Little Hoover Commission Biennial Report 1999-2000

L H C ITTLE OOVER OMMISSION Biennial Report 1999-2000 “Democracy itself is a process of change, and satisfaction and complacency are enemies of good government.” Governor Edmund G. “Pat” Brown, addressing the inaugural meeting of the Little Hoover Commission. State of California L I T T L E H O O V E R C O M M I S S I O N January 25, 2000 Dear Governor and Members of the Legislature: The Little Hoover Commission represents an investment of state resources, public energy, and personal concern. With state funding, volunteer Commissioners work closely with hundreds of interested Californians to explore ways to make state government operate more efficiently and effectively. Appropriately, every two years the Commission summarizes and assesses its activities. Over the last two years, the Commission has examined two programs serving vulnerable Californians: abused and neglected children and adults suffering from mental illness. The Commission reviewed two issues that can influence the vitality of all government operations: personnel policies and the capacity to employ advanced technologies. Keeping with its tradition, the Commission examined three property management programs: the Capitol Area Development Authority, the State’s school construction program, and the largest such local operation, the facility program of the Los Angeles Unified School District. Finally, the Commission examined two kinds of local entities charged with fulfilling state goals – the 107 community college districts and the more than 2,200 independent special districts. Three additional projects will be completed in the spring of 2001: a review of children’s mental health programs, the State’s efforts to prevent youth crime and violence, and the State’s strategy to develop a high quality teacher workforce. The Commission also has scheduled reviews of state policies influencing immigrant integration and affordable housing. In each report the Commission recommended reforms that it firmly believes would improve the effectiveness of public programs. While many reforms require additional expenditures, virtually all of the Commission’s recommendations, if implemented correctly, promise to yield savings over time by reducing the need for additional costly services. It is difficult to quantify the fiscal and other benefits of the Commission’s work. The reports influence management decisions, inspire legislation, and change the public debate. It also is hard to isolate the Commission’s influence on policy from that of other advocates. In this summary, the Commission offers examples of its most obvious contributions. In addition, the Commission acknowledges that its public trust is to be an independent voice informed directly by other Californians. As Commissioners, we are proud to serve this important role and expect of the Commission the same improvements we encourage in other public agencies. Sincerely, Richard R. Terzian Chairman Milton Marks Commission on California State Government Organization and Economy ? http://www.lhc.ca.gov/lhc.html 925 L Street, Suite 805 ? Sacramento, CA 95814 ? 916-445-2125 ? fax 916-322-7709 ? e-mail little.hoover@lhc.ca.gov BIENNIAL REPORT 1999-2000 2 The Commission in Brief What is the Commission? The Little Hoover Commission is an independent and bipartisan state agency charged with making recommendations to the Governor and the Legislature on ways to make state programs more efficient and effective. For more on the Commission see page 5. How does the Commission work? The Commission convenes public hearings, empanels expert advisory committees, conducts research and makes site visits to understand public issues and potential solutions. It deliberates on alternatives and provides detailed evaluations and recommendations to policy-makers through a bipartisan process. For more on the Commission’s process see page 11. What does the Commission produce? Since 1962, the Commission has issued 157 reports on a wide range of policy issues. Over the last two years the Commission has issued eight reports on a variety of issues, from evaluations of foster care and the adult mental health system to reviews of state policies for personnel and the use of technology. For a complete description see page 13. How can I receive a copy of a Commission report? To receive copies, visit the Commission’s office: 925 L St., Suite 805, in Sacramento; or call the Commission office at (916) 445-2125; or, for reports issued in the last 10 years, visit the Commission’s Web site: www.lhc.ca.gov. For a complete listing of reports see page 33. 3 BIENNIAL REPORT 1999-2000 4 Who We Are The Commission was created in 1962 to provide an What’s in a Name? independent review of state programs and policies. The Commission is comprised of nine public members and The Commission is formally the Milton Marks “Little Hoover” four sitting legislators. The Governor appoints five of the Commission on California State public members. The Speaker of the Assembly appoints Government Organization and two public members and two Members of the Assembly. Economy. As a member of the The Senate Rules Committee appoints two public Assembly, state Senator Marks authored the legislation to create members and two Senators. the Commission. The Commission was modeled after a The Commission is bipartisan by statute. No more than panel created by Congress to five of the public members can be of the same political review the organization of federal party. The two Members of the Assembly and the two agencies that was chaired by, and informally named after, Senators must be from different parties. former President Herbert Hoover. Almost from its inception, the Public members serve staggered, four-year terms. California counterpart was known Legislative members serve at the pleasure of the as the “Little Hoover appointing authority. Commission.” RICHARD R. TERZIAN, CHAIRMAN (R-Los Angeles) Originally appointed to the Little Hoover Commission by Governor George Deukmejian in May 1986. Reappointed by Governor Pete Wilson in March 1994 and in March 1998. Partner in the law firm of Bannan, Green, Frank & Terzian. Chairman of the Commission since March 1994. Served as vice chairman from 1992 to 1994. MICHAEL E. ALPERT, VICE CHAIRMAN (D-Coronado) Originally appointed to the Little Hoover Commission by Assembly Speaker Willie L. Brown, Jr. in May 1994. Reappointed by the Senate Rules Committee in August 1997. Retired partner in the law firm of Gibson, Dunn & Crutcher. Former chief deputy commissioner of the California Department of Corporations. Former member of San Diego County Juvenile Justice Commission, served as chair for one year. 5 BIENNIAL REPORT 1999-2000 CARL COVITZ (R-Los Angeles) Appointed to the Little Hoover Commission by Governor Pete Wilson in October 1993. Reappointed in March 1996. Owner and president of Landmark Capital, Inc. Served as secretary of the state Business, Transportation and Housing Agency from 1991 to 1993 and undersecretary for the U.S. Department of Housing and Urban Development from 1987 to 1989. DANIEL W. HANCOCK (D-Milpitas) Appointed to the Little Hoover Commission by Assembly Speaker Cruz Bustamante in July 1997. Reappointed by Assembly Speaker Robert M. Hertzberg in January 2001. President of Shapell Industries of Northern California since 1985. ASSEMBLYMEMBER SALLY HAVICE (D-Cerritos) Appointed to the Little Hoover Commission by Assembly Speaker Antonio Villaraigosa in April 1998. Elected to the 56th State Assembly District in 1996. Chair of the Assembly Public Employees Retirement and Social Security Committee. SENATOR CHARLES S. POOCHIGIAN (R-Fresno) Appointed to the Little Hoover Commission by Assembly Speaker Curt Pringle in March 1996. Reappointed by Speaker Antonio Villaraigosa in November 1997, and reappointed by the Senate Rules Committee in February 1999. Elected to the 14th State Senate District in 1998. H. ERIC SCHOCKMAN (D-Sherman Oaks) Appointed to the Little Hoover Commission by Assembly Speaker Antonio Villaraigosa in January 2000. Associate dean and associate professor of political science at the University of Southern California. Former administrator and consultant to the California State Assembly and to the City Council of Los Angeles. 