of thought that public transportation is not 
likely to be profitable like water and power, or self supporting like 
the airport, there is no reason to believe that rigorous cost control 
cannot reduce the cost to taxpayers. Recommendations have come from 
some quarters that the Muni and Parking Authority be joined in a 
Department of Transportation . Then the responsibility of measuring 
the relative cost of providing parking versus providing public trans - 
portation would be in one place . 



All these subjects should be studied carefully. This year's 
Grand Jury has identified a few of the problems and skimmed the sur- 
face. Next year's Grand Jury., as a major service to the taxpayers, 
should have one committee to study the problems of the Muni and that 
alone. Consideration should be given to providing a budget so tnat 
the committee will have a staff to assist it to do a thorough job. 

Maurice L Goldman 
Jack M Lipman 

Gustav Knecht, Jr , Chairman 







As a Member of the 1970 San Francisco County Grand Jury, I 
present herewith a minority opinion concerning the initial 1970 
Grand Jury Report on the Departments of the Mayor, Chief Administra- 
tive Officer, and the Board of Supervisors. 

I sincerely wish to express my gratitude and satisfaction with 
the attitude of the other Members of this 1970 Grand Jury who have 
so graciously granted me the permission to prepare and present this 
minority report. Their consideration of my viewpoint and granting 
me this permission should be considered a demonstration of true 
democracy in wanting a full presentation of all views. 

In reviewing the Initial Report I recognize some of the subject 
matter as being prevailing and continuing problems, but in some other 
matters and situations I have a divergent view. It is not my objec- 
tive to make this a controversial matter, to create disharmony among 
my fellow grand jurors, or to impugn the integrity of the Grand Jury 
in any manner. I only wish to present my " in depth" point of view . 

Particularly, I wish to point out that there is real leadership 
in San Francisco -- leadership under very trying and unusual cir- 
cumstances. I wish to point out, however, that to have the full 
benefits of leadership it must be a "two-way street." There must be 
those who lead and give directions and those who follow. Leadership 
to be truly effective must be the combined result of the working 
together of government employees, citizens, and designated or elected 
leaders. The prim ary purpose of any government is to do or help to 
do for the governed collectively those things that they are unable to 
do alone or singly and, further, for the protection and guarantee of 
the rights of people. Government or leadership in government must 
be a two-way action — there must be a recognition of rights and of 
responsibilities as well. 

In further reviewing the Initial Report, I do recognize as 
existing many of the problems as indicated. These are the problems, 
for the most part, that will be found in most of our urban-city areas 
throughout the United States -- in greater or less intensity. Some 
of these problems have been long in developing and have suddenly come 
to light; others are situations that have developed sharply and 

We are living today in a highly mobile society throughout the 
United States. Particularly, the flow of population into this state 
and into this City is extremely high. We are also living in very 
disturbing times — times when there are gaps in understanding and 
in communications. 

In a more stabilized community -- with less mobility -- many 
problems would be solved for many people, but often because of the 
population mobility the same problems are recurring and have to be 
settled for different people. These are trying and disturbing times 
and often under the hue and cry of the times, leadership and problem 


reduction are hidden. Unfortunately, we will always have problems, 
but we would endeavor to keep them to a minimum and I am sure that 
our leaders feel the same. It takes time to solve problems and some 
patience must be exerted by those in need. 

There are problems in this City and County with which we are 
faced that cannot be resolved completely by us as citizens or by 
leaders or officials alone. 

Housing is a problem that requires the outside help and assist- 
ance of the Federal Government. It is true that leaders must press 
for it. At the time that this report is being written, the Board of 
Supervisors is negotiating with H. U. D. concerning additional hous- 

The homeowners' ta x probl em stems from state legislation that 
requires all real properties to be assessed at twenty-five percent 
(25%) of the full cash value. The supervisors fix the tax rate to 
this valuation. Only the Legislature of the State of California can 
change the assessed valuation. This problem has to be solved by the 
State legislature, City officials, and the citizens working together. 
Our City leaders alone proclaiming the need for tax reduction with- 
out the support of the people, will never bring homeowners' taxes 

The City Charter of 1932 is presented as an obstacle or a 
stumbling block to effective government. The Mayor and the Board of 
Supervisors, in recent years, took the necessary legal steps to 
establish a Charter Revision Committee, which, after considerable 
work and effort, sent proposals in charter changes to the electorate. 
Although these changes in a recent election were voted down, surely 
one must recognize leadership on the part of the officials of our 
City in this matter. 

