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1969

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DOCUMENTS

JUN 1 9 1970

SAN FRANCISCO

PUBLIC LIBRARY

CITY AND COUNTY OF
SAN FRANCISCO

CALIFORNIA

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,

-I-

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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.

-II-

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 0f my life'.

Sincerely,

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

-Ill-

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

I.P.Sicotte,Jr.

Frank J. Smith

Joseph C. Tarantino. '

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

■IV-

FINAL ORAND JURY REPORTS
TABLE gP CONTENTS

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

-V-

.

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

-VI-

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.

-VII-

HEALTH DEPARTMENT REPORT.

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.

-1-

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-
mendations.

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 ,
studied.

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 .

-2-

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
Francisco.

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."

-3-

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.

SUPPLEMENTAL INFORMATION RELATING TO THE FOREGOING ITEM 4

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.

-4-

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
patients.

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

-5-

DEPARTMENT OF PUBLIC WORKS

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.

Continued.

•6-

PURCHASING DEPARTMENT

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 :

1. SPECIFICATIONS:

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.

7-

PURCHASING DEPARTMENT continued.

2 . PURCHASE OF EQUIPMENT

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

-8-

DEPARTMENT OF FINANCE AND RECORDS

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.

AGRICULTURAL COMMISSIONER (Including FARMERS MARKET)

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.

PUBLIC ADMINISTRATOR-PUBLIC GUARDIAN. This is a self-
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

-9—

PUBLIC ADMINISTRATOR-PUBLIC GUARDIAN (Continued)

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. Cognizance
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 store.ee 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).

-10-

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
staff.

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

-11-

PUBLIC DEFENDER

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

-12-

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

-13-

M. EUDE YOUNG MEMORIAL MUSEUM

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
museums.

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

Ik

DISTRICT ATTORNEY

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
Center.

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.

-15-

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

-16-

ASSESSOR

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

ASSESSMENTS :

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
$3,853,187.

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.

SERVICE TO PUBLIC:

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.

MANPOWER AND SPACE:

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.

-17-

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:

OWNERSHIP PILE:

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

MAILING ADDRESS FILE:

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

REAL ESTATE VALUATIONS:

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.

SALES RATIO ' STUDY:

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

-18-

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.

BUSINESS PERSONAL PROPERTY MASTER FILE:

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
file.

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 bill51 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.

PUBLIC INFORMATION DIVISION:

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.

-19-

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.

STATE PROPOSITION 1-A

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.

AUDITS :

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.

RECOMMENDATIONS :

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

20-

CONTROLLER

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.

PRESENT STATUS:

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.

NO.

CLASS TITLE

POSITIONS
AUTHORIZED

FILLED BY
PERMANENT
EMPLOYEES

FILLED BY

LIMITED

TENURE

1658

Chief Accountant

6

3

3

1656

Head Accountant

13

10

3

1654

Principal Accounts

nt

12

6

6

I652

Senior Accountant

17

4

13

1650

Accountant

25

12

13

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.

-21-

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
talent.

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.

RECOMMENDATION:

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

-22-

REDEVELOPMENT AGENCY

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

■23-

PARKING AUTHORITY

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.

ACCOMPLISHMENTS:

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.

PARKING CONTROL

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-

PARKING AUTHORITY (continued)

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

-25-

PUBLIC UTILIT IES COMMISSION

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

-26-

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/eJ 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

-27-

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

-28-

SUPERIOR AND MUNICIPAL COURTS

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

-29-

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

-30-

ADULT PROBATION

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
Commission.

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

I.P.Sicotte,Jr.

John J. Enright, Chairman
-3'lr

LAW LIBRARY

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. Sicotte3Jr.

John J. Enright, Chairman

-32-

DISASTER CORPS

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.

ORGANIZATION:

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.

FUNDING:

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.

FUNCTIONS :

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

-33-

Disaster Corps (continued)

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

EXECUTIVE RESPONSIBILITY:

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.

BUDGETARY CONSIDERATIONS:

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.

RECOMMENDATIONS:

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.

.34-

RECOGNITIONS:

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 rr.er:
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

-35-

SAN FRANCISCO SOCIETY
POP
THE PREVENTION OP CRUELTY TO ANIMALS

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
day.

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:

-36-

BOARD OF PEPMIT APPEALS

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. Sr.it h

Joseph M. Hannan, Chairman

-37-

CITY PLANNING COMMISSION

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.

-38-

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

-39-

HOUSING AUTHORITY

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
Francisco.

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.

-40-

MODERNIZATION PROGRAM

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

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.

GROWTH

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

-41-

HUMAN RIGHTS COMMISSION

HISTORY OF THE HUMAN RIGHTS COMMISSION

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.

PURPOSE

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.

AUTHORITY

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.

COMPOSITION

The Commission, consisting of fifteen members appointed by

-42-

HUMAN RIGHTS COMMISSION (continued)

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.

BUDGET

1967 $150,000.00

1968 173,833.00

1969 204,423-00

plus $32,000.00 Foundation Money.

