HomeMy WebLinkAbout2026-07-07; City Council; 14; Internal Audit UpdateCA Review CKM
Meeting Date:
To:
From:
Staff Contact:
toufic.tabshouri@carlsbadca.gov, 442-637-3921
Laura Rocha, Deputy City Manager, Administrative Services
laura.rocha@carlsbadca.gov, 442-339-2415
Subject:
Districts:
Recommended Actions
1)Receive a report regarding the current Internal Audit activity; and
2)Adopt a resolution approving the Fiscal Year 2026-27 Internal Audit Plan.
Executive Summary
The city’s internal audit program examines city operations to ensure city resources are being
used efficiently and effectively. The city’s internal auditor prepares an annual plan that lists
audit projects. The internal audit plan for fiscal year 2025-26 was reviewed and approved by
the City Council on April 29, 2025. City Council Policy No. 89 requires the city’s internal auditor
to communicate progress on the annual audit plan along with the status of any open
recommendations or other follow-up activities from past audit engagements to the City
Manager and the City Council twice a year.
Reports on each audit are distributed to city management and the City Council as they are
completed during the year and are available to the public on the city’s internal audit webpage
(carlsbadca.gov/departments/internal-audits).
This report provides the City Council with:
•An update on the status of ongoing audit activities
•The proposed internal audit plan for fiscal year 2026-27
•The results of an internal audit of the police department’s Vice and Narcotics
Investigative Unit Buy Fund, which follows up on findings and recommendations of a
prior internal audit completed in August 2023
•The results of an internal audit of the police department’s property and evidence
storage needs
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Explanation & Analysis
Internal audit update
The Internal Audit Manager has completed two of the four audits listed in the FY 2025-26 audit
plan, as well as three other audits listed in past internal audit plans that were not started or
completed. An audit of information technology security is ongoing.
Internal audit engagements in FY 2025-26
Completed engagements
• A summary report of transient occupancy tax reviews. The city contracts with a public
accounting firm to conduct these reviews every year. The firm performed reviews of tax
returns for eleven businesses for FY 2020-21 through FY 2022-23 and eight businesses in
2023-24. The Internal Audit Manager oversees these reviews and compiles a report
summarizing their results. The audit report was presented to the City Council on Oct. 21,
2025.
• An internal audit of the city’s public liability claims handling function. The audit report
was presented to the City Council on Oct. 21, 2025.
• An internal audit of the city’s procurement function. This audit was included in the Fiscal
Year 2020-2021 Internal Audit Plan but not completed. The audit report was presented
to the City Council on Feb. 24, 2026.
• An internal audit of the Police Department’s Vice and Narcotics Investigative Unit Buy
Fund, which follows up on findings and recommendations of a prior internal audit
completed in fiscal year 2022-23.
• An internal audit of the Police Department’s property and evidence storage needs.
Engagements in-process
• Information technology security
• City overtime pay (pending management review)
• Transient occupancy tax revenue for FY 2024-25
Proposed internal audit plan for FY 2026-27
The city’s Internal Audit Manager performs independent and objective assurance services to
safeguard city resources and improve city operations. Such services may include internal audits
of any city department, division, function or program. The audit plan outlines the internal
audits and other engagements the Internal Audit Manager proposes to conduct during the fiscal
year. (An engagement could be a detailed audit of a major city program or a less
comprehensive review which examines certain specified aspects of city operations.)
The attached internal audit plan for FY 2026-27 includes information about why the audit
engagements were selected, possible audit objectives and the resources required. It includes
four engagements for the City Council’s consideration.
With City Council approval, the internal audit plan serves as the operating roadmap for the
city’s internal audit program. A resolution approving the plan is provided as Exhibit 1.
The internal audit plan for FY 2026-27 includes the following four engagements:
• Transient Occupancy Tax – Oversight
• Utilities – Wastewater Operations
• Library and Cultural Arts
• Worker’s Compensation
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At the conclusion of each engagement, the auditor issues a report summarizing the findings
and, if necessary, recommending corrective actions to city departments.
The proposed internal audit plan is provided as Attachment A to Exhibit 1.
Follow-up internal audit of the Police Department’s Vice and Narcotics Investigative Unit Buy
Fund
The Carlsbad Police Department’s Vice and Narcotics Investigative Unit is responsible for
targeting individuals involved in the use, distribution, sale, and proliferation of illegal drugs in
the community. The unit is also responsible for enforcing laws pertaining to gambling, liquor,
prostitution, and other illegal activities. The Buy Fund supports the unit’s activities and is
primarily used for drug purchases, flash money – cash displayed to establish the drug buyer's
credibility – and informant payments.
An internal audit of the Vice and Narcotics Investigative Unit Buy Fund was completed in fiscal
year 2022-23 and included four recommendations (Included in the staff report provided as
Exhibit 4). City Council Policy No. 89 authorizes the Internal Audit Division to follow up on prior
audit findings and recommendations and provide periodic follow-up reports summarizing the
status of corrective actions taken.
Like the original audit, this follow-up audit had two objectives:
1. To determine whether the Buy Fund’s operations adhered to city policies and
procedures
2. To assess whether Buy Fund policies and procedures provide effective internal
controls over assets
The audit had three findings:
1. Buy Fund operations adhere to city and departmental policies and procedures.
2. Typical cash controls are not practical for the Buy Fund, given the nature of the
investigative unit’s operations. Nonetheless, the risk of cash misappropriation is low,
the control environment is strong, and mitigating controls are present.
3. Previous audit recommendations were not implemented. The reasons for their lack
of implementation and the consequences are discussed in the audit report.
The audit made two recommendations:
• The first is that the Vice and Narcotics Investigative Unit’s supervisor should compile an
annual financial report on Buy Fund operations and forward it to the Finance
Department, the Internal Audit Manager and Police Department Management.
• The second recommendation is that the Police Department should amend its Policy 607,
Vice and Narcotics Investigative Unit-Buy Fund, to require at least one unannounced
cash count each fiscal year.
The Police Department has agreed to implement both recommendations.
The audit report is provided as Exhibit 2.
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Internal audit of the Police Department’s property and evidence storage needs
The property and evidence function is an essential component of the City of Carlsbad’s Police
Department. It is responsible for the custody, control, preservation and disposition of all items
that come into the Police Department’s possession in connection with criminal investigations or
arrests or for community safekeeping. The effectiveness of this function directly affects case
outcomes, legal compliance and the agency’s exposure to risk.
The audit had one objective: to evaluate the adequacy of storage space for the Property and
Evidence Unit.
This audit had two findings.
• The first finding was that existing property and evidence storage space is limited. The
amount of evidence being collected continues to increase. The Police Department has
been able to secure additional, temporary storage space to cope with this increase.
While most of the growth is unavoidable, a portion of it is attributable to firearms that
are being temporarily held and stored by the Police Department for gun owners with
pending legal matters.
• The second finding is that the planned space for the Property and Evidence Unit in the
city’s planned Orion Center will meet the storage needs of the Police Department.
The audit made two recommendations to mitigate the impact of firearms storage.
• To consider charging a monthly storage fee for firearms to defray some of the costs of
processing gun storage – namely, staff time
• To reassess offering firearms storage services to gun owners who do not reside within
the City of Carlsbad
The Police Department agreed with both recommendations and will begin charging $107 per
customer in FY 2026-27, as indicated in the Master Fee Schedule update approved by the City
Council on June 16, 2026. The Police Department will evaluate the need for additional fees
when multiple weapons are stored.
Beginning July 1, 2026, the Police Department will no longer accept weapons from non-
residents for long-term storage and instead recommend other locations for non-residents.
Once the Orion Center is built, the department can consider opening storage to a greater
population.
The audit report is provided as Exhibit 3.
Fiscal Analysis
There is no immediate fiscal impact to approving the Fiscal Year 2026-27 Internal Audit Plan.
Next Steps
The city’s Internal Audit Manager will begin conducting the audits listed in the Fiscal Year 2026-
27 Internal Audit Plan.
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Environmental Evaluation
The proposed action is not a “project” as defined by California Environmental Quality Act, or
CEQA, Section 21065 and CEQA Guidelines Section 15378(b)(5) and does not require
environmental review under CEQA Guidelines Sections 15060(c)(3) and 15061(b)(3) because
the proposed action to receive a report regarding the current Internal Audit activity and adopt a
resolution approving the Fiscal Year 2026-27 Internal Audit Plan is an organizational or
administrative government activity that does not involve any commitment to any specific
project which may result in a potentially significant physical impact on the environment. Any
subsequent action or direction stemming from the proposed action may require preparation of
an environmental document in accordance with CEQA or the CEQA Guidelines.
Exhibits
1. City Council resolution
2. Follow-up internal audit report on the Police Department’s Vice and Narcotics Investigative
Unit Buy Fund
3. Internal audit report on the Police Department’s property and evidence storage needs
4. Staff report from Aug. 29, 2023, City Council Meeting (on file in the Office of the City Clerk)
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Exhibit 1 RESOLUTION NO. 2026-150 .
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF CARLSBAD,
CALIFORNIA, APPROVING THE FISCAL YEAR 2026-27 INTERNAL AUDIT PLAN
WHEREAS, the City Council of the City of Carlsbad, California, has determined that the Internal
Audit Manager performs independent and objective assurance services to safeguard city resources and
improve city operations; and
WHEREAS, the services provided may include internal audits of any city department, division,
function or program; and
WHEREAS, as required by City Council Policy No. 89, the Internal Audit Manager has presented
a Fiscal Year 2026-27 Internal Audit Plan (Attachment A) for the City Council’s review and approval; and
WHEREAS, the purpose of the Internal Audit Plan is to outline internal audits and other value-
added engagements the Internal Audit Manager proposes to conduct during the fiscal year; and
WHEREAS, the Fiscal Year 2026-27 Internal Audit Plan includes information about the basis for
audit engagement selection, preliminary objectives and the consideration of resources; and
WHEREAS, once approved, the Fiscal Year 2026-27 Internal Audit Plan will serve as the
operating roadmap for the city’s Internal Audit Manager.
NOW, THEREFORE, BE IT RESOLVED by the City Council of the City of Carlsbad, California, as
follows:
1.That the above recitations are true and correct.