6 SENATOR JOHN VASCONCELLOS (D-Santa Clara) Appointed to the Little Hoover Commission by the Senate Rules Committee in February 1997. Elected to the 13th State Senate District in 1996 after serving in the Assembly for 30 years. Chair of the Senate Education Committee. SEAN WALSH (R-Oakland) Appointed to the Little Hoover Commission by Governor Pete Wilson in January 1999. Former deputy chief of staff, communications & press, for Governor Wilson. STANLEY R. ZAX (I-Beverly Hills) Appointed to the Little Hoover Commission by the Senate Rules Committee in March 1994. Reappointed in January 1998. Chairman and president of Zenith Insurance Company. STANLEY M. ZIMMERMAN (D-Beverly Hills) Appointed to the Little Hoover Commission by Governor Gray Davis in January 2000. President of Home Budget Loans in Los Angeles, and involved with Mortgage Mart, Inc., a property management firm. THE COMMISSION HAS TWO VACANCIES Former Commissioners Who Served During the 1999-2000 Session Assemblymember Bill Campbell (R-Villa Park) Appointed to the Little Hoover Commission by Assembly Speaker Antonio Villaraigosa in January 1999. Elected to the 71st State Assembly District in 1996. Gary H. Hunt (R-Corona del Mar) Appointed to the Little Hoover Commission by Governor Pete Wilson in March 1998. Executive vice president of corporate affairs and administration for The Irvine Company. Gwen Moore (D-Los Angeles) First appointed as a legislative member to the Little Hoover Commission by Assembly Speaker Willie L. Brown, Jr. in October 1984. Appointed as a public member by Brown in May 1995. Founder and chief executive officer of GeM Communications Group. Member of the State Assembly from 1978 to 1994. Angie Papadakis (R-Rancho Palos Verdes) Originally appointed to the Little Hoover Commission by Governor George Deukmejian in August 1990. Reappointed by Governor Pete Wilson in March 1996. Former president of Papadakis Advertising. Serves on the California-Nevada Super Speed Train Commission. 7 BIENNIAL REPORT 1999-2000 8 Commission Resources The Staff A staff of seven civil service employees arrange meetings, conduct research, draft reports, advocate for recommendations, and perform related administrative functions on behalf of the Commission. James P. Mayer Executive Director Nancy Lyons Deputy Executive Director Peter McNamee The Budget Project Manager Toby Ewing The Commission is supported from the state General Fund. Its Project Manager budget for the 2000-01 fiscal year is $715,000. Nearly 70 percent of the budget pays for personnel costs. The balance Sherry Robyn pays for operational costs such as rent, equipment, printing, Legislative Coordinator postage and travel expenses of staff and Commissioners. Cindy Wren Research Analyst Marilyn Wolk Travel Expenses Executive Secretary 3% Printing 4% General Expenses Personnel 6% 70% Bureau of State Audits Administrative & Budget Services In 1993, when Proposition 140 required 8% the Legislature to reduce its budget, the state Auditor General was eliminated. That same year the Bureau of State Audits was created - headed Facilities by the State Auditor and under the 9% direction of the Little Hoover Commission. The Commission provides minimal oversight of the bureau. The organizational alignment reflects the independence of the Bureau of State Audits and the Little Hoover Commission, which is necessary for both entities to effectively pursue their statutory missions. 9 BIENNIAL REPORT 1999-2000 10 A Fair and Open Process Public hearings: The Commission conducts hearings to gather testimony and discuss issues with experts and interested parties. All witnesses are encouraged to submit written testimony, which is made available to the public and is posted on the Web site. How The Commission Advisory committees: For most Selects Topics projects the Commission establishes an advisory committee of experts, advocates One aspect of the and other stakeholders. Through a series Commission’s independence is of meetings, the committee helps the its ability to select its own topics Commission to understand policy issues for review. The Commission from various perspectives and allows encourages policy-makers and interested parties to communicate their the public to suggest topics for concerns to the Commission. The Commission study. Over the Commission puts particular emphasis on course of a year, the seeking out those most affected by Commission selects three to policies. five issues to explore. Site visits: The Commission frequently visits facilities to talk directly with people involved in state programs. Commissioners have visited prisons, hospitals, group homes, schools and colleges. It has conducted community forums to make it easy for Californians to be heard, and seeks out community leaders to understand the complexity of issues facing neighborhoods. Research: While the Commission’s limited budget precludes it from conducting much original research, it synthesizes the research and evaluations conducted throughout the nation that otherwise might not be used to shape public policy. Commission on-line: The Commission’s Web site provides the public with easy access to full copies of recent commission reports, descriptions of on-going studies, written testimony from witnesses and summaries of legislation supported by the Commission. http://www.lhc.ca.gov 11 BIENNIAL REPORT 1999-2000 12 Summary of Reports Working to help people who need help NOW IN OUR HANDS: Caring for California’s Abused and Neglected Children...........................................................................................................Page 15 BEING THERE: Making a Commitment to Mental Health.......................................Page 16 Working to make government operate efficiently OF THE PEOPLE, BY THE PEOPLE: Principles for Cooperative Civil Service Reform.........................................................................................................Page 17 BETTER.GOV: Engineering Technology-Enhanced Government...........................Page 18 Working to improve how property is managed CADA: An Opportunity to Advance and Protect the State’s Investment............Page 19 TO BUILD A BETTER SCHOOL.........................................................................................Page 20 Working to advance state goals at the local level OPEN DOORS AND OPEN MINDS: Improving Access and Quality in California’s Community Colleges..............................................................................Page 21 SPECIAL DISTRICTS: Relics of the Past or Resources for the Future?....................Page 22 13 BIENNIAL REPORT 1999-2000 14 Now in Our Hands: Caring for California’s Abused and Neglected Children August 1999 I n the shadow of California’s prosperity, the plague of child abuse and neglect grows more severe. More than 100,000 children in California have been so abused that they have been taken from their parents. A growing percentage of children are flooding a foster care system that has proven incapable of healing the complex problems of traumatized children. Four Goals Should Guide Reforms 1. When possible, children need to be spared the trauma of abuse through targeted prevention efforts. 