LAFCO
Riverdale Public Utility
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RIVERDALE PUBLIC UTILITY
DISTRICT
MUNICIPAL SERVICE REVIEW AND
SPHERE OF INFLUENCE REVISION
Report to the
Fresno Local Agency Formation Commission
MSR-18–01 / SOI-186
David E. Fey, Executive Officer
George W. Uc, Senior Analyst
Juan Lara, Analyst II
Amanda Graham, Office Assistant
Derek Sylvester, Intern
2607 Fresno Street, Suite B
Fresno, CA 93721
February 14, 2018
RIVERDALE PUBLIC UTILITY DISTRICT
Street lighting, water, sewer, storm drainage, waste disposal, fire protection
Contact Information
General Manager: Vincent Romero
Office Manager: Sallie Ockey
Office address: 20986 Malsbary Street
Mailing address: P.O. BOX 248
Riverdale, CA 93656
Phone: (559) 867-3838
Website: http://www.riverdalepublicutilitydistrict.com/
Management Information
District formation: 1935
Principal act: Public Utilities Code 15501 et seq. (The Public Utility District Act)
Special district powers: Prescribed in Public Utilities Code sections 16401-16682
LAFCo
Authorized services:1 Street lights, water, sewer, storm drainage, solid waste disposal, and fire
protection
Governing body: Five-member board of directors, elected at large (General Election / Even)
Board members: Elected Expire
Effie Harrison – Da Costa 01/03/2017 12/07/2018
Tom Fitz 03/09/1993 12/08/2020
Tristan E. Mauger 02/08/1977 12/08/2020
Lorne Pine 01/03/2017 12/08/2020
Roger Harrison 12/05/2014 12/07/2018
Board meetings: Held on the first Tuesday of each month at 4:00 p.m. at Riverdale Fire
Station Annex Building
Staffing: Five full-time employees
Service Information
Population served: 4,081, estimate
Acres served: 424 acres
District SOI: 534 acres
Proposed SOI Revision: add 82 acres
Infrastructure: Public water distribution system, two active groundwater wells, a
wastewater collection system and a wastewater treatment plant, two fire
trucks, a fire station, and an administration building
Fiscal Information
Budget: $1,535,293
Sources of funding: Annual property taxes, utility service fees, federal and state grants, and
development impact fees.
Rate structure: Fee schedule
Administrative Policies
Adopted Policies/Procedures: Yes By-laws: None SOI formed: 1977
SOI Revision: February 14, 2018 Other: Member of California Special Districts Association
Special District Risk Management Authority
1 Pursuant to Government Code sec. 56425(i).
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Table of Contents
1. MUNICIPAL SERVICE REVIEW .......................................................................................... 6
Principal Act ................................................................................................................................ 6
District Service Area .................................................................................................................... 6
Mapping Discrepancy .................................................................................................................. 7
Authorized District Services ........................................................................................................ 7
Fresno LAFCo MSR Policy ............................................................................................................ 8
District Growth and Population Projections ............................................................................... 8
Disadvantaged Unincorporated Communities .......................................................................... 10
District Infrastructure ................................................................................................................ 11
District Finances ........................................................................................................................ 17
Public Facilities, Opportunities for shared Facilities ................................................................. 19
Government Accountability ...................................................................................................... 22
Any Other Matters .................................................................................................................... 24
2. MSR DETERMINATIONS .................................................................................................. 25
3. SPHERE OF INFLUENCE REVISION ............................................................................... 31
4. RECOMMENDATIONS ....................................................................................................... 36
5. ACKNOWLEDGEMENTS ................................................................................................... 37
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Figure 1 – District Map
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Figure 2– Proposed SOI Revision
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1 . MUNICIPAL SERVICE RE VIEW
PRINCIPAL ACT
The Riverdale Public Utility District (“District”) was formed in 1935 under the Municipal Utility
District Act of 1921 for the specific purpose of providing water service and wastewater service
within the unincorporated community of Riverdale.
In 1951, the California Legislature adopted the Public Utilities Code, which incorporated a
substantial number of previous general-purpose district enabling acts into various code sections.
Since then, the Public Utility District Act of 1953 (Public Utilities Code sec. 15501 et seq.) governs
the operation of the Riverdale Public Utility District.
The District is authorized to provide public street lighting, municipal water, sewer, storm
drainage, solid waste disposal, and fire protection. The District is an independent special district
governed by a five-member board of directors, and functions independently from the County of
Fresno. The District is not governed by another legislative body (either a city council or a county
board of supervisors). Members of the board are elected at large and eligible candidates must
be a registered voter and resident within the district boundaries. Board members are
responsible for exercising powers granted by statute and their independent judgement on
behalf of the interests of residents, property owners, and the community as a whole.
DISTRICT SERVICE AREA
The District is located in the south central portion of Fresno County approximately 29 miles
south of the City of Fresno. The District and the unincorporated community of Riverdale that it
serves are located along Mt. Whitney Avenue approximately three miles west of the intersection
of State Route (SR) 41 and Mt. Whitney.
The District’s jurisdictional boundaries are generally West Harlan Avenue to the north, South
Pendleton Street to the west, West Wood Avenue to the south, and South Hughes to the east,
as shown on Figure 1. The District’s service area and sphere of influence (SOI) are not
coterminous: the District’s service area encompasses 424 acres, while the SOI encompasses
approximately 534 acres.
Two service area anomalies were found with this MSR update. The first is an 80-acre area north
of the East Barrett alignment east of South Brawley Avenue. These two 40-acre parcels (APN
053-090-36ST and 053-090-11ST) owned by the District and used for its wastewater treatment
plant and treated water disposal. These parcels are neither in the District service area nor in its
SOI.
The second anomaly is an 18-acre area bounded by West Kruger Avenue to the north, South
Lafayette Avenue to the west, South Hughes Avenue to the east, and West Avenue to the south
that is within the District service area but lies outside of its SOI.2 Additional information will be
provided Chapter 3 – Sphere of Influence Revision.
2 SOI Revision encompasses Assessor Parcel Numbers: 055-200-06S, 055-200-07S, and 055-200-04ST.
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Main roads within the community of Riverdale include Mount Whitney Avenue, South Marks
Avenue, South Hayes Avenue, and South Feland Avenue.
MAPPING DISCREPANCY
During the MSR preparation, the Fresno County Assessor-Recorders Division and LAFCo learned
that mapping data held by both agencies were not consistent with each other. LAFCo’s 2007
MSR and District map did not include approximately 80 acres of land that was purchased by the
District for its wastewater treatment plant. LAFCo records do not reflect any action taken by the
commission to annex this property by (Application No. and year) recognized in the District’s
service area, as depicted by Fresno County Assessor-Recorders Division.
The subject territory is not contiguous to the District’s service area located north of Riverdale
near the East Barrett alignment east of South Brawley Avenue.3 Approximately 40 acres of the
subject territory contain the District’s sewer treatment facility, while the remaining 40 acres are
fallow agricultural land. LAFCo observes that the two subject parcels have been in the District’s
ownership since 1994, however not depicted in LAFCo’s 2007 maps. New LAFCo maps for this
MSR now depict APNs 053-090-36ST and 11ST inside the District’s SOI, and consist of public
facility use.
AUTHORIZED DISTRICT SERVICES
Under Government Code (GC) section 56425(i), “when adopting, amending, or updating a
sphere of influence for a special district, the commission shall establish the nature, location, and
extent of any functions or classes of services provided by existing districts.”