Civil Service has been indicated as a stumbling block to the 
efficient operation of City government. I vary, only in this one 
instance from the Initial Report, to cite a portion of the Grand Jury 
Report on the Civil Service Commission, a department under the juris- 
diction of the Mayor. This Commission is proposing the phasing out 
of limited tenure employees over a gradual two-year period and will 
present this matter to the Board of Supervisors for confirmation and 
monetary support. The Commission feels that this will have a stabi- 
lizing effect on City government in granting a sense of security and 
permanency to civil service employees. 

Voting and election: It has been indicated that leadership is 
a two-way action — on the part of the officials of government, elect- 
ed and/or appointed, and the citizens of San Francisco. There should 
be deep concern over the number of people who are not participating 
in the activity of their government and exercising their voting privi- 
leges. It is extremely alarming to think that there is a potential 
500,000 people who could vote and only about one- half of that number 


voting. Do we place the blame on the leaders of our City and County? 
Some of the blame must be placed on those who do not participate! 
If it is only the minority of the electorate that is participating 
in government, then our leaders do not have the support of a major- 
ity of the people or a majority opinion. What a difference would be 
made in election results if most of the people voted! Leadership 
must be a two-way action and people cannot complain about leader- 
ship when those who should follow or express opinions are failing 
their duties -- by not voting. 

The records of personnel placement in the City and County of 
San Francisco show that those in positions of leadership have bent 
over backwards to eliminate all forms of discrimination. They 
follow all of the principles of the United States Constitution, not 
by words alone, but by deeds. The City government has all races, 
colors, and creeds well represented in places of leadership, manage- 
ment, as well as in the lower positions -- and is approaching direct 
ratio to ethnic population. 

Progress is being made under present leadership. The following 
examples of situations that can be considered beneficial are the 
results of good leadership. 

There is a definite reduction in the crime rate in San Fran- 
ciscoT This was accomplished only through the determined efforts 
and energies expended by our law enforcement departments as ordered 
by our Mayor and there was full support from the Board of Supervisors 
which provided the means with which to make this possible. Our 
crime rate has decreased substantially at a time when it continues 
upward throughout the Nation. 

There is a gradual closing of the gap between the police and 
youth and minority groups. Due to determined efforts on the part of 
our leaders, court procedures in juvenile matters have been improved 
substantially. The relations with law enforcement and youth groups 
have been greatly improved and enlarged. 

There are various committees working in neighborhoods in efforts 
to bring about understanding and to determine the needs of these 
people and relate them to the City Officials, Some of these are: 
Citywide Youth Council, Chinatown Youth Council, Mission Coalition, 
Hunters Point Boys' Council, Mission Rebels, Youth for Service"7 
Young Men for Action, and South Park Community Center. 

On a national basis San Francisco is not suffering the financial 
crisi"s~~that is found in so many of our Eastern cities and it is a 
credit to our leadership that, with all of the difficulties, we are, 
at this point, financially solvent. 

It is true that we did have some disturbance in connection with 
some personnel of the City, but; again, we in ban i?rancisco gener ally 
enjoy good relationsh ip^ between _o^J^±eaaers_&i^j^r_vorKers ano/or 
their_ representatives^ 


It is not the purpose of the Grand Jury to be a super-govern- 
ment, imposed on top of our duly and legally constituted government . 
Tt"is only a review body insofar as City and County departments are 
concerned. The areas in which grand juries are to investigate are 
clearly defined and a Grand Juror's work should be considered sup- 
plementary to the work of the leaders in our City as well as being 
a means of helping to bring problems before them. 

In presenting this report, I want it to be firmly understood 
that I do not feel that there is any division in the Grand Jury, but 
that there is a cohesive force at work with the grand jurors wanting 
full information -- thus this minority report. - 

In conclusion, I feel that in recognition of their efforts and 
accomplishments in overcoming many obstacles and in solving innumer- 
able problems which confronted them, our leadership -- namely, the 
Mayor, the Chief Administrative Officer, and the .Board of Super- 
visors -- deserve a vote of confidence. 

Respectfully submitted, 

Gene P. Cervelli 


s •/. 

' 7 3 

. 1 vV^^-i