FROM: Christina Cintron, Chief of Member Services
SUBJECT: Returning Retiree Extension: Glenda Jackson
RECOMMENDATION:
title
Approve the request to extend the employment of Glenda Jackson from September 19, 2026, through August 11, 2027, in accordance with SBCERA Benefits Policy No. 032, “Retirees Returning to Work.”
body
BACKGROUND:
The California Public Employees’ Pension Reform Act of 2013 (PEPRA) establishes limitations for retirees returning to work in the same retirement system from which they receive a pension. Under SBCERA Benefits Policy No. 032, extensions beyond 18 consecutive months of re-employment must be approved by the Board of Retirement and are permitted only under conditions of Extreme Necessity and for a Limited Duration.
Glenda Jackson retired from San Bernardino County Department of Aging & Adult Services (Office of the Public Guardian) on November 2, 2024, after more than 37 years of County service. At the time of her retirement, Ms. Jackson served as Assistant Director of Aging & Adult Services.
Ms. Jackson was subsequently re-employed under an initial Returning Retiree Certification from May 31, 2025, through December 26, 2025, in an Assistant Director classification. Her initial period of re-employment was approximately seven months. By the end of 2025, the department had successfully filled the Assistant Director position, and Ms. Jackson’s transitional support to the then-Chief Deputy Public Guardian had concluded.
Ms. Jackson stopped working on December 26, 2025, in accordance with the initial certification. (Exhibit D.) Effective July 1, 2026, the Chief Deputy Public Guardian retired, creating a new vacancy and operational need within the Office of the Public Guardian. Ms. Jackson has not worked in a Returning Retiree capacity since December 26, 2025. (Exhibit C.)
CURRENT REQUEST:
San Bernardino County Department of Aging & Adult Services (Office of the Public Guardian) requests an extension of Ms. Jackson’s Returning Retiree employment from September 19, 2026, through August 11, 2027, in the classification of Assistant Director.
Ms. Jackson previously served for approximately 14 years as Chief Deputy Public Guardian before being promoted to Assistant Director of Aging & Adult Services. In the Assistant Director role, she continued to oversee the Office of the Public Guardian and provide oversight and support to the Chief Deputy Public Guardian function. (Exhibit C.) Under the requested extension, Ms. Jackson will provide leadership and operational support related to the Office of the Public Guardian, including oversight of conservatorship and public guardianship functions, guidance regarding statutory and court-ordered requirements, support with complex fiduciary and legal matters, and coordination with internal and external stakeholders. Ms. Jackson will also provide structured knowledge transfer, mentoring, coaching, and training to support continuity of operations and the transition of responsibilities to permanent leadership. (Exhibit B, Page 2, Updated Description of Duties; Page 4, Question 8.)
Extreme Necessity:
The employer states that Ms. Jackson possesses extensive specialized expertise in public guardianship and conservatorship, including 14 years of experience serving as Chief Deputy Public Guardian. She also holds a lifetime certification through the California State Association of Public Administrators, Public Guardians and Public Conservators (CAPAPGPC). (Exhibit C.) Her experience includes statutory requirements, court procedures, operational practices, legislative mandates, fiduciary responsibilities, and stakeholder coordination. (Exhibit B, Page 3, Questions 2 and 3.)
According to the employer, no current employee possesses the specialized expertise, institutional knowledge, and legal experience necessary to independently perform the full scope of these responsibilities. (Exhibit B, Page 4, Questions 7 and 11.) The employer also states that without Ms. Jackson’s assistance, the department would experience significant operational disruption, increased legal and fiduciary risk, potential jeopardy to compliance with court requirements, and a reduced ability to fulfill its legal obligations. (Exhibit B, Page 3, Question 6; Page 4, Question 9.)