COMMISSION'S PRIORITIES FOR 1970

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.

OBSERVATIONS AND RECOMMENDATIONS

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,

-43-

HUMAN RIGHTS COMMISSION (continued)

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

-M-

CALIFORNIA PALACE GF THE LEGION CF HONOR

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

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

45

SPECIAL NARCOTIC^ COMMITTEE J* EPCRT

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
Francisco.

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.

46

SPECIAL NARCOTICS COMMITTEE REPORT (Continued)

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 purcnn.se 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-
support.

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

47

SAN FRANCISCO PORT AUTHORITY

AD HOC COMMITTEE

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.

STAFFING:

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
appointment.

48

SAN FRANCISCO PORT AUTHORITY (Continued)

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.

FINANCING:

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.

CONTRACTS:

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.

49

SAN FRANCISCO PORT AUTHORITY (Continued)

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.

RECOMMENDATION;

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.

CONCLUSION;

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

50

SHERIFF

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.

-51-

SHERIFF REPORT (CONTINUED)

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, 19693 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 probations 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.

-52-

SHERIFF REPORT (CONTINUED)

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
force.

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.

-53-

SHERIFF REPORT (CONTINUED)

RECOMMENDATIONS: SHORT TERM

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.

LONG TERM

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

-54-

POLICE DEPARTMENT

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 .

WORK SHIFTS:

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.

OVERTIME:

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. ..

-55-

POLICE DEPARTMENT (CONTINUED)

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.

PAY:

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 .

■56-

POLICE DEPARTMENT (CONTINUED)

PHYSICAL FITNESS:

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.

INSPECTORS j BUREAUS :

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.

POLICE ATHLETIC LEAGUE:

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.

NARCOTICS:

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.)

TRAFFIC :

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.

-57-

POLICE DEPARTMENT (CONTINUED)

SOLO BIKES:

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.

ACCIDENT INVESTIGATION BUREAU :

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.

HOT CHASES:

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.

ENVIRONMENT:

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.

GENERAL EQUIPMENT:

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.

-58-

POLICE DEPARTMENT (CONTINUED)

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-
tion.

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

COMMUNICATIONS:

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.

TOW AWAY:

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 r19o9 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

-59-

YOUTH C-UIDA MCE CENTER

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.

DEPENDENT CHILDREN:

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.

-60-

Youth Guidance Center (continued)
DELINQUENT GIRLS:

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
Authority.

PROBATION DEPARTMENT:

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.

PUBLIC DEFENDER:

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*

-61-

Youth Guidance Center (continued)

RECREATION:

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.

LOG CABIN AND HIDDEN VALLEY RANCH SCHOOLS:

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,

-62-

TREASURER

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.

OPERATIONAL REVIEW

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

-63-

TREASURER (continued)

to the satisfaction of this Committee.

RECOMMENDATION

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

i
1

-64-

AD HOC COMMITTEE ON PORNOGRAPHY

SPECIAL REPORT

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-
erature.

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.

-65-

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-
lem.

Mrs. Marie A. Bruce
David Morris

John J. Casey, Chairman

-66-

CITY ATTORNEY

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

•67-

GRAND JURY CITY AND COUNTY OF SAN FRANCISCO 1969

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

ECONOMIC OPPORTUNITY COUNCIL

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-
ation.

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
E.O.C."

John P. Cordoni

Joseph C, Tarantino

Norbert Cronin, Chairman

■69-

DEPARTMENT OF ELECTRICITY

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.

VANDALISM :

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
$333600.00 annually, from "jammed" parking meters. (Savings from
this revenue alone would more than pay for the requested positions.)

VISITATIONS:

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.

SERVICES:

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.

-70-

SERVICES; (Continued)

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

RECOMMENDATION;

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

Arnold F. Devoto
Joseph M. Hannan

Frank J„ Smith, Chairman

■71-

REAL ESTATE DEPARTMENT

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

-72-

HEALTH SERVICE SYSTEM

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 year3 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 .

-73-

HEALTH SERVICE SYSTEM (Continued)

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

-7h-

CIVIL SERVICE COMMISSION

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 Mr. 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:

-75-

CIVIL SERVICE COMMISSION (Continued)

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-
ing:

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.

-76-

CIVIL SERVICE COMMISSION (Continued)

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-
tions."

-77-

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 must 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-
ations"

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
dasir&tjjfcg,

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 :

-78-

CIVIL SERVICE COMMISSION (Continued)

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

-79-

CORONER

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.

DEATHS REPORTABLE TO THE CORONER:

Homicide
Suicide
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:.

TRANSPORTATION:

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.

COMMUNICATIONS :

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

-80-

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

GENERAL EQUIPMENT:

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
$2,000.

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.

FREEZERS :

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.

PERSONNEL:

This Committee of the Grand Jury finds it most disconcert-
ing to find that approximately 50$ of the drivers and deputy coron -
e.rs 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
department.

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.

BURIALS:

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.

-82-

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
$200.00.

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
favor.

