Contra Costa County Civil Grand Jury Report Summaries 2025-2026

Backrow,lefttoright: GeorgeCleveland(ElSobrante),EdiBirsan(Concord),StephenMcLin(Moraga) MarkPeters,ForepersonProTempore(WalnutCreek),JackNelson(Orinda),JimMartinez(Brentwood),DemetriaCallejas(Pittsburg)

Middlerow,lefttoright: NeilLibrock(Lafayette),CraigIsom(SanRamon),LouisWillett(Danville),MichaelSwernoff(Orinda),DaleRichardson(Lafayette), AntoniaFannin(Lafayette)

Frontrow,lefttoright: ReneSteinpress(Concord),RobertLamb(Danville),RuthieNorton(Lafayette), BrendaBalingit,Foreperson,(Danville), MaryJolls(WalnutCreek),BarryCollins(Concord)

June1,2026

ContraCostaCounty 2025-2026CivilGrandJury 725CourtStreetMartinez,CA94553

DearJudgeMockler,

Onbehalfofthe2025-2026ContraCostaCountyCivilGrandJury, IamhonoredtopresenttoyouandthecitizensofContraCosta Countyourfinalreports.Thesereportsreflectourfindingsand recommendationsongovernmentagencieswithinourjurisdiction, andwehopetheyservethepublicwellandsupportcontinued improvementacrosstheCounty.

ThankyouforyouroversightandsupportoftheJurythroughoutthis term.Yourguidancemadeameaningfuldifferenceinourwork.

WearealsoverygratefultoElisaPantaleonandMelissaZunigafrom CourtAdministrationfortheirconsistentsupportbehindthescenes. AndaspecialthankyoutoHannahShafskyandRebeccaHooleyfrom CountyCounsel.Theirguidance,responsiveness,andfeedbackwere invaluabletous.Thequalityoftheirworkisreflectedinthestrength andclarityofthesereports.

Wesincerelyappreciatethecooperationofthemanypublic officialswhotookthetimetorespondtoourquestionsandprovide information.Theirprofessionalismandcommitmenttopublicservice didnotgounnoticed.Weareequallythankfultothosewhowelcomed usintotheirfacilitiesandtookthetimetowalkusthroughtheir operations.

Finally,Iwanttorecognizethisyear’sGrandJurors.Thiswasagroup thatshowedupconsistentlyandthoughtfully.Throughteamwork, perseverance,andmutualrespect,theyproducedworktheycantruly standbehind.Iamproudofwhatweaccomplishedtogether,andithas beenaprivilegetoservealongsidethem.

Sincerely,

BrendaBalingit

BrendaBalingit ContraCostaCountyCivilGrandJury Foreperson

BARTOFFICEOF

INSPECTORGENERAL: INDEPENDENCEDELAYED ISINDEPENDENCEDENIED

In2017,theCaliforniaLegislature passedabillprovidingforavote byresidentsofthenineBayArea countieswhethertofinancea$4.45 billionslateofhighwayandtransit improvementswithanincreasein tollsonBayAreabridgesother thantheGoldenGate.Theproposal wenttovotersasRegionalMeasure 3(RM3).RM3alsocalledfor creationofanindependentoversight committeeoperatingacrossall ninecountiesand,separately,the creationofanindependentOfficeof InspectorGeneral(OIG)fortheSan FranciscoBayAreaRapidTransit District(BART).RM3passedin June2018andhasbeencodified inCaliforniaPublicUtilitiesCode Sections28840-28845.Public UtilitiesCodeSection28841 broadlyoutlinestheauthorityand responsibilitiesoftheBARTOIG. Theyincluderequirementsthat theOIG:

1.ExamineBART’soperating practicestoidentifyfraud,waste, orabuse,andopportunitiesfor efficienciesinadministrationof itsprogramsandoperations.

2.EnsuretheBARTadministration, theBoardofDirectors,and thepublicarefullyinformed oftheOIG’sfindingsand recommendations.

3.Identifyopportunitiestoimprove datausedtomakeBART’s allocationsofitsresources moreefficient.