2. When prevention fails, the State must intervene quickly to protect the child, treat the trauma and provide quality care. 3. When it is in the best interests of the child, intensive efforts should be made to safely reunify the family. 4. Otherwise, intensive efforts should be made to permanently place the child in a family-based setting. When children leave foster care, assistance should continue to ensure they are firmly on the path to adulthood. Importantly, lawmakers and communities have been trying to improve the system, but have been frustrated as well-intended and well-crafted reforms have not improved the quality of care. The fundamental problem is the State’s lack of a coherent management system. As a result, numerous public programs operate in near isolation, often without any assessment of whether children are receiving the care and services they need. “What ails California's foster care system? "Now in Our Hands" -- a Little Hoover Commission yearlong probe of the system designed to protect abused and neglected children – blames a bureaucracy so complex that even the most well-meaning, best trained and dedicated social workers can't penetrate.” -- Sacramento Bee Editorial The Commission recommended a management system guided by clear goals with mechanisms for removing barriers to progress and assessing the level of care. The Commission recommended that an assistant secretary of health and human services be created to coordinate state efforts and build strong relationships with counties and service providers. 15 BIENNIAL REPORT 1999-2000 Being There: Making a Commitment to Mental Health November 2000 A generation ago, California decided that people with mental illness should live in their communities rather than locked in institutions. They had a right to a more everyday life, and it was determined they would benefit from community-based treatment. It is painfully clear that we have failed to follow through with all that was required by this noble decision. The Commission found that unlike children in foster care, the State has not made the commitment to care for adults with mental illness. The Commission’s recommendations would build a system that provides care to all who need services. The Commission believes the first step is to increase public understanding of mental illness and the costs of a failed system in order to build support for sustainable reforms. The Commission also urged that state leadership be vested with the Department of Mental Health to strengthen its abilities to build a continuously improving system. The Commission recommended ways to develop comprehensive and tailored services at the community level and ways to fund those programs to encourage efficiency and effectiveness of services. “The Little Hoover Commission’s work must not be wasted. The commission has provided the state with a goal – high quality mental health services for all who need them – and a well-reasoned path to reform.” -- San Jose Mercury News Editorial Mental illness also should be decriminalized – by ensuring that no one ends up behind bars solely because their mental health needs were not met. Because thousands of people in jails and prisons suffer from mental illness, the links between incarceration and community-based treatment programs need to be strengthened. Finally, the Commission urged the counties and the State to develop the accountability mechanisms that are needed to ensure the public and policy-makers that progress is being made, that money is well spent and to identify future ways to improve the system. 16 Of the People, By the People: Principles for Cooperative Civil Service Reform January 1999 A s California enters a new century, the State faces enormous public challenges: Educating our children to flourish in a future economy. Protecting our communities from the timeless enemies of violence and disease. Watching out for those who cannot watch out for themselves. Nearly all of these essential assignments are trusted to public employees. The Commission believes that the quality of the public workforce – from managers to rank-and-file – plays a major role in determining the effectiveness of public programs. But the State’s personnel system is highly dysfunctional. Complex and restrictive civil service rules, confounded by collective bargaining units frustrate prospective and veteran civil servants, line staff and managers. Of the People, By the People…was the Commission’s second examination of the state’s personnel system in recent years. Responding to comments to its earlier report, the Commission sought to advise policy-makers how personnel reforms had been accomplished in other public agencies. “As a new report from the Little Hoover Commission points out, California will enter the new century with a civil service system, that, especially with unionization, ill-serves the public interest.” -- Dan Walters, Sacramento Bee The Commission found numerous examples throughout the nation – at the federal, state and local level – where labor and management had worked together to improve the quality of public services. Through this process, public employees almost invariably identified ways to streamline and make more flexible the personnel rules and practices that otherwise limit the ability of public agencies to get the right people in the right place with the right skills to get the job done. This cooperation was occasionally spawned by a financial or some other crisis, but efforts were almost always guided by a shared desire to efficiently and effectively provide public services. 17 BIENNIAL REPORT 1999-2000 Better.Gov: Engineering Technology-Enhanced Government November 2000 T he State of California – the birthplace of the technological revolution – is nearly last among the states in harnessing technology to better serve the public. While Californians pioneered the technologies that have captured efficiencies and created new services, Californians are not benefiting from the more efficient and responsive state government that those technologies could provide. In a number of previous studies – examining child welfare, education, public safety and other public programs – the Commission found that the management and performance of state efforts were hindered by a lack of data and antiquated technologies. In examining the State’s policies for developing technologies, the Commission found that many previous reforms had not been fully implemented. “Gordon Moore’s Law states that computer chips are halving in price or doubling in power every 18 months. Still it takes the State more than two years to conceive, approve, fund and develop a major technology application.” -- The Little Hoover Commission The Commission also reviewed the policies of public and private sector organizations that successfully use technology. The Commission found those organizations are committed to changing how they do business to meet the needs of customers, and employ technology when it can help achieve those goals. Four Steps to Technology-enhanced Government n The Commission recommended ways to define the State’s goals and structure state leadership and oversight to lead an enterprise-wide effort to better use technology. n Advanced technologies provide an opportunity to rethink how the State organizes its efforts and how departments work together to serve the public. This requires an e-government director and a coordinating council. n Public and private sector organizations that successfully use technology are committed to understanding the needs of customers, tailoring operations to meet those needs, and applying technologies to improve services. n The State has struggled, so far unsuccessfully, to develop the enterprise-wide ability to develop technology applications. 