INDIGENTS :

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,

-83-

THE BOARD OF SUPERVISORS

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

FINANCE:

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.

P0LICE_AND THE SOARING CRIME_RATE:

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

-84-

\

THE BOARD OF SUPERVISORS (Continued)

providing.

CHARTER AMENDMENT

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.

BOARD OF EDUCATION

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.

HEALTH SERVICE SYSTEM

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.

ALCATRAZ

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 ANNUAL REPORT OF THE BOARD OF SUPERVISORS,
BY ROBERT DOLAN, CLERK

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.

-85-

THE BOARD OF SUPERVISORS

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

-86-

SAN FRANCISCO FIRE DEPARTMENT

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.

VISITS

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

-87-

SAN FRANCISCO FIRE DEPARTMENT (Continued)

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.

COMMENDATIONS

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.

OPEN AND PROMOTIVE LISTS

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

SAN FRANCISCO FIRE DEPARTMENT (Continued)

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.

SURVEY

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.

RECOMMENDATIONS

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.

-89-

SAN FRANCISCO FIRE DEPARTMENT (Continued)

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.

IN CONCLUSION

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

-90-

THE CHIEF ADMINISTRATIVE OFFICER

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-
ber.

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-
tected.

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-
ment.

Norbert Cronin

Mrs. Nancy B. Knickerbocker
Nicholas J. Klunis, Chairman
-91-

THE RECREATION AND PARK DEPARTMENT

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.

-92-

THE RECREATION AND PARK DEPARTMENT (Continued)

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 Conmitt.ee. 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 advj.se 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

-93-

MAYOR

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.

PORT

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.
We 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.

DOWNTOWN AREA

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.

ALCATRAZ

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

-94-

MAYOR (Continued)
taxpayers of San Francisco.

BUDGET AND TAXES

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.

BUDGET DIRECTOR

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

-95-

MAYOR (Continued)

Board of Supervisors avail themselves of the services of this new
director.

POLICE

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.

UNDESIRABLE ELEMENTS

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.

SOCIAL HEALTH

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

■96-

THE SAN FRANCISCO PUBLIC LIBRARY

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

-97-

THE SAN FRANCISCO PUBLIC LIBRARY (Continued)

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
needs.

Mrs. Marie A. Bruce
Frank J. Smith

Joseph M. Hannan, Chairman

-93-

ART COMMISSION

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.

JURISDICTION

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
Francisco.

David Morris

Mrs. Marie A. Bruce

John J. Casey, Chairman

-99-

WAR MEMORIAL - VETERANS BUILDING

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

-100-

SAN FRANCISCO PUBLIC SCHOOL SYSTEM

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
teachers.

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
quickly.

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.

STUDENT FUNDS

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.

-101-

SAN FRANCISCO PUBLIC SCHOOL SYSTEM (Continued )

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.

QUALITY_EDUCATION

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.

BASIC SKILLS

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

-102-

SAN FRANCISCO PUBLIC SCHOOL SYSTEM (Continued)

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.

UNAUTHORIZED PERSONS

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
them.

COUNSELLING AND ADVISORS

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.

STUDENT APPRAISAL

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

-103-

SAN FRANCISCO PUBLIC SCHOOL SYSTEM (Continued)

prepare him for the working world upon High School Graduation.

TEACHER EVALUATION

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

ADULT EDUCATION

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.

SEX EDUCATION

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.

REPORT CARDS

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.

ORGANIZING GROUPS

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,
Chairman

-104-

SOCIAL SERVICES DEPARTMENT

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
itself.

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

-105-

SOCIAL SERVICES DEPARTMENT (Continued)

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 procedures of the Department it-
self, the budget of the senior citizens and children should be cut
last.

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-

RETIREMENT BOARD

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
candidate.

In addition, a completed C.P.A. audit of the Retirement
-107-

RETIREMENT BOARD (Continued)

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
developed.

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
3.

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
-108

ELECTRONIC DATA PROCESSING DEPARTMENT

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. Coopers 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.

-109-

ELECTRONIC DATA PROCESSING (Continued)

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:

I PAYROLL - RETIREMENT - HEALTH SERVICE - CIVIL SERVICE

INTEGRATED PERSONNEL ' SERVICES SYSTEM ( I . P . S . S . )

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-
tion.

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 15 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.

II TAX COLLECTOR:

Design and implement Eusiness Tax Collection System.
Completed

Continued system development.
On-going

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-
processing.
To be implemented this fiscal year.

-110-

ELECTRONIC DATA PROCESSING (Continued)

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
be

RECOMMENDATION:

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

■111-

SOCIAL SERVICE DEPARTMENT

Attachment "A

3rd Qtr,1967
PROPOSED TASK

CURRENT STATUS

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.
CURRENT STATUS Completed.

4th qtr. 1967
proposed task

current status

propcsed task

current status

propcsed task
current status

1ST Qtr I968
PR9P0SED TASK

PROPOSED TASK

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.

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.

-112-

Attachment "A"
SOCIAL SERVICE DEPARTMENT (continued)

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
Unit.