The current operational need arose after the Chief Deputy Public Guardian retired effective July 1, 2026. In advance of that retirement, the department worked with San Bernardino County Human Resources to recruit a permanent replacement and completed two full recruitment cycles and multiple interview panels. Despite those efforts, the position remains vacant because no candidate has demonstrated the statutory knowledge, leadership experience, and technical expertise required for the role. (Exhibit C.)
In this case, the employer’s need extends beyond the vacancy created by Ms. Jackson’s own retirement. The request is supported by the specialized statutory, fiduciary, and court-related responsibilities of the position, the lack of an existing employee able to independently assume those responsibilities, and unsuccessful efforts to recruit a qualified permanent replacement. Taken together, these circumstances support a finding of Extreme Necessity.
Limited Duration / Completion of Work:
During the requested extension, Ms. Jackson is expected to provide operational continuity while supporting structured knowledge transfer, mentoring, coaching, and development intended to facilitate the transition of leadership duties. The employer states that its goal is to prepare a permanent successor to independently assume the role. (Exhibit B, Page 4, Question 8.)
The requested extension has a defined ending date of August 11, 2027, and is tied to the department’s ongoing recruitment for a permanent Chief Deputy Public Guardian. The defined ending date, active recruitment, and planned transfer of knowledge support that Ms. Jackson’s re-employment is intended as a temporary measure rather than ongoing or indefinite part-time employment. (Exhibit B, Page 4, Question 8; Exhibit C.) These circumstances support a finding of Limited Duration under the hard-to-recruit provision of Policy No. 032.
Recruitment Efforts:
Recruitment for a permanent Chief Deputy Public Guardian began prior to the July 1, 2026 retirement of the incumbent and has remained ongoing. The department reports that it completed two full recruitment cycles and multiple interview panels without identifying a candidate who demonstrated the statutory knowledge, leadership experience, and technical expertise required for the position. The employer confirmed that the currently posted Chief Deputy Public Guardian recruitment is the same recruitment referenced in the extension request and that recruitment continues in coordination with San Bernardino County Human Resources. (Exhibit C.)
The documented and ongoing recruitment efforts support the employer’s position that the Chief Deputy Public Guardian position is difficult to fill and satisfy the recruitment component of the hard-to-recruit provision in Policy No. 032.
LEGAL AND POLICY CONSIDERATIONS:
Pursuant to SBCERA Benefits Policy No. 032 and applicable PEPRA provisions, Board approval for re-employment beyond 18 consecutive months requires that the request satisfy both of the following conditions:
1. Extreme Necessity - The employer must demonstrate that the re-employment is essential to maintain effective operations due to genuinely unforeseen or unavoidable circumstances; and
2. Limited Duration / Completion of Work - The re-employment must relate to the completion of a specific, time-bound task or project, or meet one of the limited-duration conditions defined in Policy No. 032.
• Hard-to-Recruit Positions - Temporary placement in a classification requiring specialized skills, certifications, or qualifications that are difficult to recruit for in the labor market, supported by documented and ongoing recruitment efforts; or
• Stoppage of Public Business - Re-employment necessary to prevent interruption of essential government functions where such interruption would directly compromise public safety, security, welfare, or the effective administration of justice.
The information provided supports a finding that the request satisfies the Extreme Necessity requirement and the Limited Duration requirement under the hard-to-recruit provision of Policy No. 032.
CONCLUSION:
Based on the justification provided and supporting documentation submitted, staff recommends that the Board approve the Returning Retiree extension request for Glenda Jackson from September 19, 2026, through August 11, 2027, in accordance with SBCERA Benefits Policy No. 032 and applicable PEPRA provisions.
BUDGET IMPACT:
None.
STRATEGIC PLANNING GOAL/OBJECTIVE:
Operational Excellence & Efficiency
STAFF CONTACT:
Christina Cintron
ATTACHMENTS:
Exhibit A: Board Item Summary Worksheet
Exhibit B: Current Certification Form
Exhibit C: Supplemental Employer Response (Email)
Exhibit D: Prior Certification Form