HomeMy WebLinkAbout09 RESPONSE TO 2023-2024 ORANGE COUNTY GRAND JURY REPORT ENTITLED “LAW ENFORCEMENT’S RESPONSE TO MENDocusign Envelope ID: 894C1C3C-2C3E-4BFD-9DB8-1D23481F1D15
MEETING DATE
TO
FROM
Agenda Item 9
AGENDA REPORT Reviewed: Initial
City Manager a�
Finance Director N/A
AUGUST 20, 2024
ALDO E. SCHINDLER, CITY MANAGER
STU GREENBERG, POLICE CHIEF
SUBJECT: RESPONSE TO 2023-2024 ORANGE COUNTY GRAND JURY
REPORT ENTITLED "LAW ENFORCEMENT'S RESPONSE
TO MENTAL HEALTH CALLS FOR SERVICE"
SUMMARY:
On June 5, 2024, the Orange County Grand Jury issued its report titled "Law Enforcement's
Response to Mental Health Calls For Service" which scrutinized how effectively law
enforcement agencies address individuals experiencing mental health crises. The report
requires the City to respond to five specific findings. In accordance with California Penal
Code sections 933.05(a) and (b), the City must submit its response to the Presiding Judge
of the Superior Court on or before September 3, 2024.
RECOMMENDATION:
It is recommended that the City Council review and approve the proposed response to the
2023-2024 Orange County Grand Jury report titled "Law Enforcement's Response to
Mental Health Calls for Service" in the form attached as Attachment 2.
FISCAL IMPACT:
None.
CORRELATION TO THE STRATEGIC PLAN:
The required response to the Grand Jury advances Public Safety and Protection of
Assets, Goal B in the Strategic Plan.
BACKGROUND AND DISCUSSION:
The 2023-2024 Orange County Grand Jury conducted an investigation interviewing law
enforcement leaders, law enforcement educators, and mental health professionals to
examine how Orange County supports individuals suffering from mental illness.
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City Council Agenda Report
Response to 2023-2024 Orange County Grand Jury Report, "Law Enforcement's
Response to Mental Health Calls for Service."
August 20, 2024
Page 2
The report identified five Findings and no Recommendations. Pursuant to
California Penal Code Section 933, the City is required to respond to each of these
Findings. California Penal Code Section 933.05 outlines the specific manner in which
these responses and comments must be provided:
Findings: As to each Grand Jury finding, the City must indicate one of the following:
(1) The City agrees with the finding; or
(2) The City disagrees wholly or partially with the finding, in which case the
response shall specify the portion of the finding that is disputed and shall include
an explanation of the reasons therefor.
Tustin Police Department staff has prepared the recommended response to the Findings,
attached hereto as Attachment 2. Because the Grand Jury Report was issued on June
5, 2024, the response is required to be submitted to the Presiding Judge of the Superior
Court on or before Wednesday, September 3.
Signed by:
Police Chief
Attachments:
1. 2023-2024 Orange County Grand Jury report, "Law Enforcement's Response to
Mental Health Calls for Service."
2. Proposed Response to the 2023-2024 Orange County Grand Jury Report
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GRAND JVKY M,20�A
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Law Enforcement's Response to Mental Health Calls for Service
Table of Contents
SUMMARY......................................................................................................................1
BACKGROUND..............................................................................................................1
REASON FOR THE STUDY...........................................................................................2
INVESTIGATION AND ANALYSIS.................................................................................4
Legislative Acts to Support Mental Health Training for Law Enforcement .................... 4
Innovative Law Enforcement Mental Health Strategies ................................................ 5
Orange County Service Planning Areas (SPAs).......................................................... 9
LawEnforcement Partnerships.................................................................................. 10
COMMENDATIONS......................................................................................................13
FINDINGS.....................................................................................................................14
RECOMMENDATIONS.................................................................................................14
RESPONSES................................................................................................................15
REFERENCES..............................................................................................................17
GLOSSARY..................................................................................................................19
APPENDIX.................................................................................................................... 20
2023-2024 Orange County Grand Jury Page ii
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SUMMARY
Approximately 8.8 million Americans have a severe mental illness such as
schizophrenia, severe bi-polar disorder, or major depression with psychiatric features.
Almost half of these people are treated on a given day.2 Without proper treatment,
people with severe mental illness are at risk of experiencing negative outcomes that
seriously impact them and the people around them.
Decades ago, law enforcement officers in Orange County became mental health
clinicians without proper training. While State legislation has since required police
agencies to increase mental health training, Orange County law enforcement agencies
have surpassed the State's expectations. The Orange County Grand Jury (OCGJ)
believes that law enforcement in Orange County is a model for training law enforcement
personnel on mental health crisis intervention techniques and collaborating with
behavioral health organizations to improve service and reduce stigma for those affected
by mental illness.
BACKGROUND
In March 2021, two Los Angeles County Sheriff's Department (LASD) deputies
responded to a call regarding a deaf and autistic male adult named Isaias Cervantes
who was experiencing a mental health crisis. When deputies arrived, they asked
Cervantes to stand up so he could be handcuffed as a safety precaution, and the
incident escalated. Cervantes became combative with the deputies, which resulted in
one of the deputies shooting him in the back. Consequently, Cervantes is paralyzed and
recently won a $25 million settlement against the County of Los Angeles. The LASD
Internal Affairs Bureau concluded that excessive force during this incident was
warranted per departmental procedure, although Los Angeles County Risk
Management prepared a Summary Corrective Action Plan that focused on numerous
root causes for the escalation, including:
Desk personnel (i.e., dispatch) failed to ask about the nature of Cervantes'
mental impairment.