4.Conduct,supervise,and coordinateauditsand investigationsrelatingtoBART’s programsandoperations, including,butnotlimitedto, toll-fundedprograms.

5.Identifybestpracticesfor deliveringcapitalprojectsand recommendpoliciestoenable BARTtoadoptthesepractices whenpracticable.

6.Recommendpoliciesthat promoteefficiencyinthe administrationofprogramsand operations.

7.Reviewandrecommendbest practicesthatBARTshould followtomaintainpositiveand productiverelationswithits employeesandthecollective bargainingunitsrepresenting thoseemployees.

8.Provideareport,atleastannually, totheBoardofDirectorsand theCaliforniaLegislature

thatsummarizessignificant problemsidentifiedinauditsand investigationsandwhetherBART hasimplementedtheresulting recommendations. Intheyearsfollowingvoter approvalofRM3,therehavebeen discussionsbetweentheOIGand theBARTBoardofDirectors regardingaformalcharterforthe OIGthatwouldprovidespecific detailsregardingtheOIG’sscope andexerciseofauthorityand responsibilitiesbeyondtheoutline createdbyRM3.TheOIGhas presentedtheBoardwithatleast twoversionsofaformalcharter. TheBoard,however,hasnotacted toapproveacharterfortheOIG. TheGrandJuryexaminedthe historyoftheOIG,itswork,andthe proposalsanddiscussionsregarding anOIGcharter.Ourfindings highlightalackofwrittenclarity regardingtheOIG’s.

Tele-MenTal HealTH: expansion of ReMoTe access

BARTataCrossroads:StructuralDeficit,GovernanceAccountability,andtheChoicesAhead

TheContraCostaCountyCivilGrandJury investigatedthefinancialcondition,coststructure, andgovernanceoftheSanFranciscoBayArea RapidTransitDistrict(BART),aregional transitsystemservingContraCostaCounty residents.BARTfacesa$375millionstructural operatingdeficitbeginninginFiscalYear(FY) 2027.BART’sfive-year(FY2027-FY2031) financialforecastdoesnotidentifyapathto structuralbalancewithoutnewdedicatedrevenue, additionalcostreductions,orboth.TheGrand Jury’sinvestigationidentifiedthreeinterrelated factorsdrivingthecrisis:afare-dependent revenuemodel,sustainedchangesinridership patternsfollowingtheCOVID-19pandemic,and acoststructureinwhich63%ofexpensesdonot proportionallydeclinewithreducedservicelevels. Aglossaryoffinancial,operational,andtransitrelatedtermsusedinthisreportisprovidedin AppendixA.

BART’sfinancialmodelhasreliedheavily onpassengerfarestofundoperatingcosts—a modelthatperformedwellunderconditionsof strong,concentratedcommutedemand.Ridership declinesthatbeganbeforethepandemic, combinedwiththeshifttohybridworkpatterns, havefundamentallyaltereddemandfortraditional peak-hourservice.InFY2025,BARToperated 18.5%moreservicehoursthaninFY2019while recordingonly44.6%ofpre-pandemicpassenger miles—agapbetweenservicesuppliedand ridershipdemandthathasnotmateriallynarrowed inrecentyears.Annualridershiphasdeclined fromapproximately128milliontripsto59

milliontrips,whilestaffinghasincreased 7.8%sinceFY2019.

BART’sFY2027PreliminaryOperatingBudget projectsa$375millionstructuraloperating deficitinFY2027,thefirstfiscalyearinwhich approximately$2billioninone-timefederal andstateemergencyassistanceusedtosustain operationssinceFY2020willbeexhausted, exposingtheunderlyingimbalancebetween revenuesandoperatingcosts.Inresponse, BARThaspursuedcostreductionsand revenueinitiativesthatareestimatedtoaddress approximately11%oftheprojectedstructural deficit.Duetothefixed-costnatureofBART asaheavyrailsystem,servicereductionsalone producelimitedsavingsandriskaccelerating ridershiploss.