18 CADA: An Opportunity to Advance and Protect the State’s Investment January 1999 T he Commission has a longstanding interest in how the State manages its real property. A significant part of the State’s real estate portfolio around the Capitol is managed by a joint powers authority. The Capitol Area Development Authority was created to temporarily manage state land purchased for future public uses, and then was later charged with developing housing in the neighborhood around the Capitol. The Commission reviewed CADA’s operations and its future plans. While CADA has been successful, the Commission identified ways that it believed the authority could improve its operations, and the return on the State’s investment. As CADA completes its housing goals and as the State determines its facility needs, the Commission urged that serious consideration be given to disbanding the authority. To bring greater focus on the financial return of its development projects, the Commission urged CADA to consider alternative approaches and to assess those options for the value they would bring to the State’s investment. “Nothing came to our attention in this review of the CADA that compels us to believe that the CADA has a certain role beyond a ten-year horizon.” -- Newpoint Group Editorial And to improve its management of existing housing projects, the Commission recommended that CADA develop a parcel-by-parcel plan for managing state properties. The Secretary of State and Consumer Services embraced the Commission’s recommendation for a detailed review of CADA by the Newpoint Group. The consultant affirmed many of the Commission’s recommendations for increasing CADA’s focus on the return for the State’s investment. The consultant went beyond the Commission’s work to identify $1.8 million in annual state subsidies to CADA, including more than $500 million in the form of below-market rents. The consultant, however, concluded that CADA operates on a fragile network of subsidies, and so concluded that none of CADA’s $4 million in reserves should revert to the State. 19 BIENNIAL REPORT 1999-2000 To Build a Better School February 2000 W hen the public discussion turns to “building for the future,” no issue is as controversial and potentially important as the construction of K-12 school facilities. As the State has assumed financial responsibility for school facilities, it has assumed more discretion over how funds are spent, from the design of school buildings to the method of construction and maintenance practices. When the Commission began its review three factors were focusing public attention on facilities: aging and poorly maintained facilities, a growing student population, and the additional rooms needed to implement class-size reduction. In approving and financing school facilities, a number of state agencies are involved. As the concern about toxic materials and local incompetence increased, greater emphasis was put on oversight of local school authorities. The State’s oversight procedures, while significantly improved, continue to be slow, fractured and difficult to navigate for local school districts. While the State’s financial commitment has Recommendations for increased, the State has not accurately measured Improving the School Facility or forecasted the need for facilities and created Program in Los Angeles Unified clear priorities. As a result of a chronically School District November 1999 under-funded state program, school districts The Commission examined the problems compete for state resources, an unnecessary of urban school districts, and LAUSD in dispute that has now spilled into the courts. particular. The Commission identified three specific problems at LAUSD: Despite the growing state role, projects are q Facility personnel were not trained or managed by local school districts – whose skilled in facility construction and primary function is education, not construction. management. q The facility program was not Many districts have developed competent facility organized to encourage success or staffs, but many districts have not. And the State provide for accountability. has not created adequate means for building or q The LA board of education did not providing competence where it is needed. have the background and had not established the policies necessary to oversee a large construction program. 20 Open Doors and Open Minds: Improving Access and Quality in California’s Community Colleges March 2000 T he new economy and California’s changing demographics present an enormous challenge for the State’s system of higher education. More Californians will have to be trained and retrained for jobs that must be filled now and jobs that have not yet been created. The Commission found that the State’s community colleges hold an enormous potential – if reinvigorated – to meet the dynamic needs of individual Californians, the diverse communities where they live and the regional economies in which they work. The potential was revealed by those colleges assertively working with other educational systems, community officials, business leaders and their students to meet community needs. They provide classes that add value to their communities, that are taught at times and in ways that encourage success among students. The greatest contribution the colleges can make is to encourage the 2.4 million Californians who pass through their doors each year to be lifelong learners. The colleges need to seize every opportunity to strengthen their ability to encourage learning among this diverse populace. The Board of Governors and the individual colleges need to aggressively define whom they should serve, the services those Californians need, and how those services can be offered to increase the success of students. “The Little Hoover Commission shows that state leaders are not doing enough to push local colleges to teach the courses that are in high demand for jobs in the new economy.” -- Los Angeles Times Editorial State funding needs to be aligned to encourage colleges to increase the value they bring to their communities and the achievement of individual students. And the governance of the colleges should be strengthened – to increase their accountability to their communities for community goals and to the State for state goals. 