Desk personnel (i.e., dispatch) failed to send the Mental Evaluation Team as
part of the response.3
Treatment Advocacy Center, "Serious Mental Illness by the Numbers," 2022.
https://www.treatmentadvocacycenter.org.
2 ibid.
3 The Times Staff Editorial, "Sheriff's Shooting Cost Taxpayers $25 Million. Where's the Accountability?"
Los Angeles Times, April 8, 2024.
2023-2024 Orange County Grand Jury Page 1
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Approximately one-third of individuals with severe mental illness have their first
exposure to mental health treatment through a law enforcement encounter.4 Law
enforcement officers are often on the front lines of psychiatric care, charged with
responding to, addressing, and preventing a mental illness crisis. Responding to and
transporting individuals with mental illness occupies more than twenty percent of a law
enforcement officers' time.5 Many law enforcement agencies across the United States
are looking at an alternative approach to mental health calls for service by partnering
with mental health professionals rather than handling these calls as the sole first
responder. The OCGJ has found that law enforcement agencies throughout Orange
County have adopted one or a combination of the following three models to address
mental health calls:
Police Model. All mental health calls for service are handled by police with a
clinician back-up.
• Co -Responder Model. Trained mental health professionals are dispatched along
with the officers responding to certain calls.
• Alternative Mental Health Response. Only a mental health professional is
dispatched to nonviolent calls such as attempted suicide; mentally ill; drug
violation; drunk pedestrian; person down; trespasser; and well-being check.
REASON FOR THE STUDY
Christian Glass was a geology enthusiast, a painter, and a young man beset by a
mental health crisis when he called 911 for help getting his car unstuck in a Colorado
mountain town last year. Convinced that supernatural beings were after him, he balked
when sheriff's deputies told him to get out of his car. Body camera video shows that the
officers shouted, threatened, and coaxed. Glass hoped that officers would not break his
car window, but they did, and the young adult grabbed a small knife. Then he was hit
with bean bag rounds, stun gun charges and, ultimately, bullets that killed him and led
to a murder charge against one deputy and a criminally negligent homicide charge
against another.6 Along with the Cervantes incident described above, this article is just
one of numerous examples indicating that society needs to reevaluate police protocol
when responding to mental health calls for service.
4 Treatment Advocacy Center, "Road Runners: The Role and Impact of Law Enforcement in Transporting
Individuals with Severe Mental Illness," 2019.
https://www.treatmentadvocacycenter.org.
5 Jody M. Litchford, JD., "Partnering with Mental Health Providers to Improve Outcomes," Police Chief,
December 2023, p. 12.
6 Jennifer Peltz and Jesse Bedayn, "Many Big US Cities Now Answer Mental Health Crisis Calls with
Civilian Teams — Not Police," Associated Press, August 27, 2023.
2023-2024 Orange County Grand Jury Page 2
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The OCGJ felt it was vital to research via interviews with law enforcement leaders, law
enforcement educators, and mental health professionals how Orange County assists
individuals who suffer from mental illness. It is important to note that this report does not
focus on mental health issues that exist within the homeless community, although the
OCGJ learned that a significant number of unhoused individuals suffer from mental
illness, including substance abuse disorder, which leads to a significant number of
police calls for service.
METHOD OF STUDY
The OCGJ conducted thirty-one interviews. Twenty-three of these interviews involved
key personnel from law enforcement agencies representing all cities and unincorporated
areas in Orange County, including the police agency at the University of California,
Irvine (UCI). The OCGJ also interviewed representatives from the Orange County
Sheriff's Regional Academy and Golden West College Police Academy, Orange County
mental health stakeholders including the Orange County Health Care Agency's Mental
Health and Recovery Services Department, the National Alliance on Mental Illness —
Orange County Chapter (NAMI OC), and Project Kinship. In addition, the OCGJ
conducted the following tours:
• Orange County Central Jail Complex, including the Intake Release Center (IRC),
Men's Jail, and Women's Jail
• Central Justice Center Holding Facility
• James A. Musick Jail (under construction)
• Theo Lacy Jail
• Yale Navigation Center and Bridges at Kraemer Place
• Orange County Juvenile Hall and Youth Leadership Academy
• Be Well, Orange Campus
Members of the OCGJ attended monthly meetings of the Orange County Criminal
Justice Coordinating Council (OCCJCC), which is a planning body of County
government, law enforcement, courts/corrections, and social service agencies
responsible for improving public safety on behalf of Orange County residents. These
meetings were insightful and provided an understanding of how Orange County leaders
collaborate to enhance law enforcement services.
The OCGJ also referred to previous Grand Jury reports, Peace Officer Standards and
Training (POST) material, police training documents provided by the Orange County
Sheriff's Regional Training Academy and Golden West College Police Academy, and
local news articles and reports.
2023-2024 Orange County Grand Jury Page 3
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INVESTIGATION AND ANALYSIS
Legislative Acts to Support Mental Health Training for Law
Enforcement
Even in situations in which police officers have completed relevant mental health crisis
training, the mere presence of armed, uniformed officers can exacerbate feelings of
distress for people with behavioral health conditions. While mental health training in law
enforcement is mandated, field experience is also essential in producing positive
outcomes to mental health calls for service. Listed below is an overview of mandated
mental health training for law enforcement personnel that is regulated by POST.