Public Utility Districts are granted powers by statute to do all things necessary to provide its
residents and ratepayers with reliable utility services.4 Under State law, PUDs are authorized to
provide public lighting, water, power, heat, transportation, telephone service, or other means of
communication, or means for the disposition of garbage, sewage, or refuse matter.5 PUD’s
powers are categorized in eight sections, which are as follows: corporate powers, property,
utility works and services, purchase of supplies and advertising, indebtedness and financing,
receipts accounts and audits, taxation, and payments and claims against districts.6 In addition,
PUDs could also provide or manage fire protection departments, street lighting systems, public
parks, public playgrounds, golf courses, public swimming pools, public recreation buildings, and
buildings to be used for public purposes.
LAFCo observes that the Riverdale Public Utility District provides the following utility services:
public street lighting,
municipal water,
sewer and wastewater treatment,
storm drainage,
solid waste disposal, and
3 Assessor Parcel Numbers: 053-090-36ST and 053-090-11ST.
4 PUC sec. 16401-16682.
5 PUC sec. 16461.
6 PUC section 16401 et. seq.
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fire protection.
All other services, facilities, functions or powers enumerated in the District’s principal act are
determined to be “latent,” meaning that though they are authorized by the principal act under
which the District is formed these services are not being exercised or provided by the District at
the time this service review report was prepared.7 Activation of these latent powers and
services not currently provided by the District requires LAFCo authorization as indicated in
Government Code section 56021(m).
FRESNO LAFCO MSR POLICY
A Municipal Service Review (MSR) is required in order to prepare or update a local agency’s
sphere of influence.8 It is LAFCO’s observation that many special districts within Fresno County
typically do not request or experience modifications to their service area or request an update
or revisions to the Commission’s adopted SOI for the subject agency.
While the Commission is not required by law to make any changes to a SOI, the Commission
may, at its discretion, opt to reaffirm, expand, delete a SOI, or approve, deny, or approve with
conditions any changes of organization or reorganization impacting the governmental agency as
a result of the information gathered during the MSR update process.9
In accordance with GC sec. 56066, Fresno County is the principal county. Fresno LAFCo is
responsible for updating the SOI for the District consistent with GC sec. 56425(g). In order to
update the agency’s SOI, Fresno LAFCo has prepared this service review consistent with GC sec.
56430.
DISTRICT GROWTH AND POPULATION PROJECTIONS
In this section of the MSR, demographic information gathered from the 2010-2014 US Census -
American Community Survey (ACS) and land use policy documents adopted by the land use
authorities, as well as, growth projection reports were used to estimate population growth
within the District’s service area.
The District’s service area encompasses only unincorporated land within Fresno County. The
County of Fresno is the land use authority for all territory inside the District’s service area. The
Fresno County General Plan designates the majority of the land within the District as rural
residential, central trading-commercial, and light manufacturing. Land outside of the District is
designated for agricultural uses. Fresno County maintains the Riverdale Community Plan to
guide future growth within the plan area and the District’s boundaries. Fresno County last
updated the Riverdale Community Plan in 2013.
The Community of Riverdale is located approximately 29 miles south of the City of Fresno, and
approximately nine miles northwest of the City of Lemoore. Riverdale is recognized as a Census
7 GC section 56050.5.
8 GC section 56430.
9 Fresno Local Agency Commission – Policy 107 – Municipal Service Review Policy.
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Designated Place by the U.S. Census Bureau.10 According to the U.S. Census, Riverdale has a
population estimate of 4,081 people and a housing stock of 960 units.11
According to the 2016 Fresno County housing element the District serves 965 water and sewer
connections.12 Fresno County anticipates that the District’s water and sewer systems have
sufficient capacity to be expanded to accommodate future development depicted in the Fresno
County housing element and the Riverdale Community Plan. The housing element site inventory
estimated that the vacant land inside the existing Riverdale Community Plan could
accommodate 221 new residential units, of which 154 units can be multi-family units up to 18
units per acre on C-4 and R-2 properties. 13
The housing element also referenced the Fresno County 2050 Growth Projection prepared by
the Fresno Council of Governments (COG) to estimate additional growth projections and
housing characteristics in Fresno County. COG compiled multiple jurisdictional information
about planned development projects that will drive regional growth in the short term. The
study estimated growth projections for Fresno County between years 2015 and 2050, and
forecasts a 0.4 percent annual population growth rate in unincorporated areas of the County
outside of the 15 cities SOIs.14
Another source of information referenced in this report is the Riverdale Joint Unified School
District’s (RJUSD) School Facility Fee Justification Report for residential, commercial & industrial
development projects for areas within the Riverdale Joint Unified School District’s boundaries.
The purpose of RJUSD’s Report is to show that the school district meets pertinent requirements
of State law regarding the collection of developer fees. State law authorizes school districts to
charge fees on new residential and commercial/industrial developments if those developments
generate additional students and cause a need for additional school facilities.15
The RJUSD currently serves over 1,600 students and operates two elementary, one high school
and one continuation high school. The RJUSD report estimates 86 new residential units to be
built in the District over the next five years, 2016 to 2021, based on a review of Fresno County
Assessor Data.16
10 Census Designated Places (CDPs) are the statistical counterparts of incorporated places, and are
delineated to provide data for settled concentrations of population that are identifiable by name but are
not legally incorporated under the laws of the state in which they are located. The boundaries usually
coincide with visible features and have no legal status,. There are no population size requirements for
CDPs. Source:https://www.census.gov/geo/reference/gtc/gtc_place.html.
11 U.S. Census, American Fact Finder – American Community Survey 5 year estimates, 2010-14, Riverdale
CDP, California. Accessed, May 31, 2017.
12 Fresno Multiple-Jurisdictional Housing Element, Adopted March 15, 2016, Appendix 2A: County of
Fresno, page 2A-137.
13 Ibid.
14 Table 21- Projection of Total Population: Fresno County and Local Jurisdictions: 2015-2050, Fresno
County 2050 Growth Projections, Fresno Council of Governments
http://www.fresnocog.org/sites/default/files/publications/RTP/2018_RTP/Fresno_COG_2050_Projections
_Final_Report_050417.pdf.
15 Riverdale Joint Unified School District: July 2016, School Facility Fee Justification Report for Residential,
Commercial, and Industrial Development Projects, Pg.2. Accesses September 11, 2017.
16 Ibid.
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Although the school district’s boundaries are substantially larger than Riverdale PUD, planned
development that will require District municipal services is anticipated to occur only within the
area depicted within the Riverdale Community Plan.
The District has approximately 110 acres within its SOI that are vacant or underutilized and
therefore available for future development. New development within the community of
Riverdale will require land use entitlement or building permit approvals by Fresno County. New
development proposals require ministerial or discretionary approval and consist of new
construction, land subdivision, parcel maps. Such development proposals would also require
Fresno County Public Works and Planning to prepare an analysis demonstrating the District’s
capacity to extend service and consistency with the Fresno County General Plan and the
Riverdale Community Plan. For new developments outside the District’s jurisdiction, LAFCo
recommends the District to conduct early consultation with Fresno County Public Works and
Planning and LAFCo to determine whether annexation or an amendment of the District SOI is
necessary prior to the extension of new services.
According the Fresno County General Plan, rural settlement areas surrounded by agriculture and
open space have historically experienced little growth since their establishments. Substantial
population growth in unincorporated communities is not anticipated.17 The Fresno County
General Plan directs urban growth to the cities, the nearest of which are Kingsburg, Selma, or
Fowler. The projected growth within the Riverdale PUD SOI is consistent with the Commission’s
20 to 25-year planning horizon for SOIs.
