PART 1: UPDATE ON ANIMAL SERVICES

Yolo Animal Shelter Improvements:
On February 27, 2024, the Yolo County Board of Supervisors allocated funding and approved a phased approach to address deferred maintenance and future space needs (Table 1):

Table 1: Shelter Improvements

Phase	Description	Status (details below table)
1	Complete deferred maintenance on animal shelter	Near completion
2A	Remodel the former Day Reporting Center into a community spay/neuter clinic at 2780 East Gibson Rd.	In progress
2B	Seek partnerships, possibly with UC Davis School of Veterinary Medicine (UCD-SVM), to provide shelter medicine services in a future modular building adjacent to the 2A building.	Paused
3	Plan a long-term solution for a new animal shelter.	Not started

Phase 1 (Deferred Maintenance) Accomplishments:

• Insulation and new HVAC system in Dog Building for improved comfort and sanitation
• Front gate and video surveillance upgrades for increased security of staff
• Tree removal to address sewer pipe damage caused by roots
• Roof resurfacing (in progress)
• Concrete improvements to meet ADA requirements for Clinic in A Can (to be completed in the summer of 2025)
• Electrical assessment and lighting replacement in Dog Building (beginning in May 2025)

Phase 2A (Remodel):  This phase was prioritized because access to low-cost community spay/neuter is often associated with reduced costs to the local animal shelter and because intact animals are more likely to run loose, create hazards for humans and other pets, ultimately resulting in animal population growth and a continued influx of animals to the shelter. The interior building improvements are complete, except for suitable ventilation in the surgery room (in progress) and construction of an access walkway to the main door of the clinic. Staff successfully secured grant funds for surgical equipment and related furnishings.  The next step is to release a Request for Qualifications (RFQ) to seek an organization to operate the clinic with tiered pricing (market rate, low, and no cost) for spay/neuter services. A program that is cost-neutral for the County will be imperative, and the clinic will likely depend on private grants and/or donations to offset costs. Staff expect to release the RFQ in June 2025 and the 2A Clinic to be operational by Fall 2025.

Phase 2B (Partnerships):  Potential opportunities for collaboration, including a clinical training and shelter medicine annex, were discussed with the UCD-SVM and the Koret Shelter Medicine Program (UCD-KSMP) but have not progressed into more definitive plans. Contact has been made in the last few weeks to kick-start this phase and conversations are expected to be re-initiated this summer.

Phase 3 (New Shelter):  The existing animal shelter building is antiquated. Recent improvements will extend its life and make it more comfortable and safer for shelter animals and County staff working there. However, it does not meet some industry standards and will, at some point, need to be replaced. There continues to be a strong community voice echoing the need for a facility with improved infrastructure, sanitation, animal comfort, and capacity for the expanding population in Yolo County. Due to the significant costs associated with such a project, efforts for this phase have not begun.  In light of current severe county budget constraints, any effort will depend heavily on the ability to secure community funding via donations and potential grants.  Given already stretched staff bandwidth, such efforts will rely heavily on community-based organization(s) to lead these efforts.

Replacing the “Big Fix Rig” with a “Clinic in a Can” (CIAC):
While the 2A project will provide a much-needed community spay/neuter clinic for owned animals, veterinary services for shelter animals are distinctly different and will remain on the shelter’s campus. It is inefficient and impractical to transport shelter animals to the community clinic, as well as unnecessary because the shelter will soon have a new shelter vet clinic (“Clinic in a Can” or CIAC), thanks to a $337,000 statewide shelter assistance grant (California for All Animals) and support from UCD-KSMP.

Veterinary staff currently use a small, antiquated vet clinic in a semi-trailer. Over 20 years old, the “Big Fix Rig” is inadequately sized for large dogs and pre-surgery kenneling, creating inefficiencies and challenging work conditions for staff and volunteers. The CIAC offers roughly the same square footage as the Big Fix Rig. However, the space is used much more efficiently with wall-mounted modern equipment and other space-saving features to increase medical capacity for shelter animals and provide recovery space for large dogs.

On April 4, 2025, the California Division of the State Architect approved plans for the construction of CIAC.  The CIAC will arrive fully equipped with medical equipment. The Big Fix Rig will be moved, a concrete pad poured, and the CIAC installed in Fall 2025. Staff are currently working to determine the best outcome for the Big Fix Rig. Ideally, donation of the facility to a non-profit to continue providing basic veterinary services to animals.