Peace Officer, Public Safety Dispatcher and Public Safety Dispatch Supervisor
Most often, law enforcement officers are the initial first responders for incidents
involving untreated mental illness. On January 1, 2016, Senate Bill (SB) 11 went into
effect mandating additional behavioral health training for peace officers. This legislation
was codified in California Penal Code Section 13515.27, which requires every peace
officer (other than a level III Reserve Peace Officer), Public Safety Dispatcher, and
Public Safety Dispatch Supervisor to complete twenty-four or more hours of POST
training every two years. The training includes three consecutive hours of a POST -
certified mental health training course.' Training includes:
• The cause and nature of mental illness, intellectual disability, and substance
abuse disorders.
• Indicators of mental illness, intellectual disability, and substance use disorders.
• Appropriate responses to a variety of situations involving persons with mental
illness, intellectual disability, and substance use disorders.
• Conflict resolution and de-escalation techniques for potentially dangerous
situations.
• Appropriate use of language when interacting with emotionally distressed
individuals.
• Resources available to serve persons with mental illness or intellectual disability.$
Police Recruits
SB 11 also added Penal Code Section 13515.26, which requires POST to include
fifteen hours of behavioral health training in the basic academy course for new police
recruits. Upon graduation from a police academy, police recruits must complete training
on subject matter that covers forty-two different law enforcement topics, also known as
State of California Commission on Peace Officer Standards and Training Website, "Mental Health
Training in Law Enforcement."
8 https://california.public.law/codes/ca_penal_code_section_13515.27
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Learning Domains (LD). One of the topics covered is in LD 37, identified as People with
Disabilities. It provides trainees instruction on disability laws, developmental disabilities,
physical disabilities, and mental illness.9 While in the academy, recruits learn to
recognize general indicators of mental illness so that appropriate actions can be taken.
The following indicators assist recruits in determining whether a behavior is related to
mental illness:
• Fearfulness
• Inappropriate Behavior
• Extreme Inflexibility and/or Frustration
• Symptoms of Excitability
• Impaired Self -Care
• Hallucinations and Delusions
• Disorganized Speech, Thought Patterns, or Disorientation
• Clinical Depression
• Bipolar Disorder
• Schizophrenia
• Postpartum -Depression
• Psychosis
• Post -traumatic Stress Disorder (PTSD)
• Personality Disorder10
Supervisorial Police Officers
SB 29, which also went into effect on January 1, 2016, requires police officers in
supervisory roles who conduct field training to receive twelve hours of behavioral health
training, including eight hours of crisis intervention instruction and an additional four
hours in the Field Training Officer program, on how to interact with persons with mental
illness or intellectual disability.
Innovative Law Enforcement Mental Health Strategies
The OCGJ interviewed high-ranking officers from twenty-three law enforcement
agencies representing all cities and unincorporated areas in Orange County, including
9 California Commission on Peace Officer Standards and Training Website, "Mental Health Training in the
Regular Basic Course."
10 California Commission on Peace Officer Standards and Training, Learning Domain 37, People with
Disabilities, Version 6.0, Chapter 4.
2023-2024 Orange County Grand Jury Page 5
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the police agency at UCI. The OCGJ found that each city and/or unincorporated area
handles mental health calls for service in its own, unique way. This is especially true
with smaller cities that lack special funding to establish innovative mental health
programs. However, smaller cities also have a more modest unhoused population,
which makes enforcement more manageable than in larger municipalities. Table 1 on
page 13 of this report summarizes key interview results with Orange County law
enforcement agencies.
In Orange County, law enforcement's handling of mental health issues has evolved to
include non -sworn mental health clinicians. This approach recognizes the need for
specialized assistance in dealing with individuals experiencing mental health crises and
provides a more tailored and compassionate response. Law enforcement
representatives interviewed by the OCGJ agree that individuals experiencing a mental
health crisis typically respond better when approached by clinicians who are not
wearing uniforms, and emphasize the importance of sensitivity and understanding in
these encounters.
Seven Orange County cities plus UCI have contracted with Be Well Orange County to
provide mobile response vans staffed with two mental health clinicians seven days a
week. The Homeless Outreach and Proactive Engagement (HOPE) Center, serving
cities in North Orange County, uses a mobile office vehicle to connect with individuals in
the community. Although the HOPE Center is primarily focused on issues related to
homelessness, outreach workers are equipped to provide links to service for individuals
suffering from mental illness.
Mental health clinicians from the Psychiatric Emergency Response Team (PERT) ride
with law enforcement officers in seventeen Orange County cities. Law enforcement in
any Orange County city can call the Crisis Assessment Team (CAT), a program that
helps anyone in the county who is experiencing a behavioral health crisis. The PERT
and CAT teams are staffed by clinicians from the Orange County Health Care Agency
(OCHCA).
Some of the smaller police departments may not need an in-house crisis intervention
worker, but are familiar with households that include persons with mental health issues,
and their officers have established relationships with these families. Officers are also
acquainted with many homeless individuals in these cities because their homeless
populations are relatively sparse.
Although police agencies may differ in the way mental health calls for service are
addressed, there is consensus that police departments would like more time to focus on
crime -related calls for service.