21 BIENNIAL REPORT 1999-2000 Special Districts: Relics of the Past or Resources for the Future? May 2000 T he State relies on more than 2,200 independent special districts to provide valuable services to California communities. These districts, which operate as autonomous agencies with their own elected boards, provide many of the essential services that support the economy and provide for safe and comfortable communities. In examining the districts, the Commission found that there was little direct oversight of the districts by the State, and that local oversight through the electoral process and public meetings was muted by the relative obscurity of many districts. The Commission also found that there is little encouragement for districts to evolve, in terms of their size and structure, as their communities evolve. And finally, it found that the resources of the districts — from fees for services and property taxes — were often not well understood by multipurpose local agencies or the State. The Commission believes that the best oversight of special districts would come from the communities they serve, and recommended a series of steps that the districts and the State could take to increase the opportunities and strengthen the ability of the public and local officials to understand the operations of these districts. “This report should be required reading for lawmakers and policy wonks up and down the state.” -- Long Beach Press Telegram Editorial Reforms would improve public involvement and scrutiny to ensure that government — and special districts in particular — provide greater value with fewer resources. Special districts need to be more visible to the public they serve and to community and business leaders who can influence decisions. Local Agency Formation Commissions can be fortified to more effectively facilitate prudent changes that would result in the efficient evolution of independent special districts. Public resources — including property taxes and reserves — can be more vigorously reviewed and incorporated into discussions about how to improve infrastructure or reduce the cost of living and doing business in California. 22 Commission Accomplishments Measuring Results The Commission’s explicit mission is to improve the economy and efficiency of state programs. Several measures, taken together, show that the Commission is contributing to the policy- making process and influencing the administration of public programs. Influenced Legislation The Commission supports bills that would implement its recommendations. The Commission supported 50 bills during the 1999-2000 legislative session. Fifteen of those bills were signed into law. Of the remaining bills, 12 were vetoed, 20 failed passage and support was withdrawn from three bills that were amended significantly. Some bills are based entirely on a Commission recommendation, and for other bills the Commission’s analysis shapes pending reforms. Importantly, for some bills, the Commission is one of many supporters. Sometimes bills receive overwhelming support from the Legislature, and are vetoed. But the support indicates that reforms are still possible. That is the case with SB 297 (Polanco & Vasconcellos), which called for a corrections master plan, and for SB 1845 (Polanco), which received bipartisan support for a correctional education board within the Department of Corrections to manage the educational programs in prisons. Both bills were vetoed. Important New Laws from 1999-2000 Session q Nursing home oversight: AB 1731 (Shelly) sought to improve conditions in nursing homes, a longstanding concern of the Commission, which saw many of its recommendations included in this significant reform bill. q Child care funding: AB 1946 (Escutia) increased funds for state-supported child care programs, which the Commission recommended in two previous reports, including a 1997 report, as a way of ensuring child safety and preparing children for school. q Child support enforcement: AB 196 (Kuehl) dramatically reshaped how child support laws are enforced in California. The Commission did not support this bill because the reforms went beyond the Commission’s recommendations. But the Commission’s analysis contributed significantly to the legislative deliberation. q Kincare Support: SB 1946 (McPherson) increased the supports to relatives caring for abused and neglected children. 23 BIENNIAL REPORT 1999-2000 A Growing Awareness Guided Public Discussion Some Commission reports fuel public While the Commission’s report discussions that inspire policy on adult mental health services was just released in November changes on many levels – reforms 2000, it is already elevating the that can be more fundamental than discussion over mental health those carved in legislation. The services. The Commission Commission’s concerns on abused sought to define a public goal for the State to develop policies and neglected children, for example, were guided by – and that ensure people with mental have helped to encourage – collaborative and holistic health needs receive quality reforms at the state and local level. The report was the care. The chorus for reform – cornerstone for the 2000 California Policymakers Institute among media and community at UC Davis, was used by officials in Del Norte County to leaders, lawmakers and advocates – is growing. begin a community-wide discussion on the child welfare system, and was required reading for the state Department of Social Services’ Stakeholders Group. Inspired Budget Language The State’s primary policy document Foster Care Funding is the state budget, and many The 2000-01 budget for foster Commission recommendations care programs was increased influence priorities – either by the by $139.7 million. $72.3 million executive branch or the Legislature in state funding will allow the State to draw down $67.4 during the budget process. The million in federal funds. The Commission’s 1998 recommendations concerning prison funding will support additional operations built support for an expansion of drug social workers, establish a treatment, educational and vocational services that have kinship and foster care been proven to reduce criminal activity by state inmates emergency fund, provide stipends to assist emancipated when they are paroled. The report on abused and neglected foster youth, reduce the children guided budget augmentations for the state adoption backlog, and address program serving children in foster care. other critical needs. Encouraged Administrative Action Agencies can implement recommendations using their existing authority and often do. For example, after three bills calling for a child care master plan failed, the Child Development Policy Advisory Committee is working to build the framework for a plan to set priorities and guide policies and resources. At the Commission’s urging, the Secretary of the State and Consumer Services Agency contracted with a management consultant to review the Capitol Area Development Authority, the joint powers agency that manages some of the State’s property in downtown Sacramento. The consultant affirmed many of the Commission’s conclusions, including that as the authority meets its housing goals in the next few years its purpose will have been fulfilled and any remaining properties could be sold and public functions assumed by another government agency. 24 Supporting Legislation 1999-2000 The Commission’s legislative package for the 1999-2000 session included 50 measures in the areas of Children’s Services, Education, Long-Term Care, Prisons and Sentencing, Youth, and School Facilities. Of those 50 measures, 15 were signed into law, 12 were vetoed, 20 failed passage, and support was withdrawn on three. Children’s Services Bill Summary Status (Author) AB 105 Requires the development of a state master plan for child Died in Senate (Alquist) care and development services. Health & Human Services AB 153 Authorizes the Superintendent of Public Instruction to Died in (Cunneen) reimburse certain providers of child care and extended day Assembly care services at a rate higher than the standard reimbursement rate. AB 212 Establishes the California CARES (Compensation and Signed into law (Aroner) Retention to Encourage Stability) program to support local Chapter 547 programs in their efforts to build a skilled and stable child Statutes of 2000 care workforce. AB 434 Requires Department of Social Services to annually report Died in Senate (Aroner) to the Legislature on foster youth, former foster youth and Appropriations others who receive Cal Grant awards to attend college. AB 443 Establishes the Parent Services Project: Family Support in Died in Senate (Mazzoni) Child Care and Development Programs to provide services Appropriations for early detection of and referral for child abuse. AB 607 Establishes a statewide health care system for children in Vetoed (Aroner) foster care and requires coordination of health services for 10/10/99 foster children. 