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
Unit.

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
system.

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.

-113-

Attachment "A'

PROPOSED TASK

CURRENT STATUS

PROPOSED

TASK

CURRENT

STATUS

3rd QTR.

1968

PRSPOSED

TASK

CURRENT

STATUS

PROPOSED

TASK

CURRENT

STATUS

SOCIAL SERVICE DEPARTMENT (CONTINUED)
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
testing

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
PROPOSED TASK

CURRENT STATUS
1st Qtr. I968
PROPOSED TASK

ASSESSOR - PROPERTY INFORMATION SYSTEM

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.

-ilk-

Attachment "A'

CURRENT STATUS:

2nd Qtr. 1968
PROPOSED TASK

CURRENT STATUS

3rd Qtr. 1968
PROPOSED TASK

ASSESSOR - PROPERTY INFORMATION SYSTEM (continued)

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
register.

CURRENT STATUS

4th Qtr 1968

1. Completed

2. Completed.

PROPOSED TASK

CURRENT

STATUS

1st Qtr.

1969

PROPOSED

TASK

CURRENT

STATUS

2nd Qtr.

1969

PROPOSED

TASK

CURRENT STATUS

1. Tele-processing tax collection system

2. Unsecured - Business processed through Tele-
processing.

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 "A1

ASSESSOR - PROPERTY INFORMATION SYSTEM (continued)

3rd Qtr 1969
PROPOSED TASK.

CURRENT STATUS

4th Qtr. 1969
PROPOSED TASK

CURRENT STATUS

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 .

-116-

ATTACHMENT A (Continued)

MUNICIPAL COURT

CURRENTLY OPERATIONAL

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

CURRENTLY BEING DEVELOPED

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

FUTURE (Next 2 to 3 Years)

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

CURRENTLY OPERATIONAL

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.

CURRENTLY BEING DEVELOPED

Pin information will be expanded to include personal identi-
fiers.

FUTURE (Next 2 to 3 Years)

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

CURRENTLY OPERATIONAL

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

Civil Indexing has been converted to computer processing.

POLICE DEPARTMENT

CURRENTLY OPERATIONAL

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

-117-

ATTACHMENT A (Continued)

POLICE DEPARTMENT (Continued)

CURRENTLY BEING DEVELOPED

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.

CURRENTLY OPERATIONAL

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

CURRENTLY BEING DEVELOPED

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

FUTURE

SUMMARY I.D. AND RAP SYSTEM. MISSING PERSON FILE. WANTED
HOLD FILE.

CURRENTLY OPERATIONAL

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

CURRENTLY BEING DEVELOPED

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.

FUTURE

FIELD INTERVIEW. MONIKER FILE. CASE SUMMARY. TOWED
STOLEN VEHICLES.

SUPERIOR COURT

CURRENTLY OPERATIONAL

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

■118-

ATTACHMENT A (Continued)

SUPERIOR COURT (Continued)

CURRENTLY BEING DEVELOPED

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.

FUTURE

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

CORONER

CURRENTLY OPERATIONAL

Jury Selection System using the Superior Court computer
programs.

FUTURE

Statistical Reporting to aid in office processing and
state reporting.

PUBLIC HEALTH

CURRENTLY OPERATIONAL

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

FUTURE

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

CURRENTLY OPERATIONAL

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

CURRENTLY BEING DEVELOPED

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

-119-

ATTACHMENT A (Continued)

PUBLIC HEALTH (Continued)

CURRENTLY OPERATIONAL

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.

CURRENTLY BEING DEVELOPED

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

FUTURE

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

CURRENTLY OPERATIONAL

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

CURRENTLY BEING DEVELOPED

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.

CURRENTLY BEING DEVELOPED

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
computer.

FUTURE

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

PUBLIC LIBRARY

CURRENTLY OPERATIONAL

SERIAL PUBLICATION SYSTEM

-120-

ATTACHMENT A (Continued)

ACCOUNTING INFORMATION

2nd Qtr. 1968

PROPOSED TASK

BUDGET, FINANCE AND ACCOUNTING
BUDGET

CURRENT STATUS-

3rd Qtr. 1968

PROPOSED TASK -

CURRENT STATUS-

4th Qtr. 1968

PROPOSED TASK -

CURRENT STATUS-

lst Qtr. 1969

PROPOSED TASK -

CURRENT STATUS-

2nd Qtr. 1969

1.

2.

1.
2.

1.
2.

1.
2.

1.
2.

Review and evaluation of existing budget

system.

Begin System design and specifications.

Completed
Completed

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

Completed
Completed

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'
allowances.

1. Completed

2. Completed

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

allowances.

CURRENT STATUS- 1.

4th Qtr. 1967

PROPOSED TASK -

1.
2.

Completed

DISBURSEMENTS

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

-121-

ATTACHMENT A (Continued)
DISBURSEMENTS (Continued)

PROPOSED TASK -

CURRENT STATUS-

lst Qtr. 1968

PROPOSED TASK -

CURRENT STATUS-

2nd Qtr. 1968

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

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
space.