2. That the proposed action is not a “project” as defined by California Environmental
Quality Act, or CEQA, Section 21065 and CEQA Guidelines Section 15378(b)(5) and does
not require environmental review under CEQA Guidelines Sections 15060(c)(3)
and 15061(b)(3) because the proposed action to adopt the Fiscal Year 2026-27 Internal
Audit Plan is an organizational or administrative government activity that does not
involve any commitment to any specific project which may result in a potentially
significant physical impact on the environment. Any subsequent action or direction
stemming from the proposed action may require preparation of an environmental
document in accordance with CEQA or the CEQA Guidelines.
3.That the City Council approves the Fiscal Year 2026-27 Internal Audit Plan in Attachment
A.
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PASSED, APPROVED AND ADOPTED at a Regular Meeting of the City Council of the City
of Carlsbad on the 7th day of July, 2026, by the following vote, to wit:
AYES: Blackburn, Bhat-Patel, Acosta, Burkholder, Shin.
NAYS: None.
ABSTAIN: None.
ABSENT: None.
______________________________________
KEITH BLACKBURN, Mayor
______________________________________
SHERRY FREISINGER, City Clerk
(SEAL)
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Attachment A
CITY OF CARLSBAD
Internal Audit Plan for Fiscal Year 2026-27
Overview
City Council Policy 89, Internal Audit Framework, requires the Internal Audit Division to prepare
an annual internal audit plan and to submit it to the City Manager and City Council for review
and approval. The plan includes a listing of audits scheduled for FY 2026-27 and other work
performed by the Internal Audit Division. The previous fiscal year’s plan involved a detailed risk
assessment which yielded more potential audit topics than can be completed in one year with
current audit resources. Consequently, another risk assessment was not needed this year.
Work for FY 2026-27 includes three performance audits, oversight of the transit occupancy tax
audit and administration of the Fraud, Waste and Abuse Hotline.
This report provides an overview of the risk assessment and audit selection processes, the
resources (time) available for the Internal Audit Division, and budget estimates for the
proposed audits and other work.
In keeping with City Council Policy 89, the plan is flexible and includes unallocated audit hours
to accommodate any subsequent requests for work from the City Manager or City Council. If
such work is substantial, the plan can be amended, and the City Council will be informed of any
impact on audit schedules.
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How areas are selected for audit
•Is the area or risk event within the competency of Internal Audit and the jurisdiction of the City of Carlsbad?
1. Is the area amenable to audit?
•Are there large, adverse potential impacts on the city's finances, or on the health, safety, security and welfare of our residents?
2. Evaluate inherent risks
•Mitigating factors: Stability of a function; strong internal controls; favorable, recent prior audit findings, other oversight.
•Exacerbating factors:Significant economic, regulatory, or technological changes; high staff turnover; City Council and management concerns.
3. Consider additional factors
•Research issues and audit findings at similar municipalities
•Discuss potential audit areas with Deputy City Managers, Chiefs, Department Directors and staff.
4. Identify potential audit areas
•Solicit additional mangement and leadership feedback.
•Consider audit resources and schedules constraints.
•Obtain City Manger and City Council approval.
5. Develop an annual audit plan
medium
Communicate
risks, if
changes
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Considerations in audit selection
• Auditable areas
Although some areas may be exposed to various risks, they may not be auditable if they fall
outside the jurisdiction of a city and involve state or federal activities or international
events. For example, there is little a city can do to mitigate the risk of an oil spill in the
ocean, even though it may have to contend with a prolonged and costly beach cleanup.
• Inherent risk
Inherent risk is the natural level of risk that exists within a place or activity. Risk can be
assigned to departments, programs and processes. For example, a municipal skate park
carries an inherent risk of injury to skaters.
Factors that impact the assessed level of risk include the size of an area, measured by
budgeted personnel expenses, operational costs and the number of employees employed
within it; the nature of the work and potential impact on public health, safety and security;
and the prospect of a large financial loss (whether acute or long-term).
• Mitigating or exacerbating factors
Some activities and events can modify the level of risk. Continuing with the prior example
about the skate park, the frequency and severity of injuries can be reduced by requiring
skaters to wear protective helmets, elbow pads and knee guards.
In general, significant economic, staffing, regulatory, or technological changes in an area
tend to raise the level of risk because breakdowns are more likely to occur during
transitional periods.
• Identify potential audit areas
Potential audit areas are identified by reviewing City Council meeting agendas, prior
internal audit reports at the City of Carlsbad and other government agencies and soliciting
input from the City Manager, deputy city managers and department directors and City
Council members.
• Audit resources
One full-time auditor can provide approximately 1,500 audit hours annually, with other
time allocated to administrative work and required continuing professional education.
Budgeting for performance audits entails informed guesswork, as each audit subject differs
from previous ones. In contrast, budgeting for annual financial and compliance audits tend
to be accurate because they are based on past budgets and can build on previous work.
After their initial creation, financial and compliance audit plans and procedures require
minimal modification – except when there are significant changes in regulations or systems.
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Proposed internal audits for fiscal year 2026-27
Category Hours
Transit Occupancy Tax – Oversight 160
Utilities – Wastewater Operations 400
Library and Cultural Arts 400
Worker’s Compensation 320
220
Total audit hours 1,500
The audit budgets are built by adding weekly estimates of various audit phases: planning and
research, evidence gathering, analysis, report writing and quality control and review. The audits
in this plan are estimated to take 8 to 12 weeks.
Transient Occupancy Tax
The city contracts with a public accounting firm to audit a sample of businesses every year to
ensure that hotels and other businesses are properly accounting for and remitting transit
occupancy taxes. The internal auditor provides oversight of the contractor and facilitates their
work.
The three performance audits listed met the selection threshold of $5 million or 10 full-time
equivalent personnel established in the risk assessment. A further discussion of auditable topics
and issues within these areas is presented below.
Utilities – Wastewater Operations
Audits of wastewater and sewer operations across California municipalities generally show that
agencies comply with regulatory requirements such as maintaining Sewer System Management
Plans, but that they face ongoing challenges in the management of aging infrastructure.
• Wastewater systems consist of wastewater treatment plants and hundreds of miles of
pipelines that require significant long-term investment. However, condition assessments
and capital planning are frequently incomplete or not fully aligned with actual system risk.
• The prevention of sewer system overflows remains the primary indicator of system
performance and regulatory compliance. But even well-managed systems experience
overflows due to root intrusion, grease buildup, and wet-weather inflow, underscoring the
importance of robust preventive maintenance programs and accurate, data-driven
monitoring.
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• Audits frequently identify gaps in maintenance practices, data quality, and the use of
technology, all of which can limit an agency’s ability to proactively manage risk.
• Finally, audits highlight broader governance and operational issues, including delays in
capital project delivery, underutilization of budgets, and the need for clearer policies and
procedures.
Library and Cultural Arts
Audits of libraries and the programs that they oversee often encompass administrative matters
such as governance, best practices, policies and procedures, resource levels (i.e. funding and
staffing), resource utilization (operating hours and scheduling), as well as community
engagement. Safety and security, performance measures, and facility conditions are other
areas that may be covered. More technical audit topics include digital services and technology
usage, cybersecurity and patron privacy, collection management, and analytics.
Worker’s Compensation
Audits of workers’ compensation programs in California find that errors in claims handling are
common and can have significant financial and legal consequences. Workers’ compensation
systems are inherently prone to operational errors due to regulatory complexity, high claim
volumes, and reliance on third-party administrators. Missing statutory deadlines can result in
penalties and corrective actions. Even large, well-resourced agencies can struggle with the
complexity of claims administration. Late payments, improper benefit calculations, and
inconsistent adherence to statutory requirements are common findings.
Pooled risk authorities conduct detailed file reviews of claims and score performance against
key indicators, demonstrating that compliance monitoring remains necessary even in mature
programs.
Recommendations include strengthening internal controls, better monitoring of third-party
administrators, and improved financial reporting to ensure that costs are properly managed
and liabilities are accurately estimated. Staff turnover, inadequate training, and lax oversight
can contribute to uneven performance across departments or claim handlers, further increasing
the risk of noncompliance and cost escalation.
Using workers’ compensation claims data as a feedback loop for risk management is one of the
areas where audits find unrealized value. Many agencies are effective at processing claims but
do not analyze claims data to prevent future injuries. This data can reveal patterns such as
recurring injuries in specific job classifications (e.g., maintenance workers, police, fire), common
injury types (strains, slips, repetitive motion), or high-risk locations and tasks. Yet audits
frequently reveal that this information is either underutilized or siloed within third-party
administrators, with limited integration into broader safety or operational decision-making.
By identifying trends—such as frequent back injuries tied to manual lifting, or slip-and-fall
incidents concentrated in certain facilities—organizations can implement targeted
interventions: ergonomic improvements, revised work procedures, enhanced training, or
facility upgrades. Difficulties in proactively managing worker’s compensation programs result
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from poor data quality, inconsistent coding of injury types and causes, lack of analytical tools,
and limited staff capacity to perform trend analysis. Additionally, when claims administration is
outsourced, municipalities may not receive timely or sufficiently detailed data to support
meaningful analysis.
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Exhibit 2
Follow-Up Internal Audit of the Police
Department’s Vice Narcotics Investigative
Unit Buy Fund
Toufic Tabshouri
Internal Audit Manager
Report 2026-02
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TABLE OF CONTENTS
I N T R O D U C T I O N
Background ..........................................................................................................3
Methodology ....................................................................................................... 5
Scope & Objectives ............................................................................................. 5
Results Summary................................................................................................. 6
FINDING 1: BUY FUND OPERATIONS ADHERE TO POLICIES AND PROCEDURES
FINDING 2: TYPICAL CASH CONTROLS ARE IMPRACTICAL FOR THE BUY FUND
FINDING 3: MOST PREVIOUS AUDIT RECOMMENDATIONS WERE NOT IMPLEMENTED
RECOMMENDATIONS AND MANAGEMENT’S RESPONSE………………………..……..11
2 Internal Audit of the Vice Narcotics Investigative Unit Buy Fund
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3 Internal Audit of the Vice Narcotics Investigative Unit Buy
INTRODUCTION
Background
The Carlsbad Police Department’s Vice Narcotics Investigative Unit (VNIU) is
responsible for targeting individuals involved in the use, distribution, sale, and
proliferation of illegal drugs in the community. VNIU is also responsible for enforcing
laws pertaining to gambling, liquor, prostitution, and other illegal activities. The Buy
Fund supports VNIU’s activities and is primarily used for drug purchases, flash
money, and informant payments.