DISADVANTAGED UNINCORPORATED COMMUNITIES
The Cortese-Knox-Hertzberg Local Government Reorganization Act of 2000 (CKH) requires LAFCo
to make determinations regarding "disadvantaged unincorporated communities" ("DUCs") when
considering a change of organization, reorganization, SOI expansion, and when conducting
municipal service reviews.18
For any updates to a SOI of a local agency (city or special district) that provides public facilities or
services related to sewer, municipal and industrial water, or structural fire protection, the
Commission shall consider and prepare written determinations regarding the present and
planned capacity of public facilities and adequacy of public services, and infrastructure needs or
deficiencies for any disadvantaged unincorporated community within or contiguous to the SOI
of a city or special district.
GC sec. 56033.5 defines a DUC as: i) all or a portion of a “disadvantaged community” as defined
by sec. 79505.5 of the Water Code (territory with an annual median household income (MHI)
that is less than 80 percent of the statewide annual median household income and as defined in
GC sec. 56046 and WC sec. 79505.5); and a status of ii) “inhabited territory” (12 or more
registered voters), as defined by GC sec. 56046, or as determined by Commission policy. Fresno
LAFCo policy further refines the definition of a DUC as having at least 15 dwelling units at a
density not less than one unit per acre.
17 County of Fresno, General Plan Agriculture and Land Use Element, page 2-26.
18 GC sections 56375 (a)(8)(A), section 56425(e)(5), and section 56430 (a) (2).
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Geographic Information System (GIS) files were derived from the US Census Bureau's American
Community Survey (ACS) compiled for the five-year period 2010-2014 to identify the
demographic composition for the various census geographies. Although the ACS provides
annual and three-year estimates, the five-year reports between years 2010-2014 provide more
precise data and mapping information for analyzing small populations. The five-year reports are
the most reliable form of information generated by the US Census bureau.19 The statewide MHI
reported for years 2010 through 2014 was $61,489. Hence, the calculated threshold for a DUC
is any geographic unit with a reported MHI that is less than $49,191. The census block group
data was utilized to provide the economic and population backgrounds for this section of the
MSR.
The District service area and SOI encompass various census tracts and block groups that meet
the Water Code definition of Disadvantaged Communities based on reported MHI levels. In
addition, the community of Riverdale satisfies at least two DUC criteria as defined by
Commission policy (density and number of residences).
Riverdale is located within U.S. census tract 77.00-block group 1 and 3. According to the US
census data, census tract 77.00-block group 1 had a MHI of $44,219 and block group 3 had an
MHI of $41,321 between years 2010-2014. This area of concern meets two DUC indicators
identified by Commission Policy 106, MHI threshold and at least 15 dwelling units. LAFCo
presumes that, for the purpose of this MSR, the District boundaries are inhabited in the absence
of a complete application filed with Fresno LAFCo.
As mentioned earlier in this report, residents inside the District boundaries receive public street
lighting, municipal water, storm drainage, solid waste disposal, and fire protection from
Riverdale Public Utility District. Public safety and Police protection is provided by Fresno County
Sheriffs and California Highway Patrol. Fire preventions, protection, and suppression is provided
by the District and Fresno County Fire Protection District, Cal Fire.
DISTRICT INFRASTRUCTURE
The District offers a number of municipal services to its customers. The District owns and
operates public facilities and infrastructure necessary to provide public street lighting, municipal
water, storm drainage, solid waste disposal, and fire protection. This section of the MSR will
summarize the District’s infrastructure and future needs.
District Administrative Offices
The District owns its administrative building located at 20986 Malsbary Street, Riverdale, Ca
93656. The District also owns a fire station adjacent to the District’s office that houses
firefighting personnel, equipment, machinery, and vehicles. The fire station is located at 20868
Malsbary Street, Riverdale, Ca 93656.
19 US Census Bureau, http://www.census.gov/acs/www/guidance_for_data_users/estimates/.
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Public Street Lighting
The District provides public street lighting services through a contract with Pacific Gas and
Electric Company (PG&E). PG&E leases streetlights, poles, fixtures, and the necessary
equipment required to power the street lighting network within Riverdale to the District. The
District makes a monthly payment to PG&E for the utility and maintenance bill. PG&E maintains
and services all the public streetlights within the District upon request of either the District or
the community residents. Street light fixtures within the District service area are fixed onto
pressure treated wood posts, approximately 20 feet above ground level, and powered by
overhead utility lines.
During the preparation of this report, the District informed LAFCo that approximately 130 public
streetlights are leased to the District. The District informed LAFCo that PG&E is working with the
District to update the existing streetlights, which consists of replacing the existing high-pressure-
sodium-vapor (HPSV) bulbs with efficient, long-lasting light-emitting diode (LED) fixtures. The
District anticipates that the new LED streetlights will be installed during 2018-19; no disruption
to electric service is anticipated by the District.
Public Water Distribution System
The District delivers municipal water supply through a public water distribution system
connected to wells dispersed throughout the District service area. The District owns the public
water system that supplies water to approximately 984 water connections.20 The District
informed LAFCo that it currently provides water service to 19 out-of-district customers.21
Majority of the water connections are metered and customers billed a flat rate if users stay
within the allotted water amount. The District informed LAFCo that there are a few unmetered
connections that are also billed a flat rate. The District plans to install meters on all connections
with the assistance of available grant funding.
The District is authorized as a domestic water supplier and regulated by the California State
Water Resources Control Board, Division of Drinking Water under permit order number 03-23-
17P-014.
The District owns seven wells of which two are active, two are on standbay, and three wells are
inactive and not in use. The District obtains its domestic water supply from two active
underground water wells: Well 06 and Well 07; Well 04 and Well 05 are active but in standby
due to arsenic levels above the maximum contaminant level (MCL) of 10 ppd.
The District obtains its primary groundwater supply from Well 06, which was constructed and
activated in 2014. Chlorination is not provided at Well 06. Well 06 is drilled at a depth of 1,870
feet, features a 16-inch diameter steel casing to a depth of 1,860 feet. Well 06 is equipped with
a vertical turbine pump rated with a 200 horsepower US motor. The maximum capacity of the
pump is 1,500 gallons per minute (gpm). Estimated yield for Well 06 is 2,000 gpm based on an
20 CA Drinking Water Watch, Riverdale Public Utilities District,
https://sdwis.waterboards.ca.gov/PDWW/JSP/WaterSystemDetail.jsp?tinwsys_is_number=892
&tinwsys_st_code=CA&wsnumber=CA1010028
21 District Response to LAFCo Municipal Service Review Questionnaire.
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8.5-hour constant rate pumping test conducted by the State Water Resources Control Board on
March 17, 2014. Well 06 is currently designed to meet the District’s maximum day demand, this
well directly pumps groundwater into the existing distribution system.
In addition, the District obtains groundwater supply from Well 07. The District completed
construction of Well 07 and surface features in October 2017. The construction of Well 07 was
funded by the State Water Resources Control Board, Division of Financial Assistance. Well 07 is
located northwest of the District’s service area near the intersection of Alva Avenue and Earl
Street. Well 07 was drilled at a depth of 2,010 feet, and its completed depth is at 1,840 feet.