SenateBill63,theConnectBayAreaAct, authorizedaregionalsalestaxmeasureforthe November2026ballot.BARThasidentifiedthe resultingConnectBayAreaMeasure(Measure) astheprimarymechanismtoaddressitsprojected structuraldeficit.EveniftheMeasurepasses, BART’sfive-yearfinancialforecastprojects cumulativeresidualdeficitsofapproximately $192millionthroughFY2031.Thisindicatesthe Measurealonewillnotachievestructuralbalance andadditionalcostreductionswillberequired. ThreegovernancestructuressupporttheBoard’s oversightresponsibilities.TheGrandJury’s investigationidentifiedgovernanceandoversight conditionsthataffectthereliability,completeness, andtimelinessofinformationavailabletothe

BARTBoardofDirectors(Board).Internal Audit’sorganizationalplacementwithin management,andtheAuditCommittee’slackof authoritytoreviewratherthanapproveauditplans andcharters,createconditionsinconsistentwith professionalauditingstandards.InternalAudithas appearedbeforetheAuditCommitteeatonly10 of28meetingssincetheCommittee’sinception inJanuary2021,andcompleteauditreportswere notroutinelydistributedtotheCommitteeasa standardpractice.2of30

TheGrandJury’sreviewofBART’sQuarterly FinancialReportsfoundthatovertimeexpenditure driversarenotidentifiedbycauseorcategoryin BART’sfinancialreporting—afindingconsistent withtheOfficeofInspectorGeneral’s(OIG)2025 overtimeaudit.NineoftenOIGrecommendations onovertimemanagementandorganizational structureremainunimplementedatthetimeofthis report.TheAuditCommitteehasnotconducted requiredbiennialreviewsoftheEmployeeCode ofConductsinceitsinceptionin2021,despitea charterobligationtodoso.

ThisreportaddressesbothBART’sstructural financialcrisisandthegovernanceconditions thataffecttheBoard’scapacitytomanageit. Thesesubjectsarepresentedinasinglereport becausetheyarecausallyconnected:thefiscal crisisdemandsaBoardandoversightapparatus capableofreceivingcomplete,timely,and independentanalysesofagencyperformance. Theinvestigationfoundconditionsinwhichthat capabilityisnotfullysupported.

The Cost of Adult Detention Facilities

In2025,theAverage DailyPopulation(ADP) ofthejailsoperatedby ContraCostaCounty waslessthan50%of capacity.Thisisdueto anumberofcomplex andoverlappingfactors: publicpolicyshifts, changingincarceration philosophypost-Covid, andareductionincrime requiringjailtime.

Despitethedeclining populations,thecost ofmaintainingthe jailsremainsrelatively constant.TheSheriff’s Office(whichmanages adultcustody)balances

ensuringsufficient staffandspaceshould incarcerationneeds increaseandbeing stewardsoftheresources theCountyexpendsto keepthatspaceavailable.

Staffingthefacilitiesand providingthephysical andmentalhealth resourcesrequiredbythe incarceratedpopulation in2025resultedin anaveragedailycost perinmateof$396,or $144,635onanannual basis.Thesecostsmerit theattentionofCounty residentsandtheBoard ofSupervisors(Board).

ElectronicHome

Detention(EHD)is aformofcustodial alternativethat providesforpre-trial orpost-sentencing participantstobe monitoredoutside ofajailfacility.The CustodyAlternative Facility(CAF)is managedbythe Sheriff’sOffice.In 2025,801adultsin ContraCostaCounty wereenrolledin externalmonitoring by“anklebracelet,”

eitherEHDoran anklebraceletthat monitorsalcohol level.Although 77%ofCAF clientscomplete theirsentencesor complywithcourtorderedappearances, theGrandJury identifiedroomfor improvementwith respecttohowEHD isadministered, particularlyregarding appealsand datacollection.