VNIU is overseen by a police lieutenant, and it is staffed by a supervising sergeant
(VNIU supervisor), three detectives and two task force officers. The Buy Fund is
governed by the following policies:
• Carlsbad Police Department Policy 607, Vice Narcotics Investigative Unit-Buy
Fund, provides guidance on the purpose and scope of the Buy Fund, establishes
documentation requirements, budgetary levels and audit requirements.
• Carlsbad Police Department Policy 608.5, Narcotics Informant Payment
Procedures, provides guidance for payments to confidential informants, which is
a main use of the Buy Fund.
• City of Carlsbad Administrative Order No. 85, Cash Funds Policy, establishes the
city’s cash handling standards.
The Buy Fund receives an annual allocation from the city’s General Fund – currently
$20,000. To process disbursements in a timely manner, the Buy Fund maintains a
positive cash fund balance, and it is replenished periodically from the allocated
budget amount. Buy Fund operations consist of replenishment and disbursement
activities. The following table lists the most recent replenishments of the Buy Fund,
which have averaged $10,000 in the past two fiscal years.
Date Amount
12/22/2023 $7,000
4/18/2024 $3,000
11/20/2024 $7,000
4/10/2025 $3,000
7/17/2025 $9,000
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4 Internal Audit of the Vice Narcotics Investigative Unit Buy
Buy Fund Replenishment
Upon a request from the VNIU Supervisor, the Finance Department issues a check
made to “petty cash.” The check is delivered by a Senior Accountant to the VNIU
Supervisor at the city’s bank, where it is cashed. A Finance Department form is
completed by the Senior Accountant and the VNIU Supervisor documenting the
transfer of funds. Afterwards, the VNIU Supervisor transports the cash to VNIU’s
work area and secures it in a safe. If there is delay between the date the check is
issued and the meeting at the bank, the check is secured by Accounts Payable until a
meeting time is arranged. This process is somewhat elaborate, but it does mitigate
against the risk of check fraud, as a check made to “petty cash” can be readily cashed
by anyone.
Buy Fund Disbursements
For each disbursement, VNIU personnel complete a Carlsbad Police Department
VNIU Investigative Unit Buy Fund disbursement form. The disbursement form
documents transaction details listed below.
Any available invoices, receipts or other supporting documents are attached to the
form and filed afterwards. The following table shows the total monthly
disbursement amounts from the Buy Fund in fiscal year 2024-25, along with
replenishments from the General Fund and the running fund balance.
Disbursements are recorded individually and classified into four main categories:
payments for confidential informants, controlled buys, miscellaneous expenses, and
vehicle expenses. The following table is a summary of monthly transactions totals
for the VNIU Buy Fund in fiscal year 2024-25.
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5 Internal Audit of the Vice Narcotics Investigative Unit Buy
Month Total
Disbursements from the Fund Balance
$5,038.89
July 2024 ($60.00) $4,978.89
August 2024 ($60.00) $4,918.89
September 2024 ($622.00) $4,296.89
October 2024 ($910.61) $3,386.28
November 2024 ($1,096.00) $7,000.00 $9,290.28
December 2024 ($253.70) $9,036.58
January 2025 ($801.00) $8,235.58
February 2025 ($1,494.95) $6,740.63
March 2025 ($3,673.19) $3,067.44
April 2025 ($2,362.00) $3,000.00 $3,705.44
May 2025 ($1,216.54) $2,488.90
June 2025 ($648.00) $1,840.90
Total
Disbursements ($13,197.99)
Scope & Objectives
An internal audit of the VNIU Buy Fund was previously conducted in fiscal year 2022-
23 and included four recommendations. City Council Policy No. 89 authorizes the
Internal Audit Division to follow up on prior audit findings and recommendations
and provide periodic follow-up reports summarizing the status of corrective actions
taken.
Like the original audit, this follow-up audit had two objectives:
1. To determine whether the Buy Fund’s operations adhered to City policies and
procedures.
2. To assess whether Buy Fund policies and procedures provide effective
internal controls over assets.
Methodology
To achieve the audit objectives, the following procedures were performed:
• Reviewed the fiscal year 2022-23 Buy Fund audit report.
• Interviewed the sergeant in charge of the Police Department’s Vice Narcotics
Investigative Unit.
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6 Internal Audit of the Vice Narcotics Investigative Unit Buy
• Reviewed Buy Fund transactions and supporting documentation.
• Observed the physical controls in place to safeguard Buy Fund assets.
Results Summary
The audit had three findings. The first finding was that Buy Fund operations adhere
to city and departmental policies and procedures. The second finding was that typical
cash controls are not practical for the VNIU Buy Fund, given the nature of VNIU
operations. Nonetheless, the risk of cash misappropriation is low, the control
environment is strong, and mitigating controls are present. The third finding was
that previous audit recommendations were not implemented. The reasons and
consequences of their lack of implementation are discussed.
Finding 1: Buy Fund Operations Adhere to Policies and Procedures
Buy Fund recordkeeping and documentation were reviewed to determine the degree
to which the program is adhering to established policies and procedures. The
documentation was found to be complete, with minor omissions due to the nature of
VNIU operations: It is not always possible to obtain receipts when doing undercover
work.
The previous audit of the VNIU Buy Fund identified an issue with disbursements where
the VNIU Supervisor approved and disbursed funds without a second approver
reviewing the transaction prior to the disbursement of cash. The audit report noted that
while Policy 607 calls for the preparation of a monthly summary report which is
reviewed and approved by the Investigations Commander, this procedure takes place at
month end, well after the cash disbursements are completed. It also noted that
Administrative Order No. 85, which establishes the city’s cash handling standards, states
that fund (cash) custodians are not permitted to both approve and disburse funds.
The VNIU Supervisor and the Lieutenant overseeing VNIU acknowledged that
obtaining a second signature at the time of disbursement remains a challenge, given
the limited number of staff in VNIU and the nature of its work, which is often
outside of normal business hours. For reasons explained in Finding 2, this
discrepancy presents very little risk of asset misappropriation.
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Finding 2: Typical Cash Controls are Impractical
Ideally, any cash handling function will be governed by a strong system of internal
controls. Like precious metals and jewelry, cash is very susceptible to
misappropriation because it is portable, concealable, high value, and difficult to
trace. Properly safeguarding cash is a well-known topic in the accounting and
auditing fields, as well as in law enforcement.
In situations where there are no constraints on human resources, cash can be
safeguarded through a segregation of duties among the employees handling it.
Activities such as receiving cash, recordkeeping, authorizing cash disbursements,
and reviewing bank statements and reconciling them with accounting records
should be assigned to different individuals. Doing so would go a long way in
preventing a single person from stealing cash and then concealing the theft.
However, in many small organizations or in specialized work environments such as
VNIU, human resources are constrained, and it is not possible to implement a
textbook approach to segregation of duties. The approach that is then employed is
to implement mitigating controls. A periodic cash count is an example of mitigating
control.
Before proceeding with designing and implementing internal controls, it is better to
conduct a risk assessment of the cash handling function or area. A risk assessment is
a common approach to informed decision making in many work domains, including
auditing and insurance. In the insurance industry and for certain types of products,
such as vehicle accident damage, it is possible to quantify the risk of loss with a high
degree of accuracy because large amounts of historical data are available, and the
types of claims are similar. Risk is expressed as a product of the likelihood of a bad
outcome in a period of time multiplied by the consequence of the bad outcome.
Employing this way of thinking to the VNIU, potential risks may be:
• VNIU disbursements are being made for unrelated activities such as buying
equipment and paying for lunches.
• One or more people in VNIU are taking VNIU Buy Fund monies for personal use.
This audit found that the likelihood of theft or misuse of VNIU funds is low. This
conclusion is based on a few considerations. The first is that throughout this audit, it
was clear that the responsible officials in the police department took their duties
seriously. No person interviewed displayed a flippant or lackadaisical attitude
towards the issue of safeguarding cash. And while factors such as “tone” and
“attitude” cannot be readily quantified, they are perceptible and they are
recognized as valid in the auditing and fraud prevention literature. One specific
indicator was that the Lieutenant overseeing VNIU expressed his leeriness of cash on
several occasions, viewing cash as liability for police officers, as any irregularity in
cash counts will result in scrutiny and potential suspicion of officers.
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Furthermore, the controls in place are adequate to prevent misuse of funds by
officers. The VNIU Supervisor tracks the disbursements in monthly spreadsheets that
are then reviewed and signed by a supervisor. The volume of transactions is very
low, so unusual requests for disbursement or patterns will likely be detected.
Beyond the existing controls, both the VNIU Supervisor and the Lieutenant
overseeing VNIU have taken initiative in trying to improve the controls, including
upgrading the safe and installing a cashiering terminal instead of the ledger used.
These two suggestions were pursued but found not to be feasible at this point.
Another consideration in assessing the risk entails a cost-benefit analysis for a
person potentially considering misappropriating VNIU funds. Only one person in the
Carlsbad Police Department has access to VNIU funds, and this is the VNIU
Supervisor. While that means duties are not segregated, it also means that any
discrepancy will result in attention being focused on one single person. It is unlikely
that a longtime police officer will be tempted to misappropriate funds and risk his or
her employment and potential criminal charges.
Finally, as far as the physical aspect of safeguarding cash, the Buy Fund monies are
kept in a safe in a secured office within the Police Department headquarters. There
are three layers of physical barriers preventing unauthorized access. Given this level
of security, the risk of unauthorized access is very low.
Recommendation 1
The VNIU Supervisor should compile an annual financial report on Buy Fund operations.
This report would constitute an enhancement of existing record keeping activities that
the VNIU Supervisor currently conducts. The report should be sent to the Finance
Department, the Internal Audit Manager, as well as Police Department Management.