Other Recent Achievements:

• Awarded $363,450 to increase spay/neuter surgeries of shelter and owned animals by utilizing existing facilities on days when surgeries otherwise would not be performed and by outsourcing to private or low-cost community clinics (California for All Animals, January 2024). Surgical backlog, community animals, and pet owners experiencing homelessness or residing in zip codes of high intake were prioritized.
• Awarded $107,500 for Outreach, Access to Care (mobile preventative care services and animal transport), and surgical supplies and equipment for the new community spay/neuter clinic (California for All Animals, March 2025). Pet owners in underserved communities and owned animals at highest risk were prioritized.
• Received $7,300 in funding from Friends of Yolo County Animal Services (FYCAS) and volunteer support to improve the dog exercise areas by installing artificial turfgrass and taller fencing.
• Increased revenue by $20,000 and process efficiency in the first contract year with DocuPet, an online animal licensing service.
• Established a permanent veterinary team for improved spay/neuter and medical treatments, cost efficiency, and continuity of service.
• Offered numerous off-site events in the cities of Woodland, Davis, West Sacramento, and Winters, and in the unincorporated communities of Esparto and Yolo, to promote the shelter’s adoptable cats and dogs, volunteer opportunities, and ways to donate. Volunteers assist with adoption showings and often organize these events.
• Developed first website dedicated to YCAS: yoloshelter.org (Go-Live date, planned for May 20th)

Many of these accomplishments could not have been achieved without the assistance of the volunteers and non-profit partners. Attachment A briefly describes the volunteer and non-profit resources and contributions.

Additionally, staff recognize the need to make improvements with public donations, which are currently deposited into an account for general Animal Services operational uses. Community members have expressed interest in supporting specific initiatives, such as a future new shelter, or sponsoring adoption costs, rather than donating for general purposes. To address this, staff is requesting the Board of Supervisors to delegate authority to the Director of Animal Services to accept restricted and unrestricted donations in alignment with the County’s Donations Acceptance Policy and the established goals and objectives of the Animal Services Division. See Attachment B for more details.

Resource Gaps
On December 6, 2022, on staff’s recommendation, the Board directed the County Administrator’s Office (CAO) to transition Yolo County Animal Services (YCAS) from the Sheriff's Office to the CAO to address operational concerns and to strengthen key relationships before determining a permanent placement for the division. The Board of Supervisors approved the transition of Animal Services to the Department of Community Services (DCS) on January 23, 2024.

This transition has renewed focus on Animal Services operations and opportunities but has also created new challenges that have been identified over the last year with regard to support resources. This has resulted in the need to shore up administrative support, as well as secure agreements with the Sheriff’s Office for functional supports that were not previously coordinated at the time of initial transition to DCS. Discussions are under way with the CAO and Sheriff’s Office to secure these supports. (see Resource Gaps, Attachment C)

Cost Concerns:
YCAS Funding and Revenue Structure

Each of the cities and UC Davis pay a share of costs for animal services according to an established Agreement. YCAS and department fiscal staff meet monthly with the contracted agencies on service levels, concerns, and cost charges, which are billed quarterly. While the contracted jurisdictions pay for a share of the cost of YCAS, the contracted parties do not have the authority to make budgetary, staffing, or operational decisions; these decisions remain solely with the County.

Some partner jurisdictions have expressed concern regarding continued cost increases and the addition of new costs (e.g. new staffing) without first consulting the contracted members. While some costs are unforeseen, staff believe these concerns can be addressed with improved communication, and possibly by revising or amending the Agreement to clarify how new costs or staffing needs should be addressed, with an eye towards greater collaboration and communication. The current agreement will expire at the end of FY26.

Potential for Outsourcing Specific Services

Staff were requested to evaluate the potential for outsourcing certain services, whether as part of a future JPA or in the current model. Outsourcing services may be seen as one way to reduce costs. Currently, the following services are outsourced:

• Emergency Veterinary Care
• Online Pet Licensing
• Marketing and Communications
• Fostering and Rescue Services (through volunteers)
• Online adoption appointment scheduling, website resources (through local non-profit)

There may be other opportunities for outsourcing. However, in most cases, the County should first consider the costs, benefits, and impact on existing systems and staffing. Opportunities and considerations for outsourcing are provided in Table 3:

Table 3

Opportunity	Considerations
Veterinary Services	For several years, UCD-SVM was contracted for on-site Shelter Medicine and after-hours Emergency Care. However, due to growing community needs and differences in program goals, the contract for the Shelter Medicine portion ended while use of Emergency Care continues for after-hours and holiday closures.
Fundraising Coordinator	Hiring a fundraising coordinator would be costly, but focused efforts towards fundraising could yield positive outcomes; potential benefits and alternatives should be explored before moving forward.  Community organization(s) may also be positioned to take the lead on such efforts.
Shelter Operations	Outsourcing shelter operations was explored on June 30, 2014, when Yolo Local Agency Formation Commission (LAFCo) issued a Request for Proposals (RFP) to provide “(1) animal sheltering and adoption services; and/or (2) field officer services countywide.” No satisfactory or viable proposals were received. Staff recall there was interest with one non-profit (Yolo SPCA). However, there may have been a lack of clarity of operational expenses, which may have represented a barrier to a successful submittal. Because YCAS Shelter and Field staff collaborate daily, outsourcing will introduce operational inefficiencies. In another jurisdiction where shelter services are outsourced, there is already another shelter operated by a private entity. This is not the case in Yolo County, where a contractor would need to be brought in to operate the existing shelter. The County would need to explore the costs and expectations of the contractor for building maintenance and upkeep.
Field Operations	Due to the nature of these duties in a highly regulated environment, it is unlikely that a suitable resource will be found, other than city code enforcement or police departments providing these services internal to their jurisdiction.

PART 2: GOVERNANCE
Overview

YCAS is operated under the broad governance of the Yolo County Board of Supervisors. The program sits within the DCS, and the program is managed by the Director of Animal Services, reporting to the Director of DCS.

Background: Exploration of Alternative Governance Models

In 2010, the cities and County adopted a resolution supporting the exploration of shared service opportunities with local agencies in Yolo County. Animal Services became a priority focus due to ongoing cost concerns with the current structure.

In 2013, Yolo LAFCo commissioned UCD-KSMP to review the potential of a new model for the provision of animal services (Link: LAFCo Animal Governance, 2013, “Governance Study”). Based on the Governance Study’s findings, UCD-KSMP recommended a JPA as the most likely alternative to existing County governance with the benefit of providing participating jurisdictions increased control over budget and operational decision-making. This Governance Study did not indicate alternative governance was a solution for immediate cost reductions.

The Governance Study identified three alternative models to the existing County governance, graphically represented in Attachment D: 

1. JPA:  Yolo County and the five contract agencies form a JPA (Joint Powers Agency), which is directly responsible for administering the Animal Services program, including hiring employees and providing animal services to the entire county.
2. JPA, which contracts with a non-profit (Model 2a) or for-profit organization (Model 2b) for services:  Yolo County and the five contract agencies form a JPA, which then contracts with a non-profit or for-profit organization to provide animal services to the entire county.
3. Hybrid Model: Yolo County and the five contract agencies form a JPA, which contracts with a non-profit (e.g., Yolo SPCA) for the provision of animal sheltering, and with a public agency (e.g., County) for the provision of field services (i.e., law enforcement, nuisance abatement, primary public health/rabies control aspects, animal cruelty investigations, licensing).

Formation of the YASPA JPA

For several years following the Governance Study, the contracted agencies and County discussed JPA formation. Ultimately, they decided to form a Planning JPA rather than an Operational JPA. The purpose of this body was to explore options and potentially develop an Operational JPA to take over the provision of Animal Services in the future. On February 25, 2020, Yolo County and the Cities of Davis, Winters, and Woodland formed YASPA JPA, and West Sacramento joined on January 23, 2024. The JPA Board includes a city council member and board member from each jurisdiction. UC Davis is not a participating agency on the YASPA JPA. The YASPA JPA meets semi-monthly.

Gauging Interest in an Operational JPA and Next Steps
At the April 16, 2025, YASPA JPA meeting, alternative governance through the creation of an Operational JPA was discussed, including the three models mentioned above. The YASPA JPA Board agreed that each member agency should gauge the interest of their governing body to further examine the merits of alternative governance structures, including that of an Operational JPA, or remain “status quo” under County Governance.

It was agreed that the Yolo County Board of Supervisors would be the first governing body to gauge interest. If the Board of Supervisors is interested in exploring options and costs, then each of the other Members will follow suit with a similar request from their councils. If all agencies agree, then the CAO will work with the various city managers to reach an agreeable methodology to prepare an analysis.

Staff are supportive of exploring the full range of governance models and the opportunities, constraints and costs of each and doing so in partnership with participating agencies.  The CAO’s office will take the lead on this effort, in consultation with Animal Services and partners.  The LAFCo governance report from 2013 may provide a useful starting place for this analysis.  However, other models may also be considered in this updated analysis, including a range of “hybrid” models, including, but not limited to those described above and other options, such as expanding the scope of the current Planning JPA to be more inclusive of policy, budgeting, and operations decisions under the current Animal Services structure.  All ideas and models will be considered, and the analysis will be presented to the Board of Supervisors and the respective agency councils for their consideration and feedback.  This effort will ideally result in a consensus on the most desirable governance structure.