Ambulance Patient Offload Delays: Time Is of the Essence

In a medical emergency, residents of Contra Costa County (the County) depend on ambulance services to transport patients to a hospital. Patients expect the hospital emergency department to provide immediate care. In practice, monthly measures of the time it takes to transfer a patient from the ambulance to an emergency department regularly exceed time standards set by both the County Emergency Medical Services Agency (EMS) and the State’s Emergency Medical Services Authority (EMSA). This patient transfer time is referred to as Ambulance Patient Offload Time (APOT). The time starts when the ambulance arrives at the hospital and ends when the emergency department accepts the patient. When the time exceeds local or state patient offload time standards, it is referred to as an Ambulance Patient Offload Delay (APOD).

APODs occur when the emergency department has both reached capacity, and the arriving patient does not require immediate medical attention. The emergency department may not accept the patient immediately and instead, the

patient is either held in the ambulance or “parked” meaning placed in whatever space is available in the emergency department or elsewhere in the hospital. The ambulance personnel generally stay with the patient until the patient is accepted by the hospital. Ambulances and the ambulance personnel are unable to respond to other emergencies while they are at the hospital with a patient. This impacts the overall availability of ambulances within the emergency medical services system. Once an emergency department accepts a patient who does not require immediate care, the patient may still have to wait before treatment.

No single entity has jurisdiction or control over all the parts of the ambulance patient offload system. This means public and private organizations including local emergency medical services agencies and hospitals must collaborate to address the issues. In Contra Costa County, this collaboration is longstanding and ongoing. Although APOT data demonstrates improvements over the last year, APODs continue.

Contra Costa County’s Internal Audit Division: Time for a Transformation

Internal auditing is a key component of government accountability. Internal auditors provide independent evaluations of financial processes, internal controls, and compliance with laws and policies—giving governing bodies and senior management the information they need to identify risks, strengthen controls, and improve public services. California Government Code Section 1236 recognizes this importance by requiring that all county employees who conduct audits comply with the professional auditing standards of either the Institute of Internal Auditors (IIA) or U.S. Government Accountability Office (Generally Accepted Government Auditing Standards or GAGAS). Contra Costa County’s Internal Audit Division (IAD) does not meet this statutory requirement. The IAD has not undergone an external quality assessment—the primary means of evaluating standards compliance—in more than 25 years. IIA and GAGAS standards require such assessments every three to five years. The IAD’s Policies and Procedures Manual directs compliance with IIA and GAGAS standards; the IAD’s departure from those standards contradicts both its own governing document and California law. The Grand Jury’s review identified the following significant deficiencies relative to these standards.

Martinez: Developing a Vibrant and Sustainable Waterfront

TheCityofMartinezincludes67acres oflandalongthesouthernshoreof theCarquinezStrait.Beginninginthe 1960s,theCitydevelopedamarinaatthe waterfront,providingboatslips,piers, andcommercialdevelopmenttosupport publicenjoyment.Overtheyears,dueto budgetaryconstraints,theCitydeferred necessarymaintenanceofthemarina. Themarinafacilitiesexhibitsubstantial deterioration.Thedeteriorationextends toacrumblingseawallandrotteddocks. Dredgingwillberequiredinthenext year,andfuturesealevelriseisathreat requiringmitigation.Themarinahas experiencedseriousfloodinginthepast. TheCityacknowledgestheassessment ofexpertswhohaveevaluatedthemarina andconcludedthatrepairandrestoration willnotremedythesituation.Substantial investmentwillberequiredtoperform allthenecessarywork.

ThemarinamustborrowfromtheCity’s GeneralFundtooperateandmaintain itsfacilities.Themarinaindependently doesnotgeneratesufficientrevenue.City officialsestimatethattheannualsubsidy requiredbythemarinatomaintain operationsis$650,000.Atthislevel offinancialsubsidy,theCitywillbe challengedtosupportitscoreservices andmighthavetodrawuponitsreserves.

TheCityCouncil’svisionistodevelop a“vibrantandsustainablewaterfront.” TheCouncilrecognizesthatitdoesnot

havethefinancialresourcestoachieve itsvisionandmustseekadevelopment partnerthatcanfundboththecreationof landsideattractionsfortourismandthe long-delayedrehabilitationoftheentire marinainfrastructure.