Recommendation 2
The Police Department should amend Policy 607, Vice Narcotics Investigative Unit-Buy
Fund, to require at least one unannounced cash count each fiscal year. This cash count
may be conducted by the Internal Audit Manager, a Finance Department manager, or a
senior police department official who does not report to anyone overseeing VNIU.
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Finding 3: Previous Audit Recommendations Were Not Implemented
The audit of the Buy Fund in fiscal year 2022-23 made four recommendations. The
first two recommendations were directed at the VNIU, and two others required
collaboration between VNIU and Finance Department staff. Management agreed to
all the recommendations, which are reprinted below.
Recommendation 1: To adopt cash handling best practices and comply with
Administrative Order No. 85, Section 2.8, the VNIU management should
identify a separate authorized approver as soon as practical. This second staff
member shall serve as the approving authority for all VNIU cash
disbursements by reviewing and approving cash transactions prior to
disbursement. This must be someone other than the VNIU Supervisor as that
role serves as the disbursing authority and cash custodian for the Buy Fund.
Recommendation 2: As required for change funds in Administrative Order
No. 85, Section 2.3.6, it is recommended that the VNIU Supervisor and
Investigations Commander attend annual cash handling training given their
roles in overseeing the Buy Fund cash balances. Historically, the Finance
Department has provided such training. The County of San Diego also has an
annual cash handling training course available to public agencies. Lastly, there
also are commercial continuing professional education (CPE) offerings online
that provide training associated with widely accepted cash handling
standards.
Recommendation 3: Given the material balance and activity of the Buy Fund
and the unique nature of VNIU operations, it is recommended that VNIU staff
collaborate with the Finance Department to develop a Buy Fund cash handling
procedure. The procedure should incorporate guidelines from Policy 607 and
cash handling standards referenced in Administrative Order No. 85. The
purpose of the procedure is to provide detailed cash handling guidance to VNIU
staff. Adherence to these procedures will contribute to sound internal controls
and will help safeguard Buy Fund (cash) assets.
Administrative Order No. 85, Cash Funds Policy, Section 2.14 authorizes the
development of department specific cash handling policies so long as they do
not contradict or supersede those in the administrative order. This enables
staff to develop stand-alone, local procedures that adhere to citywide cash
handling standards while addressing unique Buy Funds operations.
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10 Internal Audit of the Vice Narcotics Investigative Unit Buy
Recommendation 4: It is recommended that the Finance Department
evaluate the feasibility and cost effectiveness of utilizing an armored
transport service to deliver the cash replenishment directly to the VNIU
department at Police Headquarters. This represents a best practice, and the
service is often coordinated directly by large banks. If armored transport is
not utilized, it is recommended that Accounts Payable secure the petty cash
check until just prior to the Finance Department staff meeting the VNIU
Supervisor at the bank. This will serve to reduce the risk the check is
unsecured for periods of time prior to being cashed at the bank.
Once the new process is finalized, the Finance Department and VNIU staff
should take steps to ensure the relevant policies and procedures are updated
to reflect the new process.
While it was not possible to ascertain why these recommendations were not
implemented, it is likely that a yearlong vacancy in the Internal Audit Manager
position (the sole internal audit position within the city), the impracticality of some
of the recommendations, and the lack of a single designated person in the Finance
Department to follow up on these recommendations led to this lapse.
The necessity for a robust audit recommendation follow-up process to track the
implementation status of recommendations is broader than this particular audit and
will be addressed by the Internal Audit Manager.
One issue that was noted in the previous audit of the VNIU Buy Fund was that nearly
half of the annual Buy Fund balance was disbursed to pay for supplies or services,
which other departments would purchase with a city credit card or check instead.
The audit noted that Policy 607 allows for the purchase of supplies with cash from
the Buy Fund, but that using a city credit card or issuing a check against a purchase
order would reduce the overall risk represented by the Buy Fund, as the VNIU could
carry a lower cash balance.
This audit identified only one transaction paid from the Buy Fund that did not directly
pertain to VNIU operations. This transaction was in the amount of $3,000, and it was
for an annual subscription fee for a software application that supports police
undercover investigations. The VNIU Supervisor stated that the police department has
focused on transitioning procurements that were being paid from the Buy Fund to
other channels such as the Information Technology Department.
At this point, there is little benefit to be gained in implementing the previous audit’s
recommendations, given this audit’s assessment of the control environment within
VNIU and the control activities in place. Furthermore, securing an armored transport
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service to deliver cash to the VNIU once or twice a year is costly and would result in
a marginal benefit to the city in terms of risk reduction.
MANAGEMENT RESPONSE TO RECOMMENDATIONS
Recommendation 1
The VNIU Supervisor should compile an annual financial report on Buy Fund operations.
This report would constitute an enhancement of existing record keeping activities that
VNIU currently conducts. The report should be sent to the Finance Department, the
Internal Audit Manager, as well as Police Department Management.
Management Response
The department will prepare an annual report at the end of each calendar year on Buy
Fund Operations. The report will be completed by the VNIU Supervisor and reviewed by
the VNIU Manager prior to being sent to the Support Operations Captain, Chief of
Police, Finance Department and Internal Audit Manager. The report will be completed
by January 21st each year.
Recommendation 2
The Police Department should amend Policy 607, Vice Narcotics Investigative Unit-Buy
Fund, to require at least one unannounced cash count each fiscal year. This cash count
may be conducted by the Internal Audit Manager, a Finance Department manager, or a
senior police department official who does report to anyone overseeing VNIU.
Management Response
The Police Department will amend Policy 607, Vice Narcotics Investigative Unit-Buy
Fund, to require at least one unannounced cash count each fiscal year. This will be
coordinated by the Professional Standards Lieutenant who coordinates all internal
audits within the police department and will communicate with the Internal Audit
Manager and the Finance Department manager on who will be conducting the
unannounced audit.
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Exhibit 3
Internal Audit of the Police Department’s
Property and Evidence Storage Needs
Toufic Tabshouri
Internal Audit Manager
Report 2026-03
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2 Internal Audit of the Police Department’s Property and Evidence Storage Needs
TABLE OF CONTENTS
I N T R O D U C T I O N
Background………………………………………………………………………………………………3
Scope and Objectives……………………………………………………………………………….8
Methodology……………………………………………………………………………………………8
Results Summary……………………………………………………………………………………..8
FINDING 1: AVAILABLE PROPERTY AND EVIDENCE STORAGE IS LIMITED…10
Recommendation 1…………………………………………………………………………………15
Recommendation 2…………………………………………………………………………………15
FINDING 2: PLANNED SPACE FOR THE PROPERTY AND EVIDENCE UNIT IN
THE ORION CENTER MEETS ANTICIPATED STORAGE NEEDS……………………..17
Management’s Response to the Recommendations………………………………..29
Conclusion……………………………………………………………………………………………….29
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3 Internal Audit of the Police Department’s Property and Evidence Storage Needs
INTRODUCTION
Background
The property and evidence function is an essential component of the City of Carlsbad’s Police
Department. Although its activities are not as visible to the public compared to other police
functions such as patrol or traffic enforcement, it plays a central role in supporting the
administration of justice. This function is responsible for the custody, control, preservation, and
disposition of items that come into the Police Department’s possession in connection with
criminal investigations, arrests, or community safekeeping. The effectiveness of this function
directly affects case outcomes, legal compliance, and the agency’s exposure to risk.
The property and evidence function is currently organized as a separate unit staffed with two
property and evidence technicians, and it is overseen by a police lieutenant.
Purpose and importance of the function
The primary purpose of the property and evidence function is to ensure that all items received
by the Police Department are properly controlled from the point of intake through final
disposition. This includes both evidentiary items used in criminal proceedings and non-
evidentiary property that may need to be returned to owners. A well-managed property and
evidence function helps ensure that evidence is admissible in court by preserving its integrity
and maintaining a documented chain of custody. It also helps protect individual property rights
by ensuring that items are not lost or improperly retained. Structuring the property and
evidence function as a separate, accountable unit helps reduce the risk of errors, misconduct,
and liability for the Police Department and the City of Carlsbad.
Chain of custody and evidentiary integrity
A central concept underlying the property and evidence function is the “chain of custody.” This
refers to the documented history of an item from collection through storage, transfer, and
presentation in court. Each point of transfer must be recorded, including the identity of the
individual handling the item, the date and time, and the purpose of the transfer. The objective
is to demonstrate that the item has not been altered, substituted, or tampered with.
Breakdowns in the chain of custody can affect the admissibility or credibility of evidence, which
in turn can influence case outcomes. The Property and Evidence Unit is the primary custodian
responsible for maintaining this continuity.
Intake and submission of property and evidence
The intake process begins when an officer or investigator submits an item to the property and
evidence unit. At intake, items are properly packaged, labeled, and documented. Special
packaging materials that prevent contamination or degradation of evidence are used, along
with labels that identify the case number, item description, and submitting employee. Certain
categories of evidence, such as biological materials or hazardous items, require specialized
handling procedures. The intake process establishes the initial record in the evidence
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4 Internal Audit of the Police Department’s Property and Evidence Storage Needs
management system and defines the baseline condition of the item.
Documentation and evidence management systems
Once submitted, items are recorded in an evidence management system and assigned a unique
identifier and tracked with bar codes. This system is used to document all subsequent
movements and status changes of every piece of property. Accurate and complete
documentation is necessary to support both legal requirements and internal accountability. The
system should provide a clear audit trail showing when an item was accessed, by whom, and for
what purpose. Incomplete or inaccurate records increase the risk of misplacement,
unauthorized access, or challenges in court.
Storage and security controls
After intake, items are stored in designated evidence storage areas. These areas are typically
organized by category, such as general property, narcotics, firearms, or items requiring
refrigeration. Access to storage areas is restricted to authorized personnel and may be
controlled through physical locks, electronic access systems, and surveillance. Proper storage
conditions are necessary to preserve the condition of evidence, particularly for items that are
sensitive to temperature, humidity, or contamination. Security controls are intended to prevent
loss, theft, or unauthorized handling.
Movement, retrieval, and transfers
Items in storage may need to be retrieved for various purposes, including forensic analysis,
court proceedings, or transfer to another agency. Each movement must be authorized and
documented in the evidence management system. This includes temporary removals and
returns to storage. The documentation should reflect the date, time, personnel involved, and
reason for the transfer. Consistent procedures for movement and retrieval help maintain
continuity in the chain of custody and reduce the likelihood of errors.