Well 07 is equipped with American March model 11HCZ-7 vertical turbine pump with 150
horsepower US Motor. The maximum capacity of the pump is 1,000 gpm, the estimated yield of
Well 07 was 2,000 gpm based on a 9-hour constant rate pumping test conducted by the State
Water Resources Control Board on July 8, 2016. Well 07 is equipped with an emergency 500-
kilowatt diesel generator as backup power supply.22
Secondary groundwater supply is obtained from Well 05 and 04, both on standby. Well 05 was
built in 2000 and equipped with a continuous chlorination facility at the wellhead. Well 05 was
drilled at a depth of 510 feet, and features a 16-inch diameter stainless steel casing from 0 to
505 feet. Well 05 is equipped with a 150 horsepower variable speed drive motor that powers a
water lubricated vertical turbine pump. Well 05 flow ranges from 0 and 1,200 gpm based on
system demand. There are two 500 gallon double contained chemical storage tanks and an eye
wash station are located at the Well 05 site. However, since Well 05 is on standby both storage
tanks are not in current use, and are used on an as needed basis. Well 05 consists of a standby
towable 200 KVA diesel generator and a diesel storage tank. A chlorine injection assembly and
metering pump was located in and enclose to provide emergency chlorination as needed.
Well 04 was drilled in 1997 at a depth of 510 feet, and features a 16-inch diameter steel casing
from 0 to 500 feet and is screened from a depth of 370 feet to 490 feet. Well 04 is equipped
with a 100 horsepower variable frequency drive motor that powers a water lubricated vertical
pump. Well 04 flow ranges from 0 to 1,200 gpm based on system demand. Well 04 discharges
supply through a flow control valve, and is connected to the hydro-pneumatic tank located at
the well five site.
Groundwater from both Wells 05 and 04 is pumped into the 15,000 gallon above ground
horizontal hydro-pneumatic tank, where it is pressurized to 50 pounds per square inch before
discharging into the District’s water distribution system. Majority of the water distribution
system consists of PVC and asbestos-cement piping ranging in diameter from 4 to 8 inches.
There is some steel and cast iron pipe in the older portions of the distribution system. The
distribution system contains 125 fire hydrants, one (1) dead-end and one (1) blow-off valve.
According to California Drinking Water Watch information, District Wells 01, 02, and 03 have
current inactive status reports filed with the State Water Resources Control Board. The
22 Riverdale PUD 1010028, Well 07 Technical Report, November 22, 2017.
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California Drinking Water Watch website does not provide additional information regarding
inactive well sites.23
The District maintains adequate separation distance between sewer and water lines on all new
system connections. The District installs its water distribution pipelines in conformance with the
California Waterworks Standards.24 According to reports prepared by the State Water
Resources Control Board, Division of Drinking Water, no water shortage or outage problems
have occurred since 2016, the District’s previous system inspection.
The District has an on-going improvement plan that addresses the agency’s infrastructure
maintenance program. The District identifies and replaces aging water mains as part of its
capital improvement program. The District informed LAFCo that it regularly seeks grants that
could fund necessary infrastructure improvements. The District notes that its on-going
improvement plans allow for its water system to operate at adequate levels and continue
providing water service to its customers. During 2015, the District upgraded its infrastructure to
include two new water wells, a new water storage tank, installation of water meters, and a new
lift station.
Public Sewer System
The District owns and operates a public wastewater collection system and a treatment plant
located approximately 1.5 miles north of the District service area located east of South Brawley
Avenue and south of West Cerini Avenue (APN 053-090-11ST). The District serves
approximately 923 sewer treatment connections, including 864 residential services, 47
commercial businesses, nine churches, a library, and three schools.25 There are no significant
industrial land uses served by the District.
The District’s wastewater treatment plant is an aerated lagoon system designed to remove
biochemical oxygen demand (BOD) and suspend solids from the community’s wastewater. The
District’s wastewater collection system is tied to three lift stations that convey wastewater from
the source to the District’s wastewater treatment plant. The lift station is equipped with two
420 gallons per minute submersible pumps, with room for a future third pump. Each pump is
designed and sized to handle the existing peak hour flow.26 The District’s treatment facility
consists of a comminutor, an aeration pond, and six stabilization ponds operated in series.
Sewage is collected from throughout the community in a network of gravity sewers which come
together at a lift station located at the corner of Valentine and Stahem Avenues. All sewage
from the community passes through the lift station through a 10-inch sewer force main. The
existing force main was installed in 1958. Its condition is unknown.
23 California Drinking Water Watch,
https://sdwis.waterboards.ca.gov/PDWW/JSP/WaterSystemDetail.jsp?tinwsys_is_number=892&tinwsys_
st_code=CA&counter=0.
24 Waterworks Standard section 64570 - Material and Installation, and section 64572 - Water Main
Separation.
25 RPUD, Preliminary Engineering Report Wastewater Treatment Plant Improvement Project, January 24,
2017.
26 Ibid.
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Treated wastewater is disposed of on 33 acres of pasture west of the wastewater treatment
plant. The District sewage disposal process is regulated by the California Environmental
Protection Agency, Central Valley Regional Water Quality Control Board, Wastewater
Reclamation Order No. 85-252.
The wastewater treatment facility’s design capacity is 0.25 million gallons per day (mgd). The
facility presently operates at approximately 0.22 mgd (average daily flow), or 88% of the
treatment capacity.27 The Central Valley Regional Water Quality Control Board requires
planning for capacity expansion to occur when a system reaches 80% of the design capacity.
The District is in the process of updating its existing wastewater treatment facility operation
permit with the Regional Water Quality Control Board, Central Region. According to the
RWQCB, the District is running near capacity (0.25 mgd) and historically has had numerous
violations for standing water in the land application area (disposal) and for submittal of late
and/or incomplete monitoring reports to the RWQCB. In response, the District’s requested
permit update proposed a two-phased enlargement of the wastewater treatment facility to
meet the estimated growth of the community of Riverdale. To accommodate projected growth
and development, the District plans an expansion of its wastewater treatment plant to an
average daily flow rate of 0.325 mgd.
According to the District’s January 24, 2017 Preliminary Engineering Report Wastewater
Treatment Plant Improvement Project, the District projected a total of 1,243 to 1,372 sewer
service connections by 2035, an increase of 320 to 449 new connections.28 Based on the
District’s estimates, the wastewater treatment plant would have capacity to add approximately
383 new home connections within a 20-year planning horizon.29
The District has an on-going improvement plan that addresses the agency’s wastewater
treatment infrastructure needs and maintenance program. The District identifies and replaces
aging sewer mains as part of its capital improvement program. At the time this report was
prepared, the District completed various improvements that updated the sewer treatment
process and conveyance systems. The treatment facility improvements enable the District to
continue providing sewer treatment services within the community of Riverdale.
Storm Drainage System
The District maintains the storm drainage system within the community of Riverdale. The
District informed LAFCo that maintenance of the storm drainage system is relatively low
maintenance. Similar to the water and wastewater collection systems, the District’s storm
water collection system relies on natural topographic drainage ways connected to piping located
under existing developed areas. The storm drain facilities are designed to carry flows from the
paved portions of the District and convey the storm water runoff to the District’s wastewater
27 RPUD, Preliminary Engineering Report Wastewater Treatment Plant Improvement Project, January 24,
2017.
28 Ibid.
29 Based on California Department of Finance, report P-1 (total population) state and county population
projections, 2010-2060 (December 2014) estimated average growth rate for Fresno County over 20 years
is approximately 1.5 %.
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15
treatment facility for treatment. The District informed LAFCo that the storm drainage system is
expanded with each new approved development within the District.
Solid Waste Service
The District provides solid waste collection services through a contract with Waste Connections
doing business as Riverdale Allied Disposal. Solid waste pick up is performed once per week and
consists of solid waste refuse, yard waste and recyclables. Solid waste is transferred to the
Cedar Avenue Recycling and Transfer station located at 3457 S. Cedar Avenue in Fresno. The
District’s solid waste customers are primarily residential and incidental commercial customers.