Martinezseeksapublic-private partnership,anarrangementbetweena governmententityandaprivatebusiness. TheCityCouncilhasvotedtoexplore suchapartnershipwithTuckerSadler,a firmwithexperienceinthedevelopment ofmarinas.Tofullyassesstheoptions forapartnership,thetwopartieshave enteredanExclusiveNegotiating Agreement(ENA).AnENAisa frameworkforthecityandthedeveloper tonegotiateonlywitheachotherforthe developmentofaproposedproject.

Eitherpartymayexitthenegotiation atanytimeduringitstwo-yearterm withoutpenalty Meanwhile,Martinez mustcontinuetosubsidizemarina operationsatsignificantcosttoits GeneralFund.Ifthepartiesareunable toreachanagreementfordevelopment ofthemarina,Martinezwillbeobligated tocontinuethesubsidy,threatening itsfinancialposition.Martinezshould consideridentifyinganalternativeincase theTuckerSadlerpartnershipdoesnot cometofruition.Oneoptionwouldbe closingthemarina.However,thatwould notbewithoutcosts:stepstomitigate periodicfloodingandlonger-termsealevelrisewouldstillberequired.

Pinole’s

Road

TheCityofPinolefacesagrowing andpotentiallyseverefinancial crisisdrivenbystructural budgetimbalances,rising long-termliabilities,andsubstantial unfundedinfrastructureneeds.For multipleyears,Pinolehasnotaligned ongoingexpenditureswithongoing revenues.Instead,ithasreliedononetimefundsandreservewithdrawals tooffsetannualoperatingdeficits. ThisapproachiscontrarytoPinole’s publishedfinancialpoliciesand isunsustainable.

InFebruary2026,thePinoleCity Council(Council)revieweda “PreliminaryGeneralFundLongTermFinancialForecast”prepared byPinolestaffthatprojectedannual operatingfunddeficitsstartingat $700,000inFiscalYear2026/27. Thesedeficitsareprojectedtogrow to$5.6millioninFiscalYear2030/31 whenPinole’spensionandretiree healthcaretrustfundsareprojected tobeexhausted.Financialforecasts preparedbyoutsideexpertsare consistentwithPinole’sprojections.

Atthesametime,Pinolefaces mountinglong-termfinancial obligationsthatwillplaceadditional strainonitsGeneralFund.Pinole’s

unfundedpensionliabilityhasgrown toapproximately$45million,andits unfundedretireehealthcareliabilityis approximately$35million.Pinolealso hasroadrehabilitationand otherdeterioratinginfrastructure thatwillcostanestimatedadditional $60milliontoeventuallyrepair orreplace.

TheGrandJuryassessedPinole’s overallfinancialconditionusing publiclyreportedfinancial data,includingauditedAnnual ComprehensiveFinancialReports. Thesedatademonstratepressureon GeneralFundreservesresultingfrom persistentstructuralbudgetimbalances andgrowingliabilitiesforpensions andretireehealthcare Afiscal dashboarddevelopedbytheCalifornia PolicyCenterappliesstandardized metricstothesamedataandclassifies Pinoleasfinanciallydistressed.

Pinole’scurrentfinancialtrajectory posesseriousriskstoitslong-term fiscalstabilityanditsabilityto maintainessentialpublicservices. ChoicesmadebyPinole’sleadership inthenextfewyearswillbe consequentialforthefinancialand operationalhealthofPinole.

Make a meaningful difference, not just for today, but for future generations.

Grand Jury candidates are: ELIGIBILITY

• Citizens of the United States • Residents of Contra Costa County for at least one year • Willing to make a one-year commitment • Team players • At least eighteen years of age • Ready to become great volunteers!

Support justice, transparency, and accountability.

BE PART OF A LEGACY!

Thereare19membersoftheContraCostaCivilGrandJury. TheCivilGrandJuryworksindependentlyofpoliticiansandadministrators. Throughinvestigations,wedevelopfindingsandrecommendationsthatentitiesmust legallyrespondtoinwriting.

Martinez Superior Court 725 Court Street, Martinez, CA 94553 (925) 608-2621

https://contracosta.courts.ca.gov/divisions/civil/civil-grand-jury