Orange County Sheriff's Department's Behavioral Health Bureau
The Orange County Sheriff's Department (OCSD) receives approximately 10,000 calls
for service each year involving mental health, individuals experiencing homelessness,
2023-2024 Orange County Grand Jury Page 6
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Law Enforcement's Response to Mental Health Calls for Service
and similar crises.11 In June 2023, the Orange County Board of Supervisors approved
the County's budget for Fiscal Year 2023-24; and within its budget, allocated $2.8
million to expand the OCSD Behavioral Health Bureau (BHB).12 The bureau is a
specialized crisis response team that consists of nine deputy sheriffs, three PERT
deputy sheriffs and one PERT clinician. This specialized team responds to mental
health crisis calls including calls related to homelessness and conducts proactive follow-
up calls. The goal is to assist with de-escalation and diversion to treatment and
services, when appropriate.13
Some police agencies in Orange County are adopting an alternative mental health
approach when responding to mental health calls for service. While there is an appeal
to the idea of removing police from nonviolent psychiatric crisis calls, the challenge is
training 911 dispatchers to gauge these calls and having experienced clinicians
available to expediently respond to them. In March 2024, the OCSD, in partnership with
the OCHCA, launched a dispatch call diversion program that guides OCSD dispatchers
to triage non-violent and non -criminal behavioral health calls (including homelessness)
to determine if they can be diverted to OC Links, which is a 24/7 Behavioral Health
Line.14 OC Links dispatches counselors to these non-violent and non -criminal calls
instead of deputies, freeing up deputies to respond to traditional crime -related calls
instead.15
Orange County Intake Release Center (IRC)
The OCSD has partnered with the OCHCA to reduce inmate behavioral health crises.
There are mental health hotlines available around the clock in each County jail so that
deputies can report concerns regarding an inmate's mental health or behavior that
might lead to self -harm. The IRC is part of the Central Jail complex in Santa Ana and
houses inmates who suffer from severe mental illness. The facility can house up to 849
inmates and is staffed by sheriff's deputies from the BHB. The cells in the mental health
unit have been modified to address safety and self -harm concerns. There are also
visiting areas where inmates can use computer tablets for video calls with family,
reading e-books, searching for jobs, receiving education, and playing cognitively
stimulating games.
11 Orange County Sheriff's Department News Release, "OC Sheriff Partners with the OC Health Care
Agency to Support Individuals in Crisis." https//ocsheriff.gov.
12 Minutes of the Orange County Board of Supervisors Meeting on June 27, 2023; Adoption of the Fiscal
Year 2034-24 Final Budget Resolution.
13 OC Cares Justice Through Prevention and Intervention, 2025 Quarterly Status Report, October —
December 2023, p 16.
14 Orange County Sheriff's Department News Release "OC Sheriff Partners with the OC Health Care
Agency to Support Individuals in Crisis," httpsHocsheriff.gov.
15 Ibid.
2023-2024 Orange County Grand Jury Page 7
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Law Enforcement's Response to Mental Health Calls for Service
Fullerton Police Department Social Worker Program
In 2023, Orange County Supervisor Doug Chaffee allocated $1 million from the Fourth
Supervisorial District Discretionary Grants to help fund the Fullerton Police Department
Social Worker Program, which is a two-year pilot program.16 The objective is to
dispatch licensed clinical social workers (LCSWs) alongside or in lieu of police officers
when responding to mental health crises, domestic violence, or juvenile delinquency.
The program consists of two LCSWs and focuses on crisis response, mediation,
referrals to health care providers, treatment plans and case follow-ups, and de-
escalation techniques for peaceful resolution.
Irvine Police Department Mental Health Unit
In 2014, the Irvine Police Department established a mental health unit that consists of
three sworn police officers and two County PERT clinicians. The mental health sworn
officers partner with the PERT clinicians in response to mental health calls for service.
When not responding to mental health calls for service, the mental health unit is
conducting follow-up calls for service with their clients. There is an additional trained
clinician assigned to the mental health unit from the City's FOR Families program that
provides short-term mental health support to Irvine residents on a variety of concerns
including:
• Stress/Depression
• Substance Abuse
• Family Violence
• Relationship Problems
• Legal/Financial Issues
• Children/Teen Behavioral Difficulties
Residents who are affected by a mental health issue can contact the City's dedicated
email address at outreach (o)cityofirvine.org.
City of Huntington Beach Police Department
Huntington Beach was the first city in Orange County to enter into an agreement with
Be Well OC where two professional crisis counselors respond to non-violent mental
health calls relating to suicide, family disputes, drug/alcohol abuse, welfare checks, and
general mental health crisis calls. Collaboration with Be Well OC has allowed sworn
officers to dedicate more time responding to crime -related calls for service.
16 "Fullerton Police Department Get $1 Million to Start a Pilot Program," Fullerton Observer, July 22, 2023.
2023-2024 Orange County Grand Jury Page 8
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Orange County Service Planning Areas (SPAs)
Service Planning Areas (SPAs) are divisions of Orange County into North, Central, and
South cities to coordinate homeless shelters and services on a regional basis. The
North Orange County Service Planning Area (North SPA) is the most active and
innovative of the three SPAs. It coordinates collaboration among thirteen cities in North
Orange County. In 2018, North SPA was given over $12 million dollars by the State of
California to address the crisis of homelessness.17 The North SPA partnership is an
effort to comply with a court ruling prohibiting enforcement of anti -camping laws on
public property when local shelter beds are not available. The funding was used to open
two homeless "Navigation Centers," one in Buena Park and the other in Placentia.
The HOPE Center was opened in 2022 to gain more reliable relief and consistent
support for homeless individuals in the North SPA area. The HOPE Center is designed
as a central command center for case workers, mental health clinicians, resource
providers, and homeless liaison officers working together to address public health
issues with an emphasis on homeless individuals. The goal is to end homelessness in
the North SPA cities by getting "the right resource to the right person at the right time.1118
The HOPE Center mobile office vehicle is used to respond to calls for service. Center
clinicians engage in outreach activities when they are not on calls. At the opening of the
HOPE Center, State Senator Josh Newman (D-Fullerton/District 29) said the HOPE
Center will be "a critical hub for subject matter experts, health care workers,
community -based organizations, and local law enforcement to coordinate and deliver
resources efficiently under one roof."19
17 "North Orange County Service Planning Area (North SPA) Received $12,062,300 in Homeless
Emergency Aid Program (HEAP) Funding to Open Navigation Center in Buena Park and Placentia,"
November 9, 2018, https://www.buenapark.com/T2 R49.php.