Fire Protection Service
Fire protection within the community of Riverdale is provided by a Riverdale volunteer fire
company. The volunteer firefighters are not direct employees of the District but are assigned to
operate the District’s fire company. The District’s fire station houses two fire trucks, its training
facility, and a residential unit available for volunteer firefighters. The District also shares and
leases a portion of the facility to American Ambulance.
The District is surrounded by—but not within the jurisdiction of—the Fresno County Fire
Protection District (FCFPD), though it has an automatic aid agreement and an emergency
dispatch agreement with the FCFPD. The automatic aid agreement allows both agencies to
provide mutual support outside of their boundaries in case of a major emergency.30 The
emergency dispatch agreement enables FCFPD to receive all emergency calls, and dispatch the
appropriate agency to the reported emergency.
The District’s volunteer fire company consists of 18 volunteers, several of whom are tasked with
various responsibilities within the company. The District generally has three to five volunteers
on call and available for emergency response at any given time. Volunteers not scheduled for
duty are not typically on-call, unless there is a critical emergency. District volunteers average
20-35 hours of service per month depending on their availability and commitment to serve
within the community.
The District requires that each volunteer continue their emergency response education by
attending fire protection and prevention training activities. The District appears to assume that
its firefighters are all up-to-date with training requirements, adhere to training standards, and
are familiar with the industries best practices. However, during the preparation of this MSR,
LAFCo could not determine whether the District monitored its volunteers’ training requirements
nor whether the fire company was organized pursuant to Health and Safety Code sec. 14825 et
seq.31
In an effort to learn about training information, LAFCo staff contacted the chief of the FCFPD to
enquire about training opportunities within the Fresno County area. Chief Mark Johnson
30 Fresno County Fire Protection District, Riverdale Dispatch Agreement,
https://www.fresnocountyfire.org/wp-content/uploads/2017/06/BP-Riverdale-Dispatch-Agreement.pdf.
Accessed September 29, 2017.
31 Fire Companies in Unincorporated Towns – Organization, Powers and Duties, Exemptions.
MSR and Sphere Revision Riverdale Public Utility District
16
informed LAFCo that FCFPD/Cal Fire regularly conduct training events, and invites all local
firefighting personnel to attend the various training courses. Upcoming training courses are
noticed on the FCFPD’s website, and courses are primarily held at the Mid Valley Regional Fire
Training Center.32
During the MSR process, LAFCo could not determine the District’s most recent Insurance Service
Office (ISO) rating, which is issued through the Public Protection Classification (PPC) Program,
Fire Suppression Rating Schedule.33 ISO collects information on municipal fire-protection efforts
in communities throughout the United States. In each of those communities, ISO analyzes the
relevant data using the Fire Suppression Rating Schedule (FSRS). The PPC Program assigns a
Public Protection Classification from 1 to 10. Class 1 generally represents superior property fire
protection, and Class 10 indicates that the area's fire-suppression program does not meet ISO’s
minimum criteria.
Before a community can receive an ISO Public Protection Classification, the community must
have at least have the following items in place:
one fire chief;
at least four firefighters respond on the initial alarm to all reported structure fires, one
of the four may be the chief;
fire department must conduct training for active members at least 3 hours every 3
months;
communication facilities and arrangements must operate without delay; and
department must have at least one fire apparatus meeting the general criteria of
National Fire Protection Association (NFPA) 1901, Standard for Automotive Fire
Apparatus
Based on the lack of fire protection information, LAFCo could not determine the District’s ISO
status, average emergency response time, or whether District meets the minimum facilities and
practices criteria per the PPC rating program.34
DISTRICT FINANCES
This section of the MSR includes financial information provided by District management. The
District provided financial data to LAFCo to determine if the District has sufficient revenues and
financial systems to continue its provision of services to its customers. The following
information and analysis is based on the district independents auditors report and supportive
documents made available by the District.
The District prepares and adopts an annual budget for all of its funds on or before July 1st of
each year. The Special Revenue Fund budget is presented on the modified accrual basis
consistent with generally accepted accounting principles (“GAAP”). According to the Audit, the
District accounts are organized on the basis of fund accounting, and it utilizes a “general fund”
structure for its appropriations. Under fund accounting, different types of District operations
32 Fresno County Fire Protection District, Training, https://www.midvalleyregionalfiretrainingcenter.org/
33 ISO Mitigation, PPC Program, https://www.isomitigation.com/ppc/iso-s-public-protection-classification-
ppc-program.html
34 https://www.isomitigation.com/fsrs/minimum-facilities-and-practices-to-get-a-ppc-rating.html
MSR and Sphere Revision Riverdale Public Utility District
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are accounted for in different funds, each with a separate set of self-balancing accounts that
comprise its assets, liabilities, fund balance, revenues and expenditures as appropriate by each
service provided.
The District’s budget projects anticipated revenues and expenditures using detailed line items
for the upcoming year. Once a budget is adopted by the board, it can only be amended by
action of the District’s board. All budget appropriations lapse at the end of the fiscal year.
The District’s primary source of revenue is water and sewer user fees charged to all District
customers. The District also collects revenues from annual property taxes charged to all parcels
within the District. Additionally, the District receives its share the 1% property tax based on its
pre-Proposition 13 level of taxation through the Fresno County Auditor-Controller/Treasurer–
Tax Collector. The District also levies annual tax assessments for its public lighting system and
fire protection. At the time this service review was prepared, the District showed its total
operating revenues greater than its anticipated total operating expenditures. The District
reported to LAFCo that it has debt, which will be described later in this section.
The District provided LAFCo a copy of its independent auditor’s report for the Fiscal Year (FY)
ending June 30, 2014. The District’s financial audit was reviewed to determine the District’s
fiscal status, assess financial practices, and review pertinent management findings.
During FY 2013-14, the District’s total revenue amounted to $1,535,293. Of which
approximately $1,118,240 was generated from customer service fees, $286,451 from state
grants and contributions, $126,422 from annual property taxes, and $4,080 from investment
earnings.
During the same year, the District’s total expenditures amounted to $1,107,847. The auditor’s
report indicates that the following figures represent the expenditures for each type of District
service:
$94,482 - fire protection
$31,574 - public street lighting
$543,434 - water
$229,292 - sewer
$197,716 - solid waste.
The District paid approximately $11,349 of interest from its long-term debt.
According to the District financial statements, the District does not have an investment policy
that contains limitations on the amount of money that can be invested in any one issuer beyond
what is that stipulated in California Government Code. The District had a money market
account in the amount of $1,073,218 that represents more than 5% of total District investments
as of June 30, 2014.
The District voluntarily participates in the Fresno County and the State of California Local Agency
Investment Fund that is regulated by California Government Code under the oversight of the
State office of the Treasury Oversight Committee. As of June 30, 2014, the District’s balance in
the Fresno County and California Local Agency Investment Fund was $6,775 and $37,715,
respectively.
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As of the end of June 2014, the District showed over $2,404,563 in cash within its various bank
accounts, Bank of the West, Rabo Bank, Rabo Bank Money Market, Fresno County Treasurer,
and California Local Agency Investment Fund.
At the end of June 30, 2014, the District secured a federal loan for the new construction of Well
06 in the amount of $1,477,000. During the same year, the District also secured a federal grant
in the amount of $383,000, of which $182,675 was received by the District at the end of June
30, 2014.