PROPOSED TASK -

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

2. Full installation and use of the system by
Controller.

3- Begin development and installation of
department terminals.

CURRENT STATUS-

3rd Qtr. 1968

1. Deferred

2. Partial

3. Completed

PROPOSED TASK - 1. Continue development and installation of

department terminals.
2. Begin outstanding warrants reconciliation.

CURRENT STATUS-

4th Qtr. 1968

1.
2.

PROPOSED TASK - 1.

2.

Continuous
Priority shifted

Continue development and installation of

department terminals.

Finish outstanding warrants reconciliation.

3. Establish repayments and refunds.

-122-

ATTACHMENT A ( Continued )

DISBURSEMENTS (Continued)

CURRENT STATUS- 1. Partially implemented

2. Priority Shifted

3. Priority Shifted

RECEIPTS - REVENUES

4th Qtr. 1967

PROPOSED TASK - 1. Development of revenue.

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

CURRENT STATUS- Partial - General ledger identification avail-
able.

1st Qtr. 1968

PROPOSED TASK - 1. Complete system design and specifications.

~— 2. Begin pilot project and debugging.

CURRENT STATUS-

2nd Qtr. 1968

PROPOSED TASK -

CURRENT STATUS-

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

PROPOSED TASK -

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

•123-

ATTACHMENT A (Continued)

PAYROLL - RETIREMENT - HEALTH SERVICES - CIVIL SERVICE
INTEGRATED PERSONNEL SERVICES SYSTEM (I.P.S.S.)

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.

■124-

ATTACHMENT A (Continued)

TAX COLLECTOR
REQUIRED TASK

1. Design and implement Business Tax Collection system.

2. Continued system development.

CURRENT STATUS

1. Completed

2. On- going

ASSESSOR

REQUIRED TASK

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

a. Homeowners exemption

b. Homeowners rebates system

c. Business inventory reduction

CURRENT STATUS

1. Completed

REGISTRAR OF VOTERS

REQUIRED TASK

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.

CURRENT STATUS

1. Completed

2. Implement 3 November k, 1969 Election

PUBLIC WORKS
CURRENT STATUS

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.

-125-

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.

CURRENT STATUS

1. Completed

2. Completed
3- Completed

CITY PLANNING

REQUIRED TASK

1. Design and implement system for land use survey.
CURRENT STATUS

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

CONTROLLER BUDGET

REQUIRED TASK

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,

CURRENT STATUS

1. To be implemented for current Budget.

2. Implemented for current Budget.

CONTROLLER-ACCOUNTING

REQUIRED TASK

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.

CURRENT STATUS

1. Completed

2. Completed

■ 126-

ATTACHMENT A. (Continued)

E.D.P. OPERATIONS DIVISION
E.D.P. CITY HALL

(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
computers.

(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
computers.

(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.

-127-

ATTACHMENT A (Continued)

E.D.P. OPERATIONS DIVISION
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.

-128-

1970

m$mw) mm

'

V/v^"-

CITY AND COUNTY OF

"i

SAN FRANCISCO

CALIFORNIA

FINAL 1970 GRAND JURY REPORTS

TABLE OF CONTENTS

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

-I-

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

-II-

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.

it*******************

-III-

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

MEMBERS OP THE 1970 GRAND JURY
IN AND FOR THE
CITY AND COUNTY OP SAN FRANCISCO

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

-IV-

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.

-V-

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.

-VI-

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
Francisco.

-VII-

DEPARTMENT OF FINANCE AND RECORDS

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

Recorder

Records Center

Registrar of Voters

Sealer of Weights and Measures

Tax Collector

9

9

9

9

59

63

65

65

3

3

3

3

16

18

18

18

3

9

9

10

25

25

25

25

3

3

3

3

24

24

24

24

9

9

9

9

65

67

110

110

-1-

DEPARTMENT OF FINANCE AND RECORDS (Continued)

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.

DEPARTMENT OF AGRICULTURE, SAN FRANCISCO COUNTY

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-
tions.

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
related.

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

-2-

DEPARTMENT OF AGRICULTURE, SAN FRANCISCO COUNTY (Continued)

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
$7^,000.00.

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-
1970.

"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

DEPARTMENT OF AGRICULTURE, SAN FRANCISCO COUNTY (Continued)

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
closed.

COUNTY CLERK - RECORDER

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
$700,000.00.

The State of California Judiciary sets the fees to be
collected for services rendered. The Committee recommends that
our lobbyist in Sacramento 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
taxpayers.

Two new Superior Court Judges will be appointed to the City

COUNTY CLERK - RECORDER (Continued)

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.

THE 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-
tion.

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.

PUBLIC ADMINISTRATOR - PUBLIC GUARDIAN

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
property.

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.

•5-

RECORDS CENTER

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 recommends that the expense of storing be
eliminated and that the records now stored at 144 Townsend Street
"and the" Car Barn be transferred and consolidated ^o one of~TFTe
unused facilities of the San Francisco 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.