25 BIENNIAL REPORT 1999-2000 AB 658 Extends foster care eligibility to age 20 to youth that are Signed into law (Washington) making progress towards completion of an educational Chapter 645 program. Statutes of 1999 AB 1225 Requires greater effort to inform adoptive families of the Signed into law (Ashburn) availability of adoption assistance. Chapter 905 Statutes of 1999 AB 1923 Increases the percentage of costs for which a tax credit can Died in Assembly (Cardenas) be claimed for child care facilities serving low-income Appropriations children. Provides a similar credit in connection with loans financing the purchase, construction, expansion, or rehabilitation of qualified child care and development facilities. AB 2210 Permits counties to disclose all available information about Vetoed (Ashburn) a foster child to prospective foster care providers, who are 9/28/00 also prospective adoptive parents, prior to the child’s placement. AB 2278 Requires priority be given to foster children and their Died in Assembly (Aroner) families for substance abuse treatment. (Amendments deleted this provision and instead restored funding to Community Treatment Facilities to serve severely emotionally disturbed foster children.) AB 2307 Authorizes county child welfare agencies to create training Signed into law (Davis) programs for relative foster caregivers. Chapter 745 Statutes of 2000 SB 147 Extends Medi-Cal eligibility to transitioning foster youth Vetoed (Alpert) until their 21st birthday. (Amendments deleted this 9/28/00 provision and instead required no income or asset test be applied for establishing eligibility for Medi-Cal to independent foster care adolescents.) SB 305 Requires Department of Health Services to convene a Vetoed (Vasconcellos) summit to develop a master plan for including parenting 10/9/99 education in the curriculum of certain schools and youth correctional centers. (See SB 1348) 26 SB 487 Provides funding for the expansion of children’s mental Dropped by (Wright) health services. Author SB 543 Requires the case plan for each foster child to include an Signed into law (Bowen) updated health, mental health and education summary Chapter 552 each time that child is placed in a new foster home. Statutes of 1999 SB 549 Increases the percentage of costs for which a tax credit can Died in Senate (Ortiz & Rainey) be claimed for child care facilities serving low-income Appropriations children. Provides a similar credit in connection with loans financing the purchase, construction, expansion, or rehabilitation of qualified child care and development facilities. SB 643 Provides matching funds for counties that use Prop. 10 Died in Senate (Alpert) funds to support cost-effective early childhood programs. Appropriations SB 887 Creates a council to oversee foster care programs. Vetoed (Ortiz) 10/10/99 SB 903 Provides services to relative caregivers through expansion Vetoed (McPherson) of the Kinship Support Services Program beyond the 10/10/99 current eight pilot counties. SB 924 Authorizes a pilot program to implement family Died in Senate (Vasconcellos) conferencing plans for child abuse intervention. Appropriations SB 925 Requires the development of a state master plan for child Died in (Vasconcellos) care and development services. Senate SB 1238 Makes more relative-placed children eligible for higher Died in Senate (Hughes) foster care rates by exempting children placed with Appropriations grandparents from needing to qualify for federal AFDC-FC. SB 1270 Extends Medi-Cal coverage for interstate adoptions when Signed into law (Escutia) the adoptive parents move to other states or are residents Chapter 887 of another state. Statutes of 1999 27 BIENNIAL REPORT 1999-2000 SB 1348 Requires Superintendent of Public Instruction to submit a Vetoed (Vasconcellos) proposal to convene a summit regarding the development of 9/28/00 a master plan for parenting education. SB 1579 Establishes a pilot program for foster care children to help Died in Senate (Alpert) maximize their chances of graduating from high school and Appropriations entering college. SB 1703 Increased state funding of child care programs with a Signed into law (Escutia) one-time appropriation of $42,000,000 to the Department Chapter 704 of Education. Statutes of 2000 SB 1946 Expands the availability of support programs for kinship Signed into law (McPherson) care foster families. Chapter 866 Statutes of 2000 SB 1980 Creates a Foster Care Policy Council to review policies and Died in Assembly (Ortiz) assess methods for improving the quality of foster care Appropriations services. SB 2091 Establishes pilot programs in certain counties to aid foster Vetoed (Ortiz) youth transitioning into adulthood. 9/28/00 Education Bill Summary Status (Author) AB 46 Repeals the cap on the number of charter schools Support (Olberg) operating in the state. (Subsequent amendments changed withdrawn purpose of bill.) SB 267 Makes the Charter School Revolving Loan Fund more Signed into law (Lewis) accessible, and improves its ability to assist new charter Chapter 736 schools. Statutes of 1999 28 Long-Term Care Bill Summary Status (Author) AB 16 Provides funding to encourage counties to form public Died in Senate (Honda) authorities to improve delivery of services under the Appropriations In-Home Supportive Services program. AB 452 Implements Commission recommendations on long-term Signed into law (Mazzoni) care generated by AB 1215 (Chapter 322, Statutes of 1997) Chapter 895 to integrate and/or consolidate the licensing and Statutes of 1999 certification of state-administered long-term care programs. AB 499 Creates a demonstration project to test the efficacy of Signed into law (Aroner) providing an assisted living benefit to low-income Chapter 557 beneficiaries under the Medi-Cal program. Statutes of 2000 AB 1160 Declares the intent of the Legislature to establish an Vetoed (Shelley) effective enforcement system and a provisional licensing 10/10/99 system for long-term care facilities. Sets specific standards and penalties. AB 1731 Declares the intent of the Legislature that all senior Signed into law (Shelley) citizens live with dignity and autonomy, includes Chapter 451 improvements to facilities and an increase in wages for Statutes of 2000 nursing home workers. SB 97 Prohibits a health facility from discriminating or retaliating Signed into law (Burton) against a patient or employee because the patient or Chapter 155 employee presents a grievance or complaint, or Statutes of 1999 participates in an investigation or proceeding by a governmental entity, relating to the care, services, or conditions at the facility. SB 288 Requires each county to appoint an advisory committee Signed into law (Peace) and revise the county plan for the provision of In-Home Chapter 445 Supportive Services benefits. Statutes of 2000 29 BIENNIAL REPORT 