The District has two long-term loans, and the District is making a good faith effort to repay its
debt. According to the auditor’s report, the District has one $164,465 with a 7.73% per annum
interest rate through March 2031. The District has a monthly payment of $1,466 that goes
toward the loan. The District’s second loan amounts to $1,457,000, which was borrowed to
perform various water system improvements. The District has a loan repayment plan with the
United States Department of Agriculture, due in annual installments of $20,000 to $54,000 plus
interest due semiannually at 2.125% per annum. The District’s overall long-term debt amounts
to $1,590,107.
The District has user rates for each of the services provided to its constituents. The District
charges its users $14.25 per month for solid waste disposal, $12.10 for residential wastewater,
and $16.15 for residential water, and street lighting is financed through a $14.70 property tax
assessment. New connection fees are charged as Development Impact Fees on any new
approved development within the District. The impact fee accounts for the increased costs for
expansion of facilities to provide service. The Development Impact Fees are annually reviewed
and when necessary are updated to adequately finance the expansion of existing facilities and to
finance new facilities.
At the time this service review update was prepared, the District appeared to have the
necessary financial resources to fund its ongoing operation costs. Based on available financial
information, the District is financially sound and demonstrates characteristics an agency that
appropriately monitors its finances and adjust rates when the District board deems it necessary.
PUBLIC FACILITIES, OPPORTUNITIES FOR SHARED FACILITIES
This section of the MSR considers the use of shared facilities, and their potential to offset costs
or promote greater efficiency in provision of services within the region.
Shared Facilities – Fire Station
The District benefits from its shared facilities with American Ambulance. The District leases one
of the fire company’s bays to American Ambulance for storage of an ambulance that primarily
serves the rural areas of south central Fresno County. The adjacent residential facility is also
shared with American Ambulance, and is available for EMS personnel to use as its rural standby
station.
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Shared Facilities – Wastewater Collection and Treatment
The 2013 California Department of Water Resources Disadvantaged Communities Pilot Project
Study35 determined that an issue of concern in western Fresno County communities was the lack
of wastewater collection and treatment systems. The Pilot Study noted problems with
residential wastewater disposal in the unincorporated community of Lanare, 3.5 miles west of
the District and the community of Riverdale. Lanare residents rely on individual septic systems
for wastewater treatment. The Pilot Study noted that the community of Lanare currently relies
on individual septic systems for wastewater treatment. There have been several reported septic
system failures and possible sewage overflows, creating a potential public health concern in the
community of Lanare. A secondary concern is groundwater quality. Groundwater is the sole
source of water supply for Lanare and other nearby communities, and is therefore a critical
resource to protect.36
The Pilot Study presented three alternative solutions for Lanare’s wastewater problems:
develop a Lanare Collection System that would interconnect directly to Riverdale PUD’s
wastewater treatment facility,
develop a Lanare Collection System that would connect to Riverdale PUD’s collection
system near Mount Whitney and Valentine Avenues, or
construct a Wastewater Treatment Plan for Lanare.
LAFCo notes that the Pilot Study did not conclude with a definitive alternative scenario
recommendation, nor did it conduct further feasibility, engineering, or cost studies.
Nevertheless, the Pilot Study anticipated that 150 connections in Lanare would need a capacity
of 0.053 million gallons per day (MGD).37 The Pilot Study’s estimated capacity numbers for
Lanare uses the existing wastewater production trends of Riverdale PUD and suggested that two
of the three alternatives would require an expansion of Riverdale PUD’s existing wastewater
treatment plant.
The Pilot Study’s preliminary engineering and technical analysis was performed as a foundation
for a later grant application to be prepared by either the Lanare CSD or Riverdale PUD to fund a
more thorough feasibility study with the Kings Basin Water Authority via Integrated Regional
Water Management Plan. LAFCo notes that at the time of this report Self-Help Enterprises is
assisting the Lanare CSD to prepare a grant application to fund an evaluation of the three
alternatives presented in the Pilot Study.
According to the State Regional Water Quality Control Board, the District is in the process of
updating its existing wastewater treatment facility-operating permit with the RWQCB, Central
Region. However, the District’s 2017 capacity engineering analysis filed with the RWQCB does
not address connecting Lanare to the RPUD system.38
35 California Department of Water Resources, Division of Integrated Regional Water Management, Kings
Basin Water Authority, Disadvantaged Community Pilot Project Study, August 2013.
http://www.water.ca.gov/irwm/grants/docs/p1DACinvolvement/Reports_Studies/KingsBasinDACPilotProj
ectStudy.pdf.
36Ibid, page 81.
37 Ibid.
38 State Regional Water Quality Control Board, Engineer Geologist, Electronic Email. September 29, 2017.
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Shared Facilities – Public Water System
During the preparation of this service review, LAFCo learned that the State Water Resources
Control Board (State) requested that the District consider taking on the managerial
responsibility of Lanare CSD’s public water system. The following narrative summarizes the
issues associated with the Lanare CSD water system, elaborates on the State’s request and
explores potential opportunities for possible staff augmentation between Riverdale PUD and
Lanare CSD.
Lanare CSD provides water to approximately 150 water connections, approximately 21 parcels
outside of the Lanare CSD SOI are served without authorization from LAFCo. In August 2010, a
Fresno County Superior Court judge placed Lanare CSD’s public water system in receivership by
petition from California Department of Public Health, Drinking Water Program. Department of
Public Health cited that Lanare CSD had multiple administrative violations, including but not
limited to, unreliable drinking water supply, water reported elevated arsenic levels, selling
municipal water for irrigation use, and frequent reported water outages. Lanare CSD’s public
water system has since been managed by several private utility companies. Since 2013,
California Water Services - Tito Balling Inc., has been the Court-appointed receiver assigned to
Lanare CSD. LAFCo anticipates that the receiver’s contract could terminate by mid-late 2018,
and the State is in search for a new receiver whether it is a private company or, based on its
proximity to the Lanare CSD, the Riverdale PUD, the nearest existing water service provider near
the community of Lanare.
LAFCo observes that Lanare CSD’s receivership status was planned to be an interim action to
allow Lanare CSD to correct its administrative practices, or for the State to find a permanent
solution to the lack of management of the Lanare CSD public water system.
While in receivership, several State-funded projects have been completed to improve Lanare
CSD’s water quality. The State has funded the construction and completion of two new wells
and the installation of a new public water distribution system to serve the community of Lanare.
During this time, the current receiver has informed the State and Court of its intent to request
cancellation its relationship with Lanare CSD.
The Court’s decision whether or not to dismiss the receivership and return the public water
system to Lanare CSD will rely on a credible record of Technical, Managerial, and Financial (TMF)
capacity demonstrated by Lanare CSD. In early 2016, the State began funding TMF training
courses provide by Self-Help Enterprises so that Lanare CSD board members can build up the
TMF capacity needed in order to retain its public water system. As of November 2017, Lanare
CSD has not demonstrated credible progress that assures and demonstrates its ability to
oversee a public water system incompliance with State regulations.
Riverdale PUD is the nearest agency to Lanare with a similar public water system; as such, the
State is considering Riverdale PUD as the most feasible entity to replace the existing Court-
appointed receiver. Under this consideration, the District informed LAFCo that the State and
Riverdale PUD would need to assess and develop agreeable conditions to safeguard Riverdale
PUD from becoming the permanent water receivership of the Lanare CSD water system.
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LAFCo notes that the overarching variable in the fate of the Lanare public water supply hinges
on Lanare CSD’s ability to meet the operational standards set forth by the State.