REGISTRAR OF VOTERS

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.

-6-

SEALER OF WEIGHTS AND MEASURES

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-
ards.

"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,

-7-

SEALER OF WEIGHTS AND MEASURES (Continued)

the printing cost of 120,000 pamphlets would be approximately
JT50" OTO 0~ "ThTs expenditure should be included in" the 19/0-71

BudgeTT

Incidentally, the distribution of such informative litera-
ture is standard procedure in most of the counties in California.

TAX COLLECTOR

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
hired.

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.

-8-

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.

CONCLUSION

There are sources of monies available to effect moderniza-
tion of courT~ahd administrative procedures in City Government.
Grants are available from trie United States Government and from
various "private fund's such~as the Ford ^ounHa'tion." It is necessar y
on the part of the~C*ourts and AdminisTrative Agencies to" show that
they have initiated a~program and have 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 Cleric would 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

PURCHASING DEPARTMENT

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
quality.

2. Standardize equipment, materials and supplies.

3. Review long existing specifications, and to develop
and modify them in the interest of economy and
efficiency.

4. Research new materials and products.

DEPARTMENT OF PUBLIC WORKS

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

-10-

DEPARTMENT OF PUBLIC WORKS (continued)

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
relaxed.

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

-11-

DEPARTMENT OF PUBLIC WORKS (continued)

owners of older homes in financial straits. This Committee firmly
believes the responsib: 3 ity for the maintenance and repairs of
side 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 requested more detailed information from
the Department of Public Works as to the charges. Apparently the
request for this detailed information was never received by the
City, and BART not receiving the requested information obviously
did not make payment to the City. The important 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.

REAL ESTATE DEPARTMENT

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

-12-

REAL ESTATE DEPARTMENT (continued)

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
-13-

DISASTER CORPS

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
Departments.

DEPARTMENT OF ELECTRICITY

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

THE RECREATION AND PARK DEPARTMENT

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
loss.

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,

-15-

THE RECREATION AND PARK DEPARTMENT (continued)

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 present ^division of responsibility has kept out
of service important equipment requfrelT"xor_ the high 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
attention.

-16-

THE RECREATION AND PARK DEPARTMENT (continued)

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.

CALIFORNIA PALACE OF THE LEGION OF HONOR
M. H. DE YOUNG MEMORIAL MUSEUM

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 .

-17-

CALIFORNIA ACADEMY OF SCIENCES

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 33 000, 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

-18-

WAR MEMORIAL

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 1100 seat theatre in 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

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

-19-

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 under 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.

BOARD OF PERMIT APPEALS

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
Health.

-20-

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
year.

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

-21-

CORONER

The City of San Francisco can be proud of our Coroner's
Office.

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.

PORNOGRAPHY

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.

-22-

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 .

WE AGAIN IMPLORE THE SAN FRANCISCO BOARD OF SUPERVISORS AND

THE CALIFORNIA STATE LEGISLATURE TO ENACT LAWS FORBIDDING THE PUBLIC
DISPLAY OF WHAT WAS UNTIL RECENTLY CONSIDERED OBSCENITY AND PORNOG-
RAPHY.

POLI CE_DEPA RTMENT

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.

APPOINTMENTS AND ASSIGNMENTS

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

-23-

APPOINTMENTS AND ASSIGNMENTS (continued

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
functions.

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.

SPECIALIZED UNITS

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.

PARKS AND BEACH SQUAD

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.

-2k-

POLICE UNIFORMS

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
crime.

We believe this is an excellent policy and should be
continued.,

"CIVILIAN EXPLOYEES

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 .

POLICE YOUTH PROGRAM

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.

-25-

POLIC 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.

DRUG ABUSE PROGRAM

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.

"OPERATION CHECKPOINT"

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
year.

The Police Committee recommends that this program be
continued.

SUGGESTION PANEL

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

-26-

SUGGESTION PANEL (continued)

the department for using the thoughts of all its members rather than
of a few.

POLICE COMMUNITY RELATIONS

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.

POLICE OFFICERS TRAINING FUND

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

-27-

POLICE OFFICERS TRAINING FUND (continued)

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.

RECOMMENDATIONS

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:

la 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.

SAN FRANCISCO HOUSING AUTHORITY POLICE

Work accomplished by these men range from plumbing, elec-
trical and window repair service to settling family disputes besides
actual police work.

-28-

SAN FRANCISCO HOUSING AUTHORITY^ POLICE (continued)

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:
"SAN FRANCISCO HOUSING AUTHORITY POLICE" instead of "Special
Police".

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

-29-

PORT AUTHORITY

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.

(a
(b

(e
(f

(g

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

-30-

PORT AUTHORITY (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

-31-

DEPARTMENT OF SOCIAL SERVICES

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
vacancies.

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

-32-

DEPARTMENT OF SOCIAL SBEVICES (continued)

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, the 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

-33-

SUPERIOR COURT

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-
partment.

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

-31-

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.

-35-

LAW LIBRARY

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 the problem of space and the
need for a courts building presents itself. The law library should
have sufficient room in any court structure that is built.