1S HOPE Center Orange County Mission Statement, https://ochopecenter.org.
19 Tess Sheets and Alicia Robinson, "Governor Gavin Newsom Visits to Help Open New Hub for North
Orange County Homeless Services," Orange County Register, October 27, 2022.
2023-2024 Orange County Grand Jury Page 9
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Law Enforcement Partnerships
Be Well (Hope Starts Here)
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Hope Starts Here is the slogan for Be Well OC. It was established in 2017 (under the
leadership of Mind OC) as a public -private partnership which provides mental health
stabilization, a sobering center, and residential housing for both substance abuse and
2023-2024 Orange County Grand Jury Page 10
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Law Enforcement's Response to Mental Health Calls for Service
mental health treatment for the residents of Orange County. Insurance is not a
requirement to receive treatment.20
The first of three proposed Be Well campuses opened in January 2021 in the City of
Orange to serve North Orange County. Funding was provided by the County Board of
Supervisors, CalOptima, private donors, and major hospital systems. In October 2023,
construction began on the second Be Well campus located in Irvine's Great Park that
will serve South Orange County. This facility will be larger than the Orange Campus and
will have the additional ability to support children, youth, and families. The campus is
expected to open in 2025. A campus to serve Central Orange County is proposed.
Mind OC was established in 2017 as a California 501(c)(3) non-profit organization. The
purpose of the non-profit is to partner with the County of Orange to establish behavioral
health campuses in Orange County. When the Be Well Campus in Orange opened, it
was under the responsibility of the OCHCA. In January of 2023, Mind OC assumed
responsibility for the campus.21
In addition to the Be Well campuses, Be Well OC has a mobile response program. The
slogan for the program is Hope Happens Here.22 Identifiable outreach vans with mental
health crisis counselors (working in pairs) work in collaboration with law enforcement to
respond to mental health calls. The counselors are trained in de-escalation, crisis
stabilization, and counseling. Seven municipal police agencies (Anaheim, Garden
Grove, Huntington Beach, Irvine, Laguna Beach, Newport Beach, and Westminster) and
UCI currently have mobile response contracts. Law enforcement agencies without
contracts with the mobile response program can transport people in need to the Be Well
Orange Campus.
Project Kinship (Hope Lives Here)
In November 2014, California voters approved Proposition 47 that reduced some low-
level felonies in the state to misdemeanors. The proposition required the Board of State
and Community Corrections to use a portion of the annual savings from Proposition 47
to administer grant programs for diversion, mental health services, or substance abuse
treatment.23 Since 2016, Orange County has received $12 million in grants from
Proposition 47. Orange County's goal is to reduce the number of people with mild -to -
moderate mental health and/or substance use disorders incarcerated in the county jail
by reducing recidivism through intensive case management, linkages to treatment,
housing and behavioral health services, and community supports upon release.24
20 https://bewelloc.org/
21 Ibid.
22 https://mind-oc.org/
23 Libby Doyle, Leigh Courtney, Bryce Peterson of the Urban Institute, "Evaluation of Orange County's
Proposition 47 Grant -Related Services," Executive Summary, September 2021, p.v.
24 Ibid.
2023-2024 Orange County Grand Jury Page 11
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Located in Santa Ana, Project Kinship was established in 2014 as a non-profit
organization to address people's basic needs upon their release from custody. Although
Project Kinship offers a variety of services including Schools and Youth Programs and a
Workforce Program, this report focuses on the Adult Re -Entry Program in which
Correctional Health Services provides Project Kinship with a list of upcoming inmates
scheduled for release. Project Kinship conducts a triage on those inmates who are
willing to sign an agreement for assistance (for up to eighteen months) that addresses
people's basic needs upon their release from custody, such as housing, referrals to
treatment facilities, mental health counseling, clothing, or reunification with family. Upon
release from jail, these individuals are at risk of recidivism, victimization, and
homelessness when they do not have resources such as clothing and food. The OCSD
collaborates with Project Kinship by providing office space at the IRC and the Theo
Lacy Jail. Project Kinship assists releasees on a round-the-clock basis at these
facilities. Project Kinship is unique in that more than fifty percent of its workforce and all
of its peer navigators have had analogous life experiences.25
The Proposition 47 grant money has allowed Orange County to fund Project Kinship's
relocation to a larger space and hire additional case managers, clinicians, and peer
navigators.26 There are now approximately 120 Project Kinship employees who served
179 clients between July 2020 and March 2021.27 In a meeting at the OCCJCC,
members from the OCGJ witnessed an inspiring story from a Project Kinship employee
as she described how her repeat offenses were causing her to be institutionalized and
comfortable knowing that jail provided her with housing, clothing, food, and some sort of
socialization. It was Project Kinship that approached her when she was preparing to be
released from jail for the last time. Project Kinship provided her with a comprehensive
approach to addressing short -and long-term reentry needs that helped her realize she
could start a new life for herself.
City Net
Seven cities throughout Orange County contract with City Net to work with police
agencies on reducing homelessness through street outreach and engagement.
25 Id., p. 20.
26 ibid.