1999-2000 SB 353 Requires Dept. of Health Services to submit waiver request Died in (Johannessen) to federal government to obtain coverage under Medi-Cal of Assembly services provided in residential care facilities. Appropriations (Amendments deleted this provision and instead require DHS to test efficacy of providing an assisted living benefit to Medi-Cal recipients.) SB 1862 Declares the intent of the Legislature to establish an Died in (Vasconcellos) effective enforcement system and a provisional licensing Conference system for long-term care facilities. Sets specific Committee standards and penalties. (Some language from this measure was incorporated into AB 1731) Prisons and Sentencing Bill Summary Status (Author) AB 34 Provides grants to encourage counties to expand services Signed into law (Steinberg) to the mentally ill, including those who would otherwise be Chapter 617 placed in jail or prisons. Statutes of 1999 AB 1255 Provides grants to encourage counties to establish Died in (Wright) intensive supervision programs for convicted domestic Assembly violence offenders as an alternative to imprisonment in state prison. (Amendments deleted this provision and instead make changes to the CalWORKS program.) SB 126 Adds additional language pertaining to vocational and drug Support (Polanco) treatment and reducing the rate of recidivism to the Withdrawn existing purpose of incarceration provisions of law. Makes specified changes to the Prison Industry Authority guidelines relative to their annual budget. (Subsequent amendments changed purpose of bill.) 30 SB 175 Makes changes to encourage the use of community-based Support (Rainey) punishments; declares the intent of the Legislature to Withdrawn appropriate money in the annual Budget Act for associated contract costs. (Subsequent amendments changed purpose of bill.) SB 297 Declares the intent of the Legislature to develop a master Vetoed (Polanco & plan for prison operations. 10/10/99 Vasconcellos) SB 1845 Establishes the Correctional Education Board within the Vetoed (Polanco) California Department of Corrections (CDC), and requires 9/24/00 every inmate be provided educational benefits. Youth Bill Summary Status (Author) AB 235 Creates an authority within the office of the Attorney Died in (Kuehl) General; gives this authority duties and responsibilities Assembly related to youth violence prevention. AB 788 Revises the purpose of juvenile court law to include Vetoed (Maldonado) dispositions intended to accomplish public safety 9/24/00 objectives and establishes set principles based on the “Balanced Approach to Restorative Justice” model. School Facilities Bill Summary Status (Author) AB 2411 Requires the establishment of a School Construction Died in Senate (Firebaugh) Authority in school districts with a pupil population of more than 500,000. 31 BIENNIAL REPORT 1999-2000 32 Chronology of Reports *Reports available on the Commission’s Web site 2000 157. Being There: Making a Commitment to Mental Health* 156. Better.Gov: Engineering Technology-Enhanced Government* 155. Special Districts: Relics of the Past or Resources for the Future?* 154. Open Doors and Open Minds: Improving Access and Quality in California's Community Colleges* 153. To Build A Better School (includes #153a)* 1999 153a. Recommendations for Improving the School Facility Program in Los Angeles Unified School District* 152. Now in Our Hands: Caring For California's Abused and Neglected Children* 151. Little Hoover Commission 1997-1998 Biennial Report* 150. Of the People, By the People: Principles for Cooperative Civil Service Reform* 149. CADA: An Opportunity to Advance and Protect the State's Investment* 1998 148. Caring for Our Children: Our Most Precious Investment* 147. Governor’s Reorganization Plan No. 1 of 1998* 146. Consumer Protection: A Quality of Life Investment* 145. Review of State’s Efforts to Meet Year 2000 Computer Change* 144. Beyond Bars: Correctional Reforms to Lower Prison Costs and Reduce Crime* 1997 143. Dollars and Sense: A Simple Approach to School Finance* 142. Enforcing Child Support: Parental Duty, Public Priority* 141. Little Hoover Commission 1995-1996: Biennial Report* 1996 140. Long-Term Care: Providing Compassion Without Confusion* 139. When Consumers Have Choices: The State’s Role in Competitive Utility Markets* 138. The Charter Movement: Education Reform School by School* 33 BIENNIAL REPORT 1999-2000 1995 137. California’s Real Property Management: A Cornerstone for Structural Reform* 136. Making Land Use Work: Rules to Reach Our Goals* 135. Budget Reform: Putting Performance First* 134. Review of State Fire Marshal/Department of Forestry and Fire Protection Reorganization* 133. Too Many Agencies, Too Many Rules: Reforming California’s Civil Service* 132. State Fiscal Condition* 131. Review of Governor’s Energy Reorganization* 130. Review of CHP/State Police Reorganization* 129. Little Hoover Commission 1993-1994: Biennial Report* 128. Boot Camps: An Evolving Alternative to Traditional Prisons* 1994 127. The Juvenile Crime Challenge: Making Prevention a Priority* 126. Timber Harvest Plans: A Flawed Effort to Balance Economic and Environmental Needs* 125. Beyond Bottles and Cans: Reorganizing California’s Recycling Efforts* 124. Putting Violence Behind Bars: Redefining the Role of California’s Prisons* 1993 123. Positioning California for Health Care Reform 122. A Chance to Succeed: Providing English Learners with Supportive Education* 121. California’s $4 Billion Bottom Line: Getting Best Value Out of the Procurement Process* 120. Workers’ Compensation: Containing the Costs 119. Little Hoover Commission 1962-1992: Three Decades of Reform* 1992 118. Coping with Education Budget Cuts 117. No Room for Johnny: A New Approach to the School Facilities Crisis 116. Squeezing Revenues Out of Existing State Assets* 115. Mending Our Broken Children: Restructuring Foster Care in California* 114. Transportation: Keeping California Moving 34 1991 113. Unsafe in Their Own Homes: State Programs Fail to Protect Elderly from Indignity, Abuse and Neglect* 112. Coordinating the Spending on Drug Prevention Programs 111. Costs and Casualties of K-12 Education in California 110. CAL-EPA: An Umbrella for the Environment 109. Skilled Nursing Homes: Care Without Dignity* 108. The Snail’s Pace of Reforming Residential Care Facilities for the Elderly* 1990 107. Little Hoover Commission 1989-1990: Turning Policy Recommendations Into Law* 106. A Prescription for Medi-Cal 105. Real Property Management in California: Moving Beyond The Role of Caretaker 104. California’s Coordination of AIDS Services 103. The Public Employment Relations Board (PERB): Costly, Slow and Unsure 102. Little Hoover Commission, 1988 through 1989: Two Years of Progress Toward Efficient and Effective Government* 101. Runaway/Homeless Youths: California Efforts to Recycle Society’s Throwaways 100. K-12 Education in California: A Look At Some Policy Issues 99. Report on California’s Fish and Game Commission and Department of Fish and Game 1989 98. Follow-up Review of the Organization, Operation and Performance of the California State Lottery 97. Boards and Commissions: California’s Hidden Government 96. Report on Solid Waste Management: The Trashing of California 95. Meeting the Needs of California’s Homeless: It Takes More Than a Roof 94. A Review of the Organization, Operation and Performance of the California State Lottery 93. The Medical Care of California’s Nursing Home Residents: Inadequate Care, Inadequate Oversight 92. A Report on Community Residential