ADULT PROBATION

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

-36-

ADULT PROBATION

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
probation.

There has been some public discussion of combining the
Adult Probation Department and the Juvenile Probation Department.
We would strongly recommend against such a practice. It might pos-
sibly look like a saving at first glance, but a study should be
conducted before this is done. This Committee believes that the two
fields of juvenile and adult probation 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

-37-

YOUTH GUIDANCE CENTER

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 day0

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

-38-

YOUTH GUIDANCE CENTER '(continued)

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-
ingly.

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 available.

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 jobe They conceal their frustrations and maintain and
optimistic attitude in the hope that some of their requests might
be granted.

ART COMMISSION

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,

-39-

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-

CIVIL SERVICE COMMISSION

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-

-41-

CIVIL SERVICE COMMISSION (continued)

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
examinations.

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-
ployee.

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

-H2-

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
Departm.it ranks below many other similar communities.

RETIREMENT SYSTEM BOARD

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

-i»3-

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.

RETIREMENT SYSTEM BOARD

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

-il3-

RETIREMENT SYSTEM BOARD (continued)

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 essing Department could
handle the combination effectively. It would be the suggestion of
this Committee that if this arrangement was positively considered,
that the Data Processing applications should be first by individual
departments and then combined.

HEALTH SERVICE SYSTEM

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

HEALTH SERVICE SYSTEM (continued)

important department . We would recommend to the Board 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 means available for officials of this department to be in
contact with others in the field through organization meetings and
conventions.

ECONOMIC OPPORTUNITY COUNCIL

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."

ruling.

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
cooperative.

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

-45-

CONTROLLER DEPARTMENT

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

46

CONTROLLER DEPARTMENT (continued)

was charged against a Sewer Bond account, rather than the account
receivable.

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.
Cooper.

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

-U7~

CONTROLLER DEPARTMENT (continued)

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
job.

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 Grand Jury is of the opinion that such
a report should be returnecTTn at lea's t~9"0~ days and should be so
stipulated in 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 was
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 &nd 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 maintained in a loft with boxes and
boxes of Warrants; these 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

48

CONTROLLER DEPARTMENT (continued)

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
antiquated.

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.

49

CONTROLLER DEPARTMENT (continued)

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
Federal.

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 such 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

50

MUNICIPAL COURT

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
repetitive.

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, drug
addiction. In addition, the Municipal" Court has the supervision of
"the Traffic Fines Bureau and the Traffic 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

-51-

ASSESSOR'S OFFICE

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
Roll.

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
$3,068,289.

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.

-52-

ASSESSORS OFFICE (continued)

5) Exemptions for which S n Francisco will be reimbursed
by the State fall into two categories: homeowners1 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.

DURING THE YEAR OF 1970 (10) PERMANENT AUDITING POSITIONS
WERE FILLED BY CIVIL SERVICE:

MOST ALL OF THE WORK IN THIS DEPARTMENT, THAT SHOULD BE, IS
ON DATA PROCESSING AND HAVING SEEN THE FULL ACCOMPLISHMENT OF THE
END RESU LT IT SHOULD BE A MODEL FOR THE REST "F THE DEPARTMENTS OF
THE CITY.

TREASURER

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

-53-

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
REQUEST THAT AT LEAST FOUR NEW EMPLOYEES BE REQUESTED FOR THE
TREASURER'S OFFICE.

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.

ELECTRONIC DATA PROCESSING DEPARTMENT

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.

-54-

ELECTRONIC DATA PROCESSING DEPARTMENT (continued)

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.

-55-

ELECTRONIC DATA PROCESSING DEPARTMENT (continued)

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

-56-

THE ROLE OF THE DEPARTMENT OF CITY PLANNING

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.

PROGRESS AND MAJOR ACHIEVEMENTS DURING 1970

Comprehensive Planning

In June, the Department published The Improvement Plan for
Residence — A Proposal for Citizen 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 in 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

-57-

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 Existing Form and Image,
Urban Design Principles, Social Reconnaissance, Implementation
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 Common 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-
tation.

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

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PRCELI. . RACED 3Y THE DEPARTMENT

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.

THE PARKING AUTHORITY

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
$86,000.

West Portal District parking lot #2 (Claremont-Ulloa
Streets) providing 24 spaces at a project cost of
$204,000.

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.

-60-

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.

-61-

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

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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
controlmen.

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 PURPOSE IN ESTABLISHING THESE GARAGES WAS TO PROVIDE INEXPEN-
SIVE PARKING FOR SHOPPERS, NOT TO MAKE A PROFIT.

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/, 35c7 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

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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

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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

$1.25

2 hours

2.00

3 hours

2.50

4 hours

3.25

12 hours

4.00

24 hours

4.50

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)

Ellis-O'Farrell

1 hour 45 cents

each additional hour 45 cents

Maximum 24 hours $3-15

HOUSING AUTHORITY

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
stage.

Despite the new construction, all financed by 4o-year

-65-

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
concert.