Under one potential scenario, the District could provide administrative and technical staff for
the day-to-day management and operation of the Lanare CSD public water system in
compliance with State water regulations. Consultation with the Riverdale PUD indicates that a
potential memorandum of understanding between the State, Lanare CSD, and Riverdale PUD
would need to be drafted with terms and conditions that are acceptable to these parties. The
Riverdale PUD General Manager informed LAFCo that the District board does not support this
scenario if it would burden the Riverdale rate-payers or impact the District’s operation.
Nonetheless, the District General Manager informed LAFCo that he has received preliminary
operation-financial estimates, and the District is in process to identify existing and potential
future costs to the Riverdale PUD to manage Lanare CSD’s public water system.39 The District
informed LAFCo that the preliminary operation-financial estimates assist the District project
operation and management costs, water line shut offs, water system inspection costs,
administrative billing and accounting time, bookkeeping costs, metering system and
maintenance costs, emergency repairs, anticipated revenues and development impact fees.
On November 7, 2017, the Riverdale PUD board of directors received a presentation from the
State regarding Lanare CSD’s receivership status and managerial consolidation options.
However, Riverdale PUD board of directors have not made a formal decision regarding Lanare
CSD.40 As of the preparation of this service review, the District has made no formal decision,
action, or recommendation.
Local Agency Boundary Overlaps
The District service area overlaps with the following of special districts:
Kings River Conservation District
Riverdale Irrigation District
Riverdale Memorial District
Consolidated Mosquito Abatement District
West Fresno County Red Scale District
Oak Grove Cemetery District
Riverdale Memorial
County Service Area 35BL (Road Maintenance)
County Service Area 35BJ(Road Maintenance)
County Service Area 35CN (Road Maintenance)
County Service Area 35AF (Road Maintenance)
GOVERNMENT ACCOUNTABILITY
This section of the MSR considers various topics, such as compliance with state disclosure laws,
the Brown Act, public participation, i.e. open meetings, accessible staff, election processes, and
39 Vincent Romero, GM Riverdale PUD telephone communication with LAFCo, December 20, 2017
40 Vincent Romero, GM Riverdale PUD telephone communication with LAFCo, November 15, 2017
MSR and Sphere Revision Riverdale Public Utility District
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the agency’s governing structure. Additionally, this section of the MSR considers the agency’s
level of participation with the Commission’s MSR program.
Public Utilities Code, section 15951 et seq. requires each public utility district to establish its
own internal organization controls. Furthermore, PUC sections 15951-16196 outlines the PUDs
election process, terms and compensation of directors, powers and duties of directors, board
meetings and legislation, and officer roles.
The District is an independent special district with its separate board of directors, not governed
by other legislative bodies (either a city council or a county board of supervisors). A body of five
elected officials serves as the governing body of the District. The five members of the board are
elected at-large by voters within the District boundaries to four-year terms or until their
successor qualifies and takes office. All five District board seats are filled, two are set to expire
late 2018, and three are set to expire late 2020. Active District board members receive a $75.00
per diem for each board meeting attended.
The board of directors creates District policy by adopting resolutions and ordinances through
duly-noticed public meetings. The District board meets on the first Tuesday of each month at
4:00 p.m. in the Fire Station Annex Building, located at 20868 Malsbary Street, Riverdale, Ca
93656. Meetings are noticed consistent with Brown Act requirements, which include postings in
public places, such as the District office and the Fire Station. Public notices and agendas are
displayed outside of the District office at least 72 hours before each meeting. District board
meetings are open to the public and residents are invited to attend the monthly board
meetings. Opportunity to address the District board on items not on the agenda is provided on
each meeting agenda. If a public member desires to present to the board, the person is
encourage to contact the District General Manager in advance.
The District informed LAFCo that board members are familiar with the Brown Act, and each
director is provided a hard copy of the Brown Act. Each board member and District officer
receives bi-annual training on the Brown Act and the Fair Political Practices Commission (FPPC).
The District board members are encouraged to attend Brown Act and FPPC trainings provided by
either California Special District Association, or any other certified agency or firm.
The District informed LAFCo that it recently unveiled an official District website, at
http://www.riverdalepublicutilitydistrict.com. The District’s website provides general district
information, water information, special events, drought information, and bill paying options.
The District plans to post additional District information such as District Board meeting agendas,
hearing information, and local news items.
The District has one appointed full-time General Manager responsible for the daily operations of
the District, and he/she is assisted by five full-time employees, and 18 volunteer firefighters.
The District’s office is open to the public Monday through Friday, 8:00 a.m. to 5:00 p.m. and
closed during the noon lunch hour. The District’s office assistant is available to handle customer
questions, billing questions, service requests, and concerns in person.
The General Manager is responsible for the overall operation of the District, including oversight
of the water, wastewater, storm drainage and street lighting systems. The General Manager is
assisted by three facility maintenance operators and one office assistant. The General Manager
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oversees and receives regular maintenance reports on scheduled water, wastewater, and street
light facilities assessments. The General Manager also prepares the annual District budget and
is responsible for financial accounts, billing books, and payroll.
The District is a member of the California Special Districts Association (CSDA) and the California
Special Districts Risk Management Authority (SDRMA). The CSDA is the association that
provides a strong voice for all independent special districts in the State by promoting legislative
representation, educational resources, and special district support and collaboration. The
SDRMA is a public agency formed under California GC section 6500 et seq. and provides a full-
service risk management program for California’s local governments. SDRMA provides local
agencies with comprehensive coverage protection for workers’ compensation, general liability,
public officials errors and omissions, employment practices liability, auto, property, boiler and
machinery, mobile equipment and crime and fidelity coverage. In addition, SDRMA provide
local agencies with access to a health benefits program including medical, dental, vision, and
life.
The District’s government structure is appropriate to ensure adequate services are provided and
managed. At the time preparing this MSR, the District’s government structure appears to be
adequately structured, operates, and fulfills its role as a services provider within the Riverdale
Community.
ANY OTHER MATTERS RELATED TO EFFECTIVE OR EFFICIENT
SERVICE DELIVERY
Sustainable Groundwater Management Act
The District’s service area, facilities and underground wells are solely within the North Fork
Kings Groundwater Sustainability Agency (NFGSA). 41 The District informed LAFCo that it
participates in groundwater recharge programs, and has entered into a participation
agreements with NFKGSA. Under State statute, a GSA is responsible for developing and
implementing a groundwater sustainable plan (GSP) to meet the sustainability goal of the basin
to ensure that it is operated within its sustainable yield, without causing undesirable results.42
As such, LAFCo anticipates that within the next five years the local GSAs will work with all Local
Agency’s that rely on groundwater pumping to establish recharge programs to offset and
balance groundwater usage within the groundwater table.
The NFKGSA was created through California special act legislation (SB 564 Canella) for the
specific purpose of implementing sustainable management. The NFKGSA is comprised of Clark’s
Fork Reclamation District, Laguna Irrigation District, Upper San Jose Water Company, Laton
Community Services District, Riverdale Public Utility District, Lanare Community Services District,
Crescent Canal Company, Stinson Canal and Irrigation Company, Riverdale Irrigation Company,
Reed Ditch Company, Liberty Mill Race Company, Burrel Ditch Company, Liberty Water District,
Liberty Canal Company.
41 California Department of Water Resources, SGMA Portal,
http://sgma.water.ca.gov/portal/gsa/print/211.
42 California Department of Water Resources, SGM Sustainable Groundwater Management,
http://www.water.ca.gov/groundwater/sgm/gsa.cfm.