Care for the Elderly 1988 91. A Report on Crime and Violence in California’s Public School System 90. A Review of the Operation and Performance of the Office of the State Public Defender 89. A Report on the Coordination of Funding for Drug Programs in the State of California 88. Report on the Planning, Operation and Funding of California’s Highway System 35 BIENNIAL REPORT 1999-2000 87. A Review of the Current Problems in California’s Worker’s Compensation System 86. Commission’s 25th Anniversary - Commemorative Report 1987 85. A Report on the Financial Management and Accountability in the State’s K-12 Public School System 84. Children’s Services Delivery System in California—Final Report 83. A Review of the Organization and Administration of California’s Overseas Trade and Investment Offices 82. A Review of Crime on University of California Campuses 81. Review of the State’s Medi-Cal Program and the Effects of the Reforms 80. New and Continuing Impediments to Improving the Quality of Life and the Quality of Care in California’s Nursing Homes 79. Accessibility of the Disabled Population to Substance Abuse Treatment 78. Children’s Services Delivery System in California Preliminary Report - Phase I 77. A Review of the Organization, Operation and Performance of the California State Lottery 1986 76. A Review of the State Controller’s Office Move to the Capitol Bank of Commerce Building 75. A Report on the Lack of Financial Accountability and Responsibility in the State’s K-12 Public School System 74. A Report on the Liability Insurance Crisis in the State of California 73. A Review of Use of Lottery Funds in the State’s K-12 Public School System 72. Biennial Report - February 1984-86: A Summary of Activities and Status of Recommendations 71. Review of the Organization and Operation of the State of California’s Major Revenue and Tax Collection Functions and Cash Management Activities 70. California State Government’s Management of Real Property 69. Inadequate Financial Accountability in California’s Community College System 68. A Review of Government Competition with Private Enterprise 1985 67. A Review of Impact Fees Used to Finance School Facilities 66. A Review of Selected Taxing and Enforcing Agencies’ Programs to Control the Underground Economy 65. A Review of the Organization and Management of State Telecommunications 64. Control of Pesticide Residues in Food Products - A Review of the California Program of Pesticide Regulation 63. Follow-Up Report on Conditions in Community Residential Care Facilities in California 36 1984 62. A Review of State-Owned Land Parcel in Contra Costa County 61. A Review of the Organization and Management of the State “Superfund” Program for Cleaning Up Hazardous Waste Sites 60. 1982-83 Annual Report - Summary of Activities and Status of Recommendations 59. A Study of the Organization and Coordination of Electric Energy Planning and Electric Utility Regulation in California 58. State Employee Air Travel Report 1983 57. Community Residential Care in California - Community Care as a Long-Term Care Service 56. Los Angeles County Contracting Out Report 55. The Bureaucracy of Care - Continuing Policy Issues for Nursing Home Services and Regulation 55a. Executive Summary of the “Bureaucracy of Care” 54. California’s K-12 Education Funding Report 53. Review of the Department of Transportation’s Highway Planning and Development Process 52. Review of Cost Savings Associated with Conversion of Guadalupe College into a Women’s Prison 51. Office of Special Health Care Negotiations 1982 50. Century Freeway Report 49. Horse Racing in California: Revenue and Regulation 48. Report on the Role of the State Department of Education in California’s K-12 Public Education System 47. Report on the San Juan Unified School District 1981 46. Century Freeway Report 45. A Report on the Los Angeles Unified School District 37 BIENNIAL REPORT 1999-2000 1980 44. Additional Funding for the Los Angeles Unified School District 43. Health Care Delivery System Reform 42. 1979 Summary of Activities 1979 41. Medi-Cal Reform 40. Personnel Management in the State Service 39. Administration of the Mental Health & Developmental Disabilities Programs 38. The Tax Appeals System in California 37. Administration of the Medi-Cal Program—Second Supplementary Report 36. The Status of Health Planning in California - A Supplementary Report 35. Comments and Recommendations Regarding Professional and Business Licensing 1978 34. An Analysis of Community Hospital Medi-Cal Audits 33. Study of the Utilization of Public School Facilities (K through 12) 1977 32. Supplemental Report on Developmental Disabilities Program, Department of Health 31. Supplemental Report on Medi-Cal Program, Department of Health 30. Study of the California Department of Motor Vehicles 29. Study of the California Department of Transportation 28. Should Social Security Coverage Be Continued for California State Employees? 27. Supplemental Report on State Hospitals, Department of Health 26. Supplemental Report on Licensing & Certification, Department of Health 1976 25. A Study of the Administration of State Health Programs 1975 24. A Review of California’s Vehicle Emission Control Program 38 1974 23. A Study of the California State Public Utilities Commission 22. Administration of the HUD-701 Comprehensive Planning Assistance Grant Program by the State of California 21. The Internal Auditing Program in the Executive Branch of California State Government 1973 20. A Study of the School Building Aid Program 1972 19. Preliminary Findings of Subcommittee on California Division of Highways Excess Right of Way 18. Study of Salaries of Executive and Administrative Positions in California Government 1971 17. Report on Local California Fairs Receiving State Financial Support 1970 16. A Pilot Study of California State Employee Workmen’s Compensation and Other Work-Related Disability Benefits 15. Study of the Need for a Materials Management System 1969 14. A Study of the Department of Industrial Relations 1968 13. Report on California Statutory Salaries of Executive Branch of Government 1967 12. An Examination of the Department of Professional and Vocational Standards 1966 11. The California State Highway Commission and its Relationship to the State Transportation Agency, the Department of Public Works and Division of Highways 10. Statement of the Commission’s 1967 Legislative Interests, (placing top priority on unification of tax collection activities, procedural changes that will result in direct economies in the operation of the State Government, etc.) 9. Program Budgeting 39 BIENNIAL REPORT 1999-2000 1965 8. The Use of Boards and Commissions in the Resources Agency 7. Engineering Costs in the Division of Highways 6. Management Manpower Requirements 1964 5. Need for Revenue Unification 4. Proposals Relating to Inheritance Tax Administration 1963 3. Findings and Recommendations Concerning Automotive Fleet Management 2. Findings and Recommendations Concerning Organization for Central Staff Services 1962 1. Findings & Recommendations Concerning Reorganization of the Executive Branch of California State Government Contacting the Commission and Copies of Reports All correspondence should be addressed to the Commission at: v 925 L St., Suite 805, Sacramento CA 95814 v E-mail: little.hoover@lhc.ca.gov v Telephone: (916) 445-2125 Fax: (916) 322-7709 v Worldwide Web: www.lhc.ca.gov Additional copies of this report may be purchased for $5 per copy. The report is available on the Commission’s website. Cover photography: Sherry Robyn 40