Inventory control and auditing
Periodic inventories and audits are conducted to verify that items recorded in the system are
physically present and properly accounted for. These may include routine spot checks, full
inventories, or targeted audits of high-risk categories such as narcotics or firearms. Best
practices often call for audits to be performed by personnel who are independent of the
property and evidence unit. The purpose of these reviews is to identify discrepancies, assess
compliance with procedures, and evaluate the effectiveness of internal controls. Timely
resolution of discrepancies is an important aspect of maintaining accountability.
Disposition of property and evidence
The function also includes the disposition of items once they are no longer needed for
investigative or legal purposes. Disposition methods may include returning property to its
owner, destroying contraband, or converting items for official use or auction, depending on
legal authority. Each disposition action must comply with applicable laws, court orders, and
agency policies. Documentation of disposition is required to demonstrate that items were
handled appropriately. Delays in disposition can create storage constraints and increase
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5 Internal Audit of the Police Department’s Property and Evidence Storage Needs
administrative burden.
Specialized evidence handling requirements
Certain types of evidence require additional procedures. Biological evidence may need long-
term preservation under controlled conditions, particularly in cases where post-conviction
testing is possible. Digital evidence requires measures to prevent alteration, such as forensic
imaging and secure storage of original devices. Hazardous materials may require coordination
with specialized personnel or external agencies for safe handling and disposal. The property
and evidence unit must be equipped to address these varied requirements and ensure
compliance with technical and legal standards.
Organizational and legal implications
The performance of the property and evidence function has broader implications for the Police
Department. Weaknesses in this area can lead to legal challenges, including suppression of
evidence, case dismissals, or civil claims related to lost or mishandled property. Conversely,
consistent adherence to established procedures supports legal defensibility and operational
reliability. The property and evidence function also affects resource management, as inefficient
practices can lead to overcrowded storage facilities and increased administrative workload.
While the function operates largely in the background, its role in maintaining evidentiary
integrity, protecting property rights, and supporting accountability is integral to effective law
enforcement operations.
The next four photographs show the main areas for administrative and intake processes within
the Property and Evidence Unit.
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Evidence intake room
Evidence transfer lockers
collect in this room. They place the
evidence in bags or other suitable
packaging label the evidence.
appropriately, police officers place the
evidence in one of the following
lockable containers.
The containers can then be accessed
from the back by property and
evidence technicians through a roll-up
door shown in the next picture.
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Property and Evidence Office
Case Files
the primary work location for the two
technicians who work in the Property
and Evidence Unit. It is where
evidence is received and
administrative and other work is
evidence is documented in case file
folders which are numbered and
stored within the main Property and
Evidence storage area.
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Objective and Scope
The audit had one objective, which was to evaluate the adequacy of storage space for the
Property and Evidence Unit.
The scope of the audit was limited to reviewing current data in the property and evidence
system and assessing the adequacy of planned future storage spaces. The scope did not
encompass any assessments of compliance or operational effectiveness. Violations of the
California Penal Code, applicable statutes of limitations, and sentencing provisions, largely drive
property and evidence handling practices and retention periods. A compliance audit of these
requirements would have been complex and resource-intensive.
Methodology
To accomplish the audit objective, the audit work included interviews and discussions with the
police lieutenant overseeing the Property and Evidence Unit and the two technicians employed
in it, a tour of all property and evidence storage locations, and a review of professional
guidance on law enforcement evidence and property management. The main source for
guidance was a publication by the California Commission on Peace Officer Standards and
Training.
Results Summary
This audit had two findings. The first finding was that existing property and evidence storage
space is limited. Storage utilization is driven by a growth in the amount of evidence being
collected, which continues to increase. The Police Department has been able to secure
additional, temporary storage space to cope with this increase. While most of the growth is
unavoidable, a portion of it is attributable to firearms that are being temporarily held and
stored by the Police Department for gun owners with pending legal matters. The audit made
two recommendations to mitigate the impact of firearms storage. The first recommendation is
to consider charging a monthly storage fee for firearms to defray some of the costs of
processing gun storage – namely employee staff time. The second recommendation is to
reassess offering firearms storage services to gun owners who do not reside within the City of
Carlsbad.
The second finding is that the planned space for the Property and Evidence Unit in the Orion
Center will meet the storage needs of the Police Department.
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FINDING 1: AVAILABLE PROPERTY AND EVIDENCE STORAGE IS LIMITED
The Police Department has known about the shrinking availability of storage space for a few
years. A January 2022 memo by the police lieutenant overseeing the Property and Evidence
Unit to the Police Chief discussed this topic in detail and identified short and long-term
solutions.
The memo listed existing storage locations and the types of property stored within them. It
identified six causes for the shortage of storage space, including a growing number of non-
purgeable cases (i.e. homicide investigations); an increase in active cases and associated
evidence; an increase in firearms (and firearms-related materials) seized; new statutory
requirements for certain cases (i.e. rape kits); increased collection of biological evidence (i.e.
DNA); and the prevalence of transient-related property.
The lieutenant consulted with other city staff to identify possible solutions regarding internal
measures taken by the Police Department. The memo identified the relocation of the Property
and Evidence Unit to a new facility as a long-term solution. However, because the timeline for
such a relocation was not apparent, the memo explored potential interim solutions. It noted
that mitigation efforts by the Property and Evidence Unit to continue to dispose of property as
fast as legally permissible were unlikely to have a significant impact on the looming storage
shortage.
Three potential options were provided, along with an analysis of each:
1. Leasing a commercial warehouse within the city
Leasing a commercial warehouse brings the advantages of a wide space, customizable location,
consolidates stored property, resolves chain of custody issues, provides a controlled climate,
room for expansion and additional space for evidence processing, viewing, exchange/release.
The disadvantages included the cost, limited capital improvements, security concerns, lack of
back-up power sources (i.e. generator for refrigeration units), significant POST compliance
issues, required outfitting (furnishings, network installations, etc.), and extended contractual
obligations.
Based on research, average lease terms for occupying the requested size warehouse were five
years. Landlords provide some capital improvements but not typically for a five-year lease.
Furthermore, the number of freestanding buildings under 20,000 square feet in Carlsbad is
limited, so shared walls are likely. The cost of a lease was estimated to range between $9,000
to $20,000 per month in rent.
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2. Relocating the police station gym and repurposing jail facilities
Relocating the gym and closing a jail would result in approximately 1,035 and 500-600 square
feet of space, respectively. However, this option would require the department to seek another
alternative for a gym facility and decommission the current jail facility.
The primary advantage of these facilities are that they are city-owned, climate controlled, and
conveniently accessible to employees. The disadvantage is the cost of retrofitting current
facilities, pouring a concrete pad and erecting a steel structure, estimated to range between
$40,000 and $80,000, in addition to the time needed to undergo planning and permitting
processes. Furthermore, this option does not eliminate the need for exterior locations.
3. Occupying additional temporary space
The Property and Evidence Unit is currently using temporary city-owned space within other
departments. Expanding the use of this space would allow most storage items to be
consolidated in one location. The area is climate-controlled but would require upgrades—
including network cabling, shelving, enhanced security, and other improvements—at an
estimated cost of approximately $49,000.
The memo recommended the third option, which was implemented.
Forecasting property and evidence storage needs is challenging
Forecasting the growth of property and evidence storage needs is inherently difficult for law
enforcement agencies because demand is driven by a combination of legal mandates,
operational activity, and unpredictable case characteristics, all of which can change
independently and often without much advance notice. Unlike many municipal functions where
workload can be projected based on population or historical trends, the volume and nature of
property and evidence intake are influenced by factors that are episodic, externally driven, and
sometimes highly variable.
One of the primary challenges arises from changes in law and policy, which can expand both
the types of items that must be retained and the duration of retention. Legislative changes may
require agencies to preserve certain categories of evidence – particularly biological or forensic
evidence – for longer periods, sometimes extending to decades in serious felony cases.
Similarly, laws related to firearm relinquishment, digital evidence, or victim rights can increase
the number of items taken into custody and impose stricter documentation and retention
requirements. These changes are often implemented statewide and take effect on relatively
short timelines, leaving agencies with limited ability to phase in additional storage capacity.
From a forecasting standpoint, this introduces a structural upward pressure on inventory levels
that may not be predictable based on prior trends.
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A second source of uncertainty is the episodic and case-specific nature of property intake,
particularly for large or bulky items. While many evidence items are small and standardized—
such as narcotics, documents, or small personal property, some cases involve the seizure of
vehicles, furniture, machinery, or other oversized items. For example, a single major
investigation could result in the impoundment of multiple vehicles or the need to store large
items such as couches, safes, or equipment associated with a crime scene. These items require
disproportionately large amounts of space and often cannot be stored in standard evidence
rooms, instead necessitating outdoor storage yards or specialized facilities. Because such cases
occur irregularly and are difficult to anticipate, they introduce significant volatility into storage
demand.
The growth of digital evidence further complicates forecasting, even though it does not always
translate into physical storage in the traditional sense. Modern investigations increasingly
involve computers, mobile devices, and storage media, each of which may need to be retained
for extended periods. While some data can be stored electronically, agencies often retain the
original physical devices as evidence, adding to inventory counts. In addition, digital storage
infrastructure—servers, cloud systems, and backup solutions—must scale alongside physical
storage, creating a dual-capacity planning problem that is not easily captured in traditional
space forecasts.
Another complicating factor is the uncertain timing of disposition, which directly affects how
long items remain in storage. Evidence cannot typically be disposed of until a case is fully
adjudicated and applicable statutes of limitations for appeals or other statutory retention
periods have expired. Criminal cases can take months or years to resolve, and certain categories
of evidence—such as those associated with serious or unsolved crimes—may need to be
retained indefinitely. As a result, even if intake rates remain stable, the overall inventory can
continue to grow due to delays in disposition. Forecasting models must therefore account not
only for inflows but also for highly variable outflows that depend on the pace of the judicial
system rather than agency-controlled processes.