27 Id., p. 21.
2023-2024 Orange County Grand Jury Page 12
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Law Enforcement's Response to Mental Health Calls for Service
Table 1: Interview Results with Orange County Law Enforcement Agencies
Law Enforcement
Agencies
Be Well
Mobile
Response
Team
PERT
City Net
NorthSpa/Hope
Center
Behavioral
Health
Bureau
Non -Sworn
Crisis Worker
Anaheim
X
X
X
X
Brea
X
Buena Park
X
X
Costa Mesa
X
Cypress
X
Fountain Valley
X
X
Fullerton
X
X
Garden Grove
X
X
Huntington Beach
X
X
X
Irvine
X
X
X
La Habra
X
X
La Palma
X
Laguna Beach
X
X
Los Alamitos
X
X
Newport Beach
X
X
X
Orange
X
X
Placentia
X
X
Santa Ana
X
X
Seal Beach
X
Tustin
X
X
X
UCI
X
X
**
Westminster
X
X
Orange County Sheriff X *** X
City of Fullerton is developing a pilot Social Worker Program within its police department.
UCI has several student counseling services on campus.
The cities of Stanton and Yorba Linda are members of North SPA.
COMMENDATIONS
Orange County Criminal Justice Coordinating Council (OCCJCC) — The OCCJCC
is to be commended for its efforts to improve public safety through greater inter -agency
communication, coordination and collaboration regarding law enforcement and
administration of justice issues including mental health.28
28 Orange County Board of Supervisors Resolution No. 2001-38, Adopted February 6, 2001, OCCJCC
Proposed Reorganization.
2023-2024 Orange County Grand Jury Page 13
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Orange County Intake Release Center (IRC) — The IRC is to be commended for
partnering with the OCHCA to reduce inmate behavioral health crises.
FINDINGS
In accordance with California Penal Code Sections 933 and 933.05, the 2023-2024
Grand Jury requires responses from each agency affected by the findings presented in
this section. The responses are to be submitted to the Presiding Judge of the Superior
Court.
Based on its investigation described here, the 2023-2024 OCGJ has arrived at the
following principal findings:
F1. Mental health training for law enforcement officers in Orange County exceeds the
State's requirements, resulting in law enforcement applying these skills to better
evaluate and handle mental health calls for service.
F2. Law enforcement agencies in Orange County have developed unique ways to
deal with mental health calls in their communities based on their particular needs
and budgets, enabling law enforcement to better serve their communities.
F3. Law enforcement collaboration with County PERT clinicians and Be Well mobile
response units has been an effective tool when responding to mental health calls
for service.
F4. People with mental illness respond more positively to "soft uniformed" police
personnel, which can be effective in de-escalating situations.
F5. Providing follow-up case management is not only necessary but critical for the
wellbeing of people experiencing mental health issues.
RECOMMENDATIONS
Based on its investigation, the 2023 — 2024 OCGJ has determined that law enforcement
agencies throughout Orange County have developed unique techniques to adequately
address mental health calls, thus this report does not contain recommendations.
2023-2024 Orange County Grand Jury Page 14
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RESPONSES
California Penal Code Section 933 requires the governing body of any public agency
which the Grand Jury has reviewed, and about which it has issued a final report, to
comment to the Presiding Judge of the Superior Court on the findings and
recommendations pertaining to matters under the control of the governing body. Such
comment shall be made no later than 90 days after the Grand Jury publishes its report
(filed with the Clerk of the Court). Additionally, in the case of a report containing findings
and recommendations pertaining to a department or agency headed by an elected
County official, such official shall comment on the findings and recommendations
pertaining to the matters under that official's control within 60 days to the Presiding
Judge with an information copy sent to the Board of Supervisors.
Furthermore, California Penal Code Section 933.05 specifies the manner in which such
comment(s) are to be made as follows:
(a) As to each Grand Jury finding, the responding person or entity shall indicate
one of the following:
(1) The respondent agrees with the finding.
(2) The respondent disagrees wholly or partially with the finding, in which
case the response shall specify the portion of the finding that is disputed
and shall include an explanation of the reasons therefore.
(b) As to each Grand Jury recommendation, the responding person or entity shall
report one of the following actions-
(1) The recommendation has been implemented, with a summary regarding
the implemented action.
(2) The recommendation has not yet been implemented, but will be
implemented in the future, with a timeframe for implementation.
(3) The recommendation requires further analysis, with an explanation and
the scope and parameters of an analysis or study, and a timeframe for the
matter to be prepared for discussion by the officer or head of the agency
or department being investigated or reviewed, including the governing
body of the public agency when applicable. This timeframe shall not
exceed six months from the date of publication of the Grand Jury report.
(4) The recommendation will not be implemented because it is not warranted
or is not reasonable, with an explanation, thereof.
(c) If a finding or recommendation of the Grand Jury addresses budgetary or
2023-2024 Orange County Grand Jury Page 15
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Law Enforcement's Response to Mental Health Calls for Service
personnel matters of a county agency or department headed by an elected
officer, both the agency or department head and the Board of Supervisors
shall respond if requested by the Grand Jury, but the response of the Board
of Supervisors shall address only those budgetary or personnel matters over
which it has some decision -making authority. The response of the elected
agency or department head shall address all aspects of the findings or
recommendations affecting his or her agency or department.