Housing for the elderly is a special problem. It stems
directly from the ever-increasing number of persons who retire at
age 05 on fixed incomes that are inadequate 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

-66-

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

-67-

HUMAN RIGHTS COMMISSION

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
benefits.

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

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HUMAN RIGHTS COMMISSION (continued)

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 that due to the lack of staff to effectively
implement and enforce the "Nondiscrimination Ordinance, 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

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HUMAN RIGHTS COMMISSION (continued)

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.

MAYOR
BOARD OF SUPERVISORS CHIEF ADMINISTRATIVE OFFICER

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

-70-

MAYOR - BOARD ,^F,.SUPIgVISORS ^ CHTEF^Aiy.IHTSTOATIVE OFFICER
"(continued/*

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

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MAYOR - BOARD OF SUPERVISORS - CHIEF ADMINISTRATIVE OFFICER
(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

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MAYOR - BOARD OF SUPERVISORS - CHIEF ADMINISTRATIVE OFFICER
(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

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MAYOR- BOARD OF SUPERVISORS - CHIEFJEMINISTRATIVE OFFICER
(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

-Ik-

SAN FPANCISCO PUBLIC SCHOOL SYSTEM

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 rs 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

75-

SAN FRANCISCO PUBLIC SCHOOL SYSTEM ( cont inued )

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
involvement.

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
assistance.

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.

-76-

SAN FRANCISCO PUBLIC SCHOOL SYSTEM (continued)

$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-
trators.

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

-77-

SAN FRANCISCO PUBLIC SCHOOL SYSTEM (continued)

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.

-78-

SAN FRANCISCO PUBLIC SCHOOL SYSTEM (continued)

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

-79-

REDEVELOPMENT AGENCY

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
world."

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.

-80-

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
revenue.

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
Street.

(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

-81-

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
Supervisors.

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
Waterfront.

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

-82-

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

-83-

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
apartments.

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

-84-

GRAND JURY REPORT
1970

FIRE DEPARTMENT

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

-85-

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-

PUBLIC DEFENDER

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

-87-

PUBLIC DEFENDER (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.

OFFICE OF THE CITY ATTORNEY

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

-88-

OFFICE OF THE CITY ATTORNEY (cont inued )

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
secretaries.

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.

-89-

DISTRICT ATTORNEY

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

-90-

DISTRICT ATTORNEY (continued)

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
processing.

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

-91-

DEPARTMENT OF THE SHERIFF

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
Supervisors.

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

-92-

DEPARTMENT OF THE SHERIFF (continued)

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 would recommend the establishment of a
Department of Corrections"only if it is "financed by and administered
by all the Bay Area Counties - includ ing mental and physical rehabil-
itative features, probation arrangements, productive v;ork and school-
ing programs. Otherwise 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

-93-

DEPARTMENT OF THE SHERIFF (continued)

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.

-9U-

DEPARTMENT OF THE SHERIFF (continued)

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
confinements.

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

-95-

DEPARTMENT OF THE SHERIFF

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.

-96-

REPORT FORM NUMBER ONE
SAN FRANCISCO COUNTY JAILS

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.)

-97-

REPORT FORM NUMBER ONE

SAN FRANCISCO COUNTY JAILS (continued)

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.
-0-

REPORT FORM NUMBER TWO

SAN FRANCISCO COUNTY JAILS

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

PUBLIC HEALTH DEPARTMENT

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.

PUBLIC HEALTH

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.

MENTAL HEALTH

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

-99-

PUBLIC HEALTH DEPARTMENT (continued)

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.

ALCOHOLISM

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.

EMERGENCY MEDICAL CARE

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~

-100-

PUBLIC HEALTH DEPARTMENT (continued)

supplemental appropriation has been requested for this purpose and it
is recommended that it be provided soon.

SAN FRANCISCO GENERAL HOSPITAL

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.

-101-

PUBLIC HEALTH DEPARTMENT (continued)

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
Francisco,

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

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.

-102-

PUBLIC HEALTH DEPARTMENT (continued)

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:

Beds

Average Daily
Licensed Maximum 1766 Occupancy

Actual 1573 1213

HASSLER HOSPITAL

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

MEDI-CAL PROGRAM

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

-103-

PUBLIC HEALTH DEPARTMENT (continued)

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

-101-

PUBLIC UTILITIES COMMISSION

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.

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.

-105-

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.

-106-

WATER AND POWER

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

-107-

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

-108-

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

MUNICIPAL RAILWAY

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

-109-

MUNICIPAL RAILWAY (continued)

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.

-110-

MUNICIPAL RAILWAY (continued)

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

-111-

MINORITY REPORT
ON

DEPARTMENTS
OP

MAYOR

BOARD OP SUPERVISORS CHIEF ADMINISTRATIVE OFFICER

112

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 primary 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
quickly.

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

113

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-
ing.

The homeowners' tax problem 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
down.

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

114

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 generally
enjoy good relationship^ between _o^J^±eaaers_&i^j^r_vorKers ano/or
their_ representatives^

115

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

116

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