Operational practices and enforcement priorities also contribute to variability. Changes in
policing strategies—such as targeted enforcement initiatives, task force operations, or
increased use of specific legal tools—can lead to spikes in property intake. For example, an
initiative focused on illegal firearms or nuisance abatement could result in a surge of seized
items over a relatively short period. These operational shifts are often driven by emerging
public safety concerns and may not follow predictable patterns, further complicating efforts to
project future storage needs.
Bottlenecks in the disposal and release processes can also exacerbate backlogs. Property may
remain in storage longer than necessary due to administrative delays, difficulties in identifying
or locating owners, or legal complexities surrounding ownership and forfeiture. In some cases,
even when items are eligible for disposal, agencies may lack the resources or processes to carry
out timely destruction or auction. These bottlenecks can cause inventory to accumulate in ways
that are not directly tied to intake volume, making forecasting based solely on inflow data
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12 Internal Audit of the Police Department’s Property and Evidence Storage Needs
unreliable.
From a facilities planning perspective, these dynamics create a mismatch between fixed storage
capacity and variable demand. Evidence rooms, warehouses, and storage yards are typically
designed with finite space, yet demand can fluctuate significantly from year to year.
Overbuilding capacity can be costly and inefficient, while underestimating demand can lead to
overcrowding, increased risk of loss or mismanagement, and potential compliance issues.
Agencies must therefore make planning decisions under conditions of uncertainty, often relying
on conservative assumptions or contingency strategies.
Firearms relinquished for storage are the only property category that can be controlled
The growth in firearms stored at the Property and Evidence Unit is driven by California laws
requiring firearms relinquishment under certain legal conditions. These guns are classified
differently than firearms that are seized during crime investigations, which are considered
evidence. There are currently nine types of restraining and protective orders that require the
relinquishment of guns, ammunition, and related parts such as gun magazines.
California law establishes a largely uniform framework governing firearm relinquishment. Once
a qualifying order is served, the restrained individual is prohibited from owning, possessing,
purchasing, or receiving firearms and ammunition for the duration of the order. The individual
is generally required to relinquish any firearms in their custody or control within 24 hours of
service and to file proof of that relinquishment with the issuing court within 48 hours.
Compliance may be achieved by surrendering firearms to a local law enforcement agency or by
transferring or selling them through a licensed firearms dealer. Although this 24-hour/48-hour
structure applies broadly, certain orders—particularly Emergency Protective Orders and some
Gun Violence Restraining Orders—may require immediate relinquishment at the time of
service, and courts retain discretion to order immediate surrender based on the circumstances
of the case. The nine types of protection orders are summarized below:
1. Domestic violence restraining orders (DVRO)
Domestic Violence Restraining Orders are issued to protect individuals from abuse or threats by
a person with whom they have a close relationship, including spouses, cohabitants, dating
partners, or immediate family members. These orders may be issued on an emergency,
temporary, or permanent basis and can include provisions such as no-contact orders, residence
exclusion, and custody restrictions. DVROs are one of the most frequently used protective
orders in California and are a primary mechanism for addressing interpersonal violence in
domestic settings.
2. Civil harassment restraining orders (CHRO)
Civil Harassment Restraining Orders apply to situations involving harassment, stalking, or
threats where no close personal or domestic relationship exists. These orders are commonly
used in disputes involving neighbors, acquaintances, or unrelated individuals. They are initiated
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through the civil court system and may be issued temporarily or after a hearing for longer
durations.
3. Elder or dependent adult abuse restraining orders
These orders are intended to protect individuals aged 65 or older, as well as dependent adults,
from physical abuse, neglect, financial exploitation, or abandonment. They may be requested
by the victim or a representative and are often used in cases involving caregivers, family
members, or others in positions of trust.
4. Workplace violence restraining orders
Workplace Violence Restraining Orders are requested by employers to protect employees from
credible threats or acts of violence occurring in the workplace. The employer files the petition
on behalf of the employee, and the restrained person may be an employee, former employee,
or third party. These orders are designed to address safety risks in professional environments.
5. Postsecondary school violence restraining orders
These orders function similarly to workplace violence restraining orders but are tailored to
colleges and universities. Institutions may request them to protect students, faculty, or staff
from individuals who pose a credible threat of violence on campus. They are part of a broader
framework for campus safety and threat management.
6. Gun violence restraining orders (GVRO)
Gun Violence Restraining Orders are specifically designed to temporarily restrict access to
firearms for individuals who pose a significant risk of harming themselves or others. They may
be requested by law enforcement, immediate family members, employers, and others
(expanded over time). GVROs can be issued as emergency, temporary, or longer-term orders.
7. Emergency protective orders (EPO)
Emergency Protective Orders are short-term orders issued by a judicial officer at the request of
law enforcement, typically in response to an immediate threat such as domestic violence,
stalking, or child abuse. These orders are often obtained in the field and are intended to
provide immediate protection until a longer-term order can be sought.
8. Criminal protective orders (CPO)
Criminal Protective Orders are issued by a court in connection with criminal proceedings to
protect victims or witnesses. They may be issued at arraignment, during the pendency of a
case, or as part of sentencing. These orders are enforceable as part of the criminal case and
may include no-contact provisions and firearm prohibitions.
9. Juvenile restraining orders
Juvenile restraining orders are issued by the juvenile court to protect victims from minors
involved in delinquency or related proceedings. These orders address threats or violence
involving minors and often require coordination with parents or guardians, particularly where
firearms may be present in the household.
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Law enforcement agencies have a consistent set of responsibilities across all nine protection
order types, centered on service, enforcement, and coordination. Officers are responsible for
serving orders when required and ensuring that restrained individuals are informed of
applicable firearm prohibitions and relinquishment deadlines. Service must be properly
documented, and the order must be entered into the California Law Enforcement
Telecommunications System (CLETS) to ensure statewide visibility and enforceability. Following
service, agencies may have a role in verifying compliance, particularly in cases where there is an
elevated risk of noncompliance or continued access to firearms.
Law enforcement officers are also authorized to seize firearms under a range of circumstances,
including when explicitly directed by a court order, when conducting an arrest, or when
necessary to address immediate safety concerns. In the context of certain orders, such as Gun
Violence Restraining Orders, officers may also conduct follow-up actions to ensure that all
firearms have been relinquished. Agencies are further responsible for coordinating with courts,
prosecutors, and, where applicable, other entities such as campus or workplace security
personnel. This coordination supports both enforcement of the order and the broader objective
of reducing access to firearms by individuals subject to court-imposed restrictions.
When faced with a legal obligation to surrender firearms, gun owners have a very limited
amount of time to decide whether to sell or store their firearms. Selling the firearms is often
not the preferred option, as some gun owners are attached to their firearms for sentimental or
other reasons. Furthermore, the sale will very likely be made at a loss for the gun owner
because it will have to be sold to a firearms dealer; the short timeframe for selling a gun does
not permit enough time to find a private buyer. Firearms dealers must purchase firearms at a
discount from their retail value in order to cover their costs and earn a reasonable profit. For
some gun owners, a small financial loss on a gun sale may constitute a minor annoyance.
However, many firearms owners have a large number of guns, and having to sell several
expensive guns at a discount may cost them thousands of dollars.
For gun owners who choose to store the firearms instead, locating a storage facility becomes an
urgent quest. Many gun stores and law enforcement agencies do not offer any firearms storage
services, as they have no legal obligation to do so. For both law enforcement and licensed
firearms dealers, a significant amount of paperwork is required to process each firearm and
enter it into a state database to verify its legal ownership.
One manager at a firearms retailer interviewed on this audit explained that firearms storage is
not a lucrative line of business, but that it is offered as a service to customers. The manager
noted that the fee charged is $30 per firearm per month, but that most firearm retailers do not
offer this service. While most customers are able to recover their firearms in a few months,
disputes with customers may arise when multiple firearms have been stored for several months
and the customer is unable or unwilling to pay the storage fee, or when the customer is unable
to legally recover the firearms and must sell them to the dealer (or another party).
Furthermore, storage space at gun retailers may be constrained.
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Given the challenges in finding suitable gun storage locations in general, storing firearms with
the Carlsbad Police Department is an attractive option, given that there is currently no charge
for storage. Furthermore, firearms storage is available for both residents of Carlsbad and
residents of other municipalities and unincorporated areas of San Diego County. While the
Carlsbad Police Department is open to charging a storage fee for firearms, it considers making
storage available to residents of adjoining municipalities to be a policy choice that has a general
public safety benefit, as crime tends to be regional and is not constrained by municipal
boundaries.
Recommendation 1
The Police Department should evaluate charging a fee for firearms storage to defray the costs
of processing and storing the firearms. This determination should include an analysis of any
proposed charge and consider relevant factors such as staff time and the amount of storage
space taken by various kinds of firearms (e.g. handgun vs. rifle).
Recommendation 2
The Police Department should consider limiting firearms storage to residents of Carlsbad. The
implications of this change in policy should be considered and discussed with law enforcement
agencies of adjoining municipalities. A regional solution should be explored, if possible. This
could include contracting with a commercial storage provider, constructing a new building, or
repurposing an existing facility.
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FINDING 2: PLANNED SPACE FOR THE PROPERTY AND EVIDENCE UNIT IN THE
ORION CENTER MEETS ANTICIPATED STORAGE NEEDS
The Property and Evidence Unit maintains thousands of items in storage. The oldest items
recorded in the inventory system date to 1987. Inventory items are classified into 32 categories
in the system, as listed below. Some categories appear related, however, and may simply
reflect changes in the categorization nomenclature over the years.
Category Category
Alcohol License Plates
Narcotics Marijuana
Audio Visual Meth
Bicycles Miscellaneous
Clothing Other Drug
Computer Equipment Other Weapons
Currency Paraphernalia
DNA/Blood/Urine Photos
Documents Photos/Fingerprints
Electronics Pistol
Equipment Tools Prescription Drug
Fingerprints Purses
Heroin Revolver
Identification Rifle
Jewelry Shotgun
Keys Wallets
To understand the diversity of storage needs for property and evidence, it is helpful to view
various types of items and the ways in which they are packaged and stored. The following
pictures and accompanying descriptions provide a visual tour of current property and evidence
storage spaces.
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DNA Evidence Envelopes
Evidence Refrigerators
are maintained in special
envelopes and stored at room
temperature.