The Orange County Grand Jury requires and requests the following responses, as
indicated:
Findings - 60 Day Response Required
Orange County Sheriff -Coroner F1, F2, F3, F4, F5
Findings - 90 Day Response Required
City Councils of:
Anaheim F1, F2, F3, F4, F5
Brea F1, F2, F4, F5
Buena Park F1, F2, F3, F4, F5
Costa Mesa F1, F2, F3, F4, F5
Cypress F1, F2, F3, F4, F5
Fountain Valley F1, F2, F3, F4, F5
Fullerton F1, F2, F3, F4, F5
Garden Grove F1, F2, F3, F4, F5
Huntington Beach F1, F2, F3, F4, F5
Irvine F1, F2, F3, F4, F5
La Habra F1, F2, F3, F4, F5
La Palma F1, F2, F4, F5
Laguna Beach F1, F2, F3, F4, F5
Los Alamitos F1, F2, F3, F4, F5
2023-2024 Orange County Grand Jury Page 16
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Law Enforcement's Response to Mental Health Calls for Service
Newport Beach
Orange
Placentia
Santa Ana
Seal Beach
Tustin
Westminster
Findings - 90 Day Response Requested
University of California, Irvine
REFERENCES
Be Well OC website: https://bewelloc.org/
F1, F2, F3, F4, F5
F1, F2, F3, F4, F5
F1, F2, F4, F5
F1, F2, F3, F4, F5
F1, F2, F3, F4, F5
F1, F2, F3, F4, F5
F1, F2, F3, F4, F5
F1, F2, F3, F4, F5
California Commission on Peace Officer Standards and Training, Learning Domain 37,
People with Disabilities, Version 6.0, Chapter 4.
California Commission on Peace Officer Standards and Training Website, "Mental
Health Training in the Regular Basic Course."
"Fullerton Police Department Get $1 Million to Start a Pilot Program," Fullerton
Observer, July 22, 2023.
HOPE Center Orange County Mission Statement, https://ochopecenter.org.
https://california.public.law/codes/ca penal code section 13515.27
"North Orange County Service Planning Area (North SPA) Received $12,062,300 in
Homeless Emergency Aid Program (HEAP) Funding to Open Navigation Center in
Buena Park and Placentia," November 9, 2018,
https://www.buenapark.com/T2 R49.phphttps://www.buenapark.com/T2 R49.php.
Jennifer Peltz and Jesse Bedayn, "Many Big U.S. Cities Now Answer Mental Health
Crisis Calls with Civilian Teams - Not Police," Associated Press, August 27, 2023.
Jody M. Litchford, JD., "Partnering with Mental Health Providers to Improve Outcomes,"
Police Chief, December 2023.
2023-2024 Orange County Grand Jury Page 17
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Libby Doyle, Leigh Courtney, Bryce Peterson of the Urban Institute, "Evaluation of
Orange County's Proposition 47 Grant -Related Services," Executive Summary,
September 2021.
Lili Robin, "Assessment of the Orange County, California, Homeless Mentally III
Outreach and Treatment Services," Urban Institute, May 2021.
Mind OC website: https://mind-oc.org/
Minutes of the Orange County Board of Supervisors Meeting, Public Hearing to
Consider Adoption of the Fiscal Year 2034-24 Budget.
OC Cares Justice Through Prevention and Intervention, 2025 Quarterly Status Report,
October — December 2023.
OCGJ Report, The Mental Illness Revolving Door: A Problem for Police, Hospitals, and
the Health Care Agency, 2015.
Orange County Board of Supervisors Resolution No. 2001-38, Adopted February 6,
2001, OCCJCC Proposed Reorganization.
Orange County Sheriff's Department News Release, "OC Sheriff Partners with the OC
Health Care Agency to Support Individuals in Crisis." https//ocsheriff.gov.
State of California Commission on Peace Officer Standards and Training Website,
"Mental Health Training in Law Enforcement."
Tess Sheets and Alicia Robinson, "Governor Gavin Newsom Visits to Help Open New
Hub for North Orange County Homeless Services," Orange County Register, October
27, 2022.
The Times Staff Editorial, "Sheriff's Shooting Cost Taxpayers $25 million. Where's the
Accountability?" Los Angeles Times, April 8, 2024.
Treatment Advocacy Center, "Road Runners: The Role and Impact of Law Enforcement
in Transporting Individuals with Severe Mental Illness," 2019. Retrieved from
https-//www.treatmentadvocacycenter.org.
Treatment Advocacy Center, "Serious Mental Illness by the Numbers," 2022. Retrieved
from https-//www.treatmentadvocacycenter.org.
Urban Institute Interim Evaluation Report, "Evaluation of Orange County's Proposition
47 Grant -Related Services," September 2021.
2023-2024 Orange County Grand Jury Page 18
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Law Enforcement's Response to Mental Health Calls for Service
GLOSSARY
BHB
Behavioral Health Bureau (Orange County Sheriff's Department)
BHS
Behavioral Health Services
BRU
Behavioral Response Unit
CAT
Crisis Assessment Team
CIT
Crisis Intervention Training
HOPE
Homeless Outreach and Proactive Engagement
IRC
Intake Release Center
LASD
Los Angeles Sheriff's Department
LCSW
Licensed Clinical Social Worker
LD
Learning Domain
NAMI OC
National Alliance on Mental Illness — Orange County Chapter
OCCJCC
Orange County Criminal Justice Coordinating Council
OCGJ
Orange County Grand Jury
OCHCA
Orange County Health Care Agency
OCSD
Orange County Sheriff's Department
PERT
Psychiatric Emergency Response Team
POST
Peace Officer Standards and Training
SB
Senate Bill
SPA
Service Planning Area
UCI
University of California, Irvine
2023-2024 Orange County Grand Jury Page 19
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Law Enforcement's Response to Mental Health Calls for Service
APPENDIX
National Alliance on Mental Illness, Orange County (NAMI OC) Warm Line
If you or someone you know is experiencing a mental health crisis, it is essential to take
immediate action.
Why a "Warm Line" and not a "Hot Line?"
Imagine a pot left unattended and beginning to boil over —it requires
immediate intervention to prevent avoidable damage. Distress left
avoided for too long is similar to a boiling pot.