Biological evidence that has been
thoroughly dried is often stored at
room temperature, especially
items such as dried bloodstains,
semen stains, saliva stains on
swabs or fabric, and hairs. These
items are typically kept in
breathable paper containers rather
than plastic, so moisture does not
accumulate and promote mold or
tissue, liquid blood, and other
moist specimens generally should
not be stored at room
temperature and usually require
refrigeration or freezing.
The general rule is that room-
temperature storage is generally
appropriate only for dry, stable
biological evidence.
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Batteries and Spray Paint Cans
Backpacks
paint, batteries, fuels, and other
chemicals require careful
identification, documentation, and
safe handling at intake.
Incompatible substances must be
segregated to reduce the risk of
chemical reactions.
Disposal often requires the services
of an authorized hazardous waste
vendor rather than standard
evidence destruction processes.
during arrests or investigations.
They are typically treated as
property containers rather than
single items of evidence. Staff will
open and inventory the contents to
identify valuables, evidence,
hazardous items, or contraband.
Items are recorded either
individually (for higher-value or
evidentiary property) or grouped
(for low-value effects), and the
backpack itself may be booked
separately. This process helps
protect against loss claims, ensures
safety, and preserves evidentiary
value where applicable.
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Cash and valuables cabinet
jewelry are handled under
heightened control procedures
due to their portability and risk of
loss or theft.
At intake, these items are
counted, described, and
documented in detail, often in the
presence of a second employee.
Cash is typically counted and
recorded by denomination, then
sealed in tamper-evident
packaging with signatures or
initials across the seal. Jewelry
and other valuables are described
with identifying features.
After intake, these items are
stored in secure cabinet separate
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Narcotics storage room
police officers in the field prior to packaging, and they may be sent to a testing lab
if requested by the San Diego County District Attorney. Drugs are sealed in
tamper-evident packaging with clear labeling of case number, item number, and
handling officer. Documentation is detailed, and packaging is designed to prevent
leakage or contamination.
Opioids such as fentanyl are handled with additional precautions due to the risk of
accidental exposure to staff. Personnel use personal protective equipment (PPE)
such as nitrile gloves and may use masks or eye protection when powders could
become airborne. Handling is minimized to reduce disturbance of powders. Staff
are trained on responding to potential exposure, including access to naloxone as a
precaution.
Drugs are sent to a certified vendor for disposition in a secure and
environmentally safe manner.
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Firearms storage cage
Additional firearms storage
enhanced security controls due to
their inherent risk and potential
evidentiary value.
At intake, each firearm is
rendered safe (e.g., unloaded,
action cleared), and documented
by make, model, caliber, and
serial number.
Firearms are then packaged or
tagged and placed in secure,
restricted-access storage cages
separate from general evidence.
The pictures on this page show
the main firearms storage cage
(top picture) and an additional
space (bottom picture) that was
repurposed to accommodate the
increase in firearms storage
needs.
Ammunition is stored separately
from firearms (not shown) to
reduce risk and improve control.
Caliber and quantities are
documented at intake, and the
ammunition is placed in a dry,
secure area away from ignition
sources.
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Rolling shelving
main storage location is placed in
boxes, bags, or plastic tubs and
placed on track-mounted rolling
shelving units. Also known as
high-density mobile shelving,
these shelving units are mounted
on wheeled carriages that move
along floor.
Unlike static shelving that
requires fixed aisles between
every row, these systems allow
units to be pushed together,
creating a single "movable" aisle
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Lost and found items
Container, Express (Conex) storage
tied to a crime) is stored
separately from evidence.
Basic steps are taken to identify
the owner, but if no owner is
located, the property is held for
sixty days. Afterwards, the
property is disposed of by public
auction, conversion to agency use,
donation, or destruction,
depending on the nature and value
of the item.
Property turned in by individuals is
held for 90 days, after which it may
uses one Conex (Container,
Express) – a steel shipping
container – for overflow storage of
bulky items such as bicycles,
furniture, and tools.
The Conex is durable, lockable,
weather-resistant, movable, and
relatively inexpensive. However, it
is not ideal for storing evidence
that requires a stable temperature
because it is not insulated and has
no temperature controls.
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Overflow storage (next four pictures)
shelving for biological evidence
were acquired and placed in the
overflow storage location to
address storage constraints.
assembled and installed by the
property and evidence
technicians.
While this shelving is inexpensive
and easy to assemble and move,
it has lower storage capacity and
is less stable than track storage
units.
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stored together in a single large
room.
Bicycles accumulate because they
are frequently encountered in
routine police activity. Common
sources include recovered stolen
bikes, abandoned or unclaimed
property, and property associated
with arrests. Bicycles are also
routinely collected during
encampment cleanups or nuisance
abatement efforts, where multiple
bikes may be found without clear
ownership.
Bicycle ownership can be difficult
to establish due to lack of serial
number records and absence of
reporting by victims. Even when a
bike is reported stolen, matching it
to a specific owner can be
challenging.
Bicycles are held for sixty days
before disposal, but backlogs or
limited auction/disposal processes
can further delay turnover.
Note that the firearms boxes
shown in the top picture are
empty.
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A single case can yield a large amount of evidence
While most individual shoplifting or theft arrests involve a relatively small amount of
property, certain cases—particularly those involving repeat offenders, organized retail
theft (ORT), or fencing operations—can result in the recovery of a large amount of
merchandise from a single arrest or investigation.
This typically occurs when officers identify a suspect who has been stealing over time
and stockpiling goods, often at a residence, storage unit, or vehicle. A search warrant
can lead to the seizure of dozens or even hundreds of items, such as clothing,
electronics, cosmetics, or tools. Similarly, investigations into resale networks (e.g.,
online marketplaces or informal fencing operations) may uncover bulk quantities of
stolen goods tied to multiple incidents and victims. When this occurs, property units
must process, catalog, and store a high volume of items from what is technically a single
case, which can create significant workload and storage impacts.
Other situations can also result in sudden spikes in evidence and further diminish
available storage space. For example, a homicide scene where biological evidence is
present on furniture will result in storage of that furniture. Similarly, a vehicle with
biological evidence may have to be stored as well. If the vehicle is stored outdoors, the
evidence contained within it will be more susceptible to deterioration and
contamination.
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27 Internal Audit of the Police Department’s Property and Evidence Storage Needs
During this audit, the Police Department questioned whether the planned space for the
Property and Evidence Unit in the Orion Center will be adequate to meet current and future
storage needs. The Orion Center is a long-planned municipal facilities project in the City of
Carlsbad intended to consolidate and modernize the city’s maintenance and operations
functions. The project reflects a shift by the city toward centralizing dispersed operational
facilities into a single, purpose-built campus. The Police Department had initially sought 10
thousand square feet of storage space, an area slightly less than the total current property and
evidence storage space of 10,437 square feet; the consolidation of many storage locations into
one area would allow for a more efficient layout. But this area was reduced as project planning
progressed and some spaces were dedicated to auxiliary uses such as a fire riser room, a
custodial room, and restrooms. However, the Police Department’s concern was alleviated after
engaging with a vendor and considering alternative ways of utilizing space.
The concept for the Orion Center dates back many years as part of long-term facilities planning.
Historically, the City of Carlsbad operated its maintenance, parks, utilities, and fleet functions
out of multiple facilities located in different parts of the city. These decentralized facilities
create operational inefficiencies, including travel time between sites, limited space for
equipment and materials, and constrain modernization and expansion. The Orion Center
concept emerged as a solution to address these inefficiencies by creating a centralized
operations hub in the eastern portion of the city, near existing public safety and fleet facilities.
In 2016, the vision for the Orion Center included a parking structure with a 6,500 square foot
storeroom on its ground floor for property and evidence storage. A comprehensive assessment
of property and evidence storage needs was not conducted at the time.
By 2018, the preliminary design of the Orion Center project had been completed and the City
planned to prepare requests for proposals for design-build delivery to streamline construction
and project management. The project site at 2600 Orion Way was adjacent to the Fleet
Maintenance Building, making it a logical location for redevelopment. However, because the
site was zoned as open space, the project required discretionary approvals.
Between 2018 and 2023, the project underwent extensive environmental review and technical
analysis under the California Environmental Quality Act framework. This phase included traffic
and vehicle travel analyses, stormwater and environmental compliance studies, cultural and
paleontological resource assessments, site design and grading evaluations. In 2023, the Orion
Center advanced through the formal entitlement process. The City of Carlsbad Planning
Commission issued a conditional use permit, which authorized redevelopment of the existing
site. At this stage, the project’s environmental and traffic impacts had been fully defined, and
user group program needs has been determined.
In 2023, the vision to create a Public Works storage building was coupled with the Orion Center
project, yielding a large public works storage building and building on the Orion Center site. The
project procurement model was changed from design-build to design-bid-build, and a request
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for proposal was advertised for design services. As the design progressed, space was reserved
for a Public Works storage building of approximately 10 thousand square feet and a property
and evidence storage building also measuring 10 thousand square feet.
In 2025, Police Department decided that it would move the Property and Evidence Unit,
including the areas for processing the property and evidence, out of the Police Department
building and into the new evidence and storage building being constructed as part of the Orion
Center upon its completion. Space for a roofed and three-sided vertical vehicle storage lift was
requested as well. Centralizing and consolidating these spaces would increase operational
efficiency, since property and evidence technicians would be located within the new storage
area instead of having to shuttle between the Police Department building and the Orion Center
site. However, accommodating personnel space further reduced the area available for storage
in the new evidence and storage building.
Discussions between the Public Works Branch and the Police Department, along with the
engagement of a storage system vendor, led to an evaluation of rolling track shelving as a way
to increase available storage space, since this shelving eliminates the need for permanent aisles
between shelves. The volume of available storage was calculated, accounting for the number of
shelves, their height and their depth rather than simply the floor area of the shelving units. The
use of rolling track shelving along with volume storage calculations, yielded projected increases
in available storage space of 48 percent, 57 percent, and 76 percent for the three main storage
categories of drugs, firearms, and general property and evidence, respectively. While rolling
track shelving is more expensive than standard industrial shelving, it is the most viable and cost-
effective option because it obviates the need for additional storage space.
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29 Internal Audit of the Police Department’s Property and Evidence Storage Needs
Management’s Response to the Recommendations
Recommendation 1
The Police Department should evaluate charging a fee for firearms storage to defray the costs
of processing and storing the firearms. This determination should include an analysis of any
proposed charge and consider relevant factors such as staff time and the amount of storage
space taken by various kinds of firearms (e.g. handgun vs. rifle).
Management Response
The Police Department will begin charging $107 per customer for fiscal year 2026-27, as
indicated in the Master Fee Schedule update presented to the City Council on June 16, 2026.
This fee is based on an estimate of two hours of work to appropriately process a weapon at an
hourly cost of $66.72 for a Property and Evidence Technician. Two hours would cost $133.44.
At 80 percent cost recovery, the fee would be $106.75, rounded to $107.
The Police Department will evaluate the need for additional fees when multiple weapons are
stored.
Recommendation 2
The Police Department should consider limiting firearms storage to residents of Carlsbad. The
implications of this change in policy should be considered and discussed with law enforcement
agencies of adjoining municipalities. A regional solution should be explored, if possible. This
could include contracting with a commercial storage provider, constructing a new building, or
repurposing an existing facility.
Management Response
The Police Department agrees that limiting long-term firearms storage to residents of Carlsbad
is an option worth evaluating as part of a broader effort to expand storage within the current
facility. Beginning July 1, 2026, the Police Department will no longer accept weapons from non-
residents for long term storage. The Police Department will provide additional locations for
non-residents. Once the Orion Center is built, the department can consider opening storage to
a greater population.
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30 Internal Audit of the Police Department’s Property and Evidence Storage Needs
Conclusion
Adequate storage capacity is a fundamental component of an effective property and evidence
function. Sufficient space supports orderly intake, proper segregation of items, and clear
organization within storage areas, all of which contribute to maintaining accurate records and
preserving the integrity of property and evidence. When storage capacity aligns with
operational needs, staff are better able to follow established procedures, conduct inventories
efficiently, and minimize the risk of misplacement, damage, or commingling of items. In this
way, storage is not merely a logistical concern, but a key factor in supporting internal controls
and overall accountability.
Conversely, constrained or overcrowded storage conditions can introduce operational
challenges that affect efficiency, documentation, and oversight. Limited space may lead to
inconsistent organization, delays in processing, and increased difficulty in locating or tracking
items. Over time, these conditions can place strain on staff and heighten the risk of control
weaknesses. Ensuring that storage capacity remains aligned with current and anticipated needs
is therefore important to maintaining a well-functioning property and evidence unit that can
support both day-to-day operations and longer-term compliance requirements. The Carlsbad
Police Department has been attentive to the Property and Evidence Unit’s storage needs and
has worked proactively with other city departments to secure both interim and long-term
storage space.
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Exhibit 4
Staff Report from Aug. 29, 2023, City Council Meeting
(on file in the Office of the City Clerk)
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Fiscal Year 25-26 Internal Audit
Update, Audit Reports, and Fiscal
Year 2026-27 Plan
Toufic Tabshouri, Internal Audit Manager
July 7, 2026
2
RECOMMENDED ACTION
Accept the audit reports, findings and
recommendations.
Approve the Internal Audit Plan for Fiscal Year
2026-27
ITEM 14: INTERNAL AUDIT PLAN
3
TODAY’S PRESENTATION
•Internal Audit Plan for FY 25-26
•Internal Audit Reports on:
1.The Carlsbad Police Department’s Vice and
Narcotics Investigative Unit’s Buy Fund
2.The Carlsbad Police Department’s Property
and Evidence Storage Needs
•Proposed Internal Audit Plan for FY 26-27
ITEM 14: INTERNAL AUDIT PLAN
4
AUDIT WORK IN FY 2025-26
ITEM 14: INTERNAL AUDIT PLAN
Audits Status
Liability Claims Handling Completed and presented before the City
Council in October 2025
Procurement Completed and presented before the City
Council in February 2026
Vice and Narcotics Investigative Unit
(VNIU) Buy Fund
Completed
Police Department Evidence and Storage Completed
Employee overtime Pending management review
Transient Occupancy Tax for FY 2024-25 In progress (Davis Farr LLP contract)
Information Technology Security In progress
5
VNIU BUY FUND
ITEM 14: INTERNAL AUDIT PLAN
Background
•The Carlsbad Police Department’s Vice Narcotics Investigative Unit (VNIU) is
responsible for investigating illegal drug offenses and enforcing laws pertaining to
gambling, liquor sales, and prostitution.
•The Buy Fund supports VNIU’s activities and is primarily used for drug purchases,
flash money, and informant payments.
•VNIU is overseen by a police lieutenant, and it is staffed by a supervising sergeant
(VINU supervisor), three detectives and two task force officers.
6
VNIU BUY FUND
ITEM 14: INTERNAL AUDIT PLAN
Audit Objectives
1.To determine whether the Buy Fund’s operations adhered to City policies and
procedures.
2.To assess whether Buy Fund policies and procedures provide effective internal
controls over assets.
7
VNIU BUY FUND
ITEM 14: INTERNAL AUDIT PLAN
Findings
1.Buy Fund operations adhere to policies and procedures
2.Typical cash controls are impractical
3.Previous audit recommendations were not implemented
8
VNIU BUY FUND
ITEM 14: INTERNAL AUDIT PLAN
Recommendations
1.The VINU Supervisor should compile an annual financial report on Buy Fund operations. This report would constitute an enhancement of existing record keeping activities that the VINU Supervisor currently conducts. The report should be sent to the Finance Department, the Internal Audit Manager, as well as Police Department Management.
2.The Police Department should amend Policy 607, Vice Narcotics Investigative Unit-Buy Fund, to require at least one unannounced cash count each fiscal year. This cash count may be conducted by the Internal Audit Manager, a Finance Department manager, or a senior police department official who does report to anyone overseeing VNIU.
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VNIU BUY FUND
ITEM 14: INTERNAL AUDIT PLAN
Management agreed with the audit recommendations
1.The department will prepare an annual report at the end of each calendar year on Buy Fund Operations. The report will be completed by the VNIU Supervisor and reviewed by the VNIU Manager prior to being sent to the Support Operations Captain, Chief of Police, Finance Department and Internal Audit Manager. The report will be completed by January 21st each year.
2.The Police Department will amend Policy 607, Vice Narcotics Investigative Unit-Buy Fund, to require at least one unannounced cash count each fiscal year. This will be coordinated by the Professional Standards Lieutenant who coordinates all internal audits within the police department and will communicate with the Internal Audit Manager and the Finance Department manager on who will be conducting the unannounced audit.
10
POLICE PROPERTY AND EVIDENCE STORAGE
ITEM 14: INTERNAL AUDIT PLAN
Background
•The property and evidence function is an essential component of the City of Carlsbad’s Police Department.
•This function is responsible for the custody, control, preservation, and disposition of items that come into the Police Department’s possession in connection with criminal investigations, arrests, or community safekeeping.
•The effectiveness of this function directly affects case outcomes, legal compliance, and the agency’s exposure to risk.
•The property and evidence function is staffed with two property and evidence technicians, and it is overseen by a police lieutenant.
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POLICE PROPERTY AND EVIDENCE STORAGE
ITEM 14: INTERNAL AUDIT PLAN
Audit Objectives
The audit had one objective, which was to evaluate the adequacy of storage space for
the Property and Evidence Unit.
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POLICE PROPERTY AND EVIDENCE STORAGE
ITEM 14: INTERNAL AUDIT PLAN
Findings
1.Available property and evidence storage is limited.
2.Planned space for the property and evidence unit in the Orion Center meets
anticipated storage needs.
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POLICE PROPERTY AND EVIDENCE STORAGE
ITEM 14: INTERNAL AUDIT PLAN
Recommendations
1.The Police Department should evaluate charging a fee for firearms storage to defray the costs of processing and storing the firearms. This determination should include an analysis of any proposed charge and consider relevant factors such as staff time and the amount of storage space taken by various kinds of firearms (e.g. handgun vs. rifle).
2.The Police Department should consider limiting firearms storage to residents of Carlsbad. The implications of this change in policy should be considered and discussed with law enforcement agencies of adjoining municipalities. A regional solution should be explored, if possible. This could include contracting with a commercial storage provider, constructing a new building, or repurposing an existing facility.
14
POLICE PROPERTY AND EVIDENCE STORAGE
ITEM 14: INTERNAL AUDIT PLAN
Management agreed with the audit recommendations
1.The Police Department will begin charging $107 per customer for fiscal year 2026-27, as indicated in the Master Fee Schedule update presented to the City Council on June 16, 2026. The Police Department will evaluate the need for additional fees when multiple weapons are stored.
2.The Police Department agrees that limiting long-term firearms storage to residents of Carlsbad is an option worth evaluating as part of a broader effort to expand storage within the current facility. Beginning July 1, 2026, the Police Department will no longer accept weapons from non-residents for long term storage. The Police Department will provide additional locations for non-residents. Once the Orion Center is built, the department can consider opening storage to a greater population.
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PROPOSED INTERNAL AUDIT PLAN FOR FY
2026-27
ITEM 14: INTERNAL AUDIT PLAN
Audit Selection
•Internal audit selection was based on a risk assessment that was
conducted in FY 2025-26
•The factors that carried the most weight in the risk assessment were
the size of the function in terms of budgeted amount and number of
employees, and the inherent risk of the work performed within it
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PROPOSED AUDIT PLAN FOR FY 2026-27
ITEM 14: INTERNAL AUDIT PLAN
Audits Estimated Hours
Transit Occupancy Tax - Oversight 160
Utilities – Wastewater Operations 400
Library and Cultural Arts 400
Worker’s Compensation 320
Unallocated Hours 220
Total Audit Hours 1,500
NEXT STEPS
•Complete one remaining audit on the FY 2025-
26 Internal Audit Plan
•Begin conducting audits on the FY 2026-27
Internal Audit Plan
ITEM 14: INTERNAL AUDIT PLAN
17 17
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RECOMMENDED ACTION
Accept the audit report findings and
recommendations.
Approve the resolution for the Internal Audit
Plan for FY 2026-27
ITEM 14: INTERNAL AUDIT PLAN