The Warm Line aims to be an accessible mental health resource people
can use for support before they've reached their boiling point. Our
research shows that immediate support will prevent crisis later.
The Warm Line aspires to bring authentic human connection to every
conversation. Because our counselors are peers with their own
experiences of mental health challenges, MHASF provides support from a
place of empathy, understanding, and constant hope for recovery.
Source- Warm Line - Mental Health Association of San Francisco (mental healthsf.org)
NAMIOC
Warm(
24/7 MentaL Health Support
Toll Free: (877) 910-9276
Text or Call Local: (714) 991-6412
LiveChat at: namioo.org
Email: wl@namicc,org
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2023-2024 Orange County Grand Jury Page 20
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Office of the City Council
August 20, 2024
Honorable D. Maria Hernandez, Presiding Judge
Superior Court
700 Civic Center Drive
Santa Ana, CA 92701
Re: Response to 2023-2024 Orange County Grand Jury Report "Law Enforcement's Response to
Mental Health Calls for Service"
Your Honor:
On May 30, 2024, the Orange County Grand Jury issued a report entitled "Law Enforcement's Response to
Mental Health Calls for Service" that examined the degree to which law enforcement agencies provide for
those experiencing a mental health crisis.
At the conclusion of its analysis, the Grand Jury made five findings, with no recommendations, and required
the City to respond to each of the five findings. In accordance with California Penal Code 933.05(a) and (b),
the Orange County Grand Jury requires responses of each of the findings. The City of Tustin responds as set
forth below.
FINDINGS
Finding 1. Mental health training for law enforcement officers in Orange County exceeds the State's
requirements, resulting in law enforcement applying these skills to better evaluate and handle mental health
calls for service.
Response to Finding 1: The City of Tustin agrees with Finding 1. Tustin PD officers attend 15 hours of
"People with Disabilities" training when they attend the Police Academy. Every two years all Tustin PD
officers and sergeants attend 4 hours of "Strategic Communication" training. This training includes mental
health and de-escalation tactics.
California Penal Code 13515.28(a)(1) requires Field Training Officers (FTO) who are instructors for the
field training program to attend 8 hours of "Crisis Intervention Training" (CIT). This training better
prepares officers in effectively addressing incidents involving persons with a mental illness or intellectual
disabilities. Tustin PD sends all FTO's to 16 hours of Advanced CIT training.
In addition, the Homeless Liaison Officer, Community Impact Officer, and Behavioral Health Response Unit
(BHRLI) Manager has also attended 16 hours of Advanced CIT training since they regularly interact with
individuals experiencing mental health problems.
Mayor Austin Lumbard • Mayor Pro Tem Ryan Gallagher • Letitia Clark • Rebecca "Beckie" Gomez • Ray Schnell
300 Centennial Way • Tustin, California 92780 www.tustinca.org
Docusign Envelope ID: 894C1C3C-2C3E-4BFD-9DB8-1D23481F1D15
Honorable D. Maria Hernandez, Presiding Judge
August 20, 2024
Page 2
Finding 2. Law Enforcement agencies in Orange County have developed unique ways to deal with mental
health calls in their communities based on their particular needs and budgets, enabling law enforcement to
better serve their communities.
Response to Finding 2: The City of Tustin agrees with Finding 2. Tustin PD has a Homeless Liaison
Officer and Community Impact Officer who works side by side with the BHRU Manager. Together they
handle day-to-day calls for service received from dispatch, engaging with individuals who may be struggling
with mental health problems. Often these calls require further follow-up and the BHRU Manager re-engages
with these individuals; checking on their well-being and linking them to resources.
Finding 3. Law enforcement collaboration with County PERT clinicians and Be Well mobile response units
has been an effective tool when responding to mental health calls for service.
Response to Finding 3: The City of Tustin agrees with Finding 3. An Orange County Health Care Agency
PERT clinician rides with the Homeless Liaison Officer and Community Impact Officer every Tuesday.
Together they respond to mental health calls for service.
While Tustin PD does not partner with Be Well's mobile unit, the City has used Be Well's Orange facility to
assist individuals who need immediate mental health services or who need assistance with sobering from
alcohol or drugs.
Additionally, Tustin PD outsources homeless outreach and engagement services through City Net. Many of
these contacts are done in conjunction with the Tustin PD BHRU Manager, Homeless Liaison Officer and
Community Impact Officer.
Finding 4. People with mental illness respond more positively to "soft uniformed" police personnel, which
can be effective in de-escalating situations.
Response to Finding 4. The City of Tustin agrees with Finding 4. The BHRU Manager, Homeless Liaison
Officer and Community Impact Officer wear non-traditional police uniforms which assist in de-escalating
contacts and allow for non -confrontational encounters. Furthermore, the BHRU Manager and Homeless
Liaison Officer drive unmarked vehicles.
Finding 5. Providing follow-up case management is not only necessary but critical for the well-being of
people experiencing mental health issues.
Response to Finding 5: The City of Tustin agrees with Finding 5. Tustin PD's BHRU Manager provides
comprehensive follow-up services to individuals in need; ensuring they receive the support and assistance
necessary to address any issues they may be facing.
Should you have any questions or need any additional information, please contact Lieutenant Sarah Fetterling
at Tustin Police Department at 714.573.3308 or via email at SFetterling@tustinca.org.
Respectfully,
Docusign Envelope ID: 894C1 C3C-2C3E-4BFD-9DB8-1 D23481 F1 D1 5
Honorable D. Maria Hernandez, Presiding Judge
August 20, 2024
Page 3
Austin Lumbard, Mayor
cc: Orange County Grand Jury