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2 . MSR DETERMINATIONS
This portion of the report addresses the factors specified in the governing statute for Municipal
Service Reviews and provides analysis in conformance with GC section 56425 and Fresno LAFCo
policy. Pursuant to GC section 56430, the Commission has prepared the following written
determinations.
1. GROWTH AND POPULATION PROJECTIONS FOR THE AFFECTED
AREA
The unincorporated community of Riverdale served by the District is located along
Mount Whitney Avenue approximately three miles west of the State Route (SR) 41 and
Mt. Whitney intersection.
The County of Fresno is the land use authority for all territory inside the District’s service
area. Fresno County maintains the Riverdale Community Plan to guide future growth
within the plan area and the District’s boundaries.
According to the U.S. Census, Riverdale has a population estimate of 4,081 people and a
housing stock of 960 units.
The Fresno County 2050 Growth Projection prepared by the Fresno Council of
Governments estimated growth projections for Fresno County between years 2015 and
2050, and forecasted a 0.4 percent annual population growth rate in unincorporated
areas of the County outside of the 15 cities’ SOIs.
The California Department of Finance, estimated average growth rate for Fresno County
over 20 years is approximately 1.5 %.
Communication with the District indicates that it has no plans annex land into the
District. LAFCo expects that District growth will occur through private or market driven
development interest.
The District’s service area and sphere of influence (SOI) are not coterminous. The
District’s service area encompasses 424 acres, while the SOI encompasses
approximately 534 acres.
The District has approximately 110 acres identified within the District’s SOI available for
future development. New development within the community of Riverdale would
require land use entitlement or building permit approvals by the Fresno County Planning
Commission and/or Fresno County Board of Supervisors.
The 2016 Fresno County housing element the District serves 965 water and sewer
connections. Fresno County anticipates that the District’s water and sewer systems
have sufficient capacity to be expanded to accommodate future development, per the
Fresno County housing element.
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Riverdale Community Plan could accommodate 221 new residential units, of which 154
units can be multi-family units up to 18 units per acre on C-4 and R-2 properties.
2. THE LOCATION OF AND CHARACTERISTICS OF ANY
DISADVANTAGED UNINCORPORATED COMMUNITY WITHIN OR
CONTIGUOUS TO THE SPHERE OF INFLUENCE
The community of Riverdale satisfies at least two DUC criteria as defined by Commission
policy. Riverdale is located within U.S. census tract 77.00-block group 1 and 3.
According to the US census data, census tract 77.00-block group 1 had a MHI of $44,219
and block group 3 had an MHI of $41,321 between years 2010-2014.
Residents inside the District boundaries are receive public street lighting, municipal
water, storm drainage, solid waste disposal, and fire protection from Riverdale Public
Utility District.
Public safety and Police protection is provided by Fresno County Sheriffs and California
Highway Patrol. Fire preventions, protection, and suppression is provided by the District
and Fresno County Fire Protection District, Cal Fire.
3. PRESENT AND PLANNED CAPACITY OF PUBLIC FACILITIES
AND INFRASTRUCTURE NEEDS OR DEFICIENCIES
The District owns the public facilities and infrastructure necessary to provide public
street lighting, municipal water, storm drainage, solid waste disposal, and fire
protection.
The District owns its administrative building located at 20986 Malsbary Street,
Riverdale, Ca 93656.
Pacific Gas and Electric Company (PG&E) leases approximately 130 public streetlights to
the District. The District and PG&E are working with the District to update the existing
streetlights, which consists of replacing the existing high-pressure-sodium-vapor (HPSV)
bulbs with efficient, long-lasting light-emitting diode (LED) fixtures.
The District is authorized to as domestic water supplier and regulated by the California
State Water Resources Control Board, Division of Drinking Water under permit order
number 03-92-018.
The District obtains its domestic water supply from two active underground water wells,
well 06 and well 07. In total, the District owns seven wells, of which three are active and
four wells are inactive and not in existing use. Secondary groundwater supply is
obtained from Well 05 and 04, both wells are on standby. The District has an on-going
improvement plan that addresses the agency’s infrastructure maintenance program.
Well 06 is currently designed to meet the District’s maximum day demand, this well
directly pumps groundwater into the existing distribution system.
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The District completed construction of Well 07 and surface features in October 2017.
The construction of Well 07 was funded by the State Water Resources Control Board,
Division of Financial Assistance.
The District maintains the storm drainage system within the community of Riverdale.
The storm drainage system is expanded with each new approved development within
the District.
The District owns and operates a public wastewater collection system and a treatment
plant located approximately 1.5 miles north of the District service area located east of
South Brawley Avenue and south of West Cerini Avenue.
The District sewage disposal process is regulated by the California Environmental
Protection Agency, Central Valley Regional Water Quality Control Board, Wastewater
Reclamation Order No. 85-252.
The wastewater treatment facility’s design capacity is 0.25 million gallons per day (mgd).
The facility presently operates at approximately 0.22 mgd (average daily flow), or 88% of
the treatment capacity.
The District is in the process of updating its existing wastewater treatment facility
operation permit with the Regional Water Quality Control Board, Central Region.
The District’s permit update request proposed a two-phased enlargement of the
wastewater treatment facility to meet the estimated growth of the community of
Riverdale. The District plans for its wastewater treatment plant will be expanded to an
average daily flow rate of 0.325 mgd.
The District provides solid waste collection services through a contract with Waste
Connections doing business as Riverdale Allied Disposal. Solid waste is transferred to the
Cedar Avenue Recycling and Transfer station located at 3457 S. Cedar Avenue in Fresno,
Ca 93725.
The District owns a fire station adjacent to the District’s office that houses firefighting
personnel, equipment, machinery, and vehicles. The fire station is located at 20868
Malsbary Street, Riverdale, Ca 93656.
Fire protection is provided by the Riverdale PUD - Volunteer Fire Department. The
District’s volunteer fire company consists of 18 volunteers, several of whom are tasked
with various responsibilities.
The District has an automatic aid agreement and an emergency dispatch agreement
with Fresno County Fire Protection District.
LAFCo could not determine the District’s most recent Insurance Service Office (ISO)
rating, which is issued through the Public Protection Classification (PPC) Program, Fire
Suppression Rating Schedule.
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LAFCo could not determine whether the District monitored its volunteers’ training
requirements nor whether the fire company was organized pursuant to Health and
Safety Code sec. 14825 et seq.
The District informed LAFCo that its service provision all have adequate capacity to
continue serving the District’s needs.
4. FINANCIAL ABILITY OF AGENCY TO PROVIDE SERVICES
The District prepares and adopts an annual budget for all of its funds on or before July
1st of each year. The District’s budget projects anticipated revenues and expenditures
using line items for the upcoming fiscal year.
During FY 2013-14, the District’s total revenue amounted to $1,535,293. During the
same year, the District’s total expenditures amounted to $1,107,847.
The District’s primary source of revenue is water and sewer user fees charged to all
District customers. The District also collects revenues from annual property taxes
charged to all parcels within the District based on its pre-Proposition 13 level of taxation
through the Fresno County Auditor-Controller/Treasurer–Tax Collector.
The District has two long-term loans, and is making a good faith effort to repay its debt.
The District’s first loan amounts to $164,465 with a 7.73% per annum interest rate
through March 2031. The District’s second loan amounts to $1,457,000, which was
borrowed to perform various water system improvements.
The District has a Development Impact Fees program, and the program is annually
reviewed and when necessary are updated to adequately finance the expansion of
existing facilities and to finance new facilities.
The District has annual audits performed by independent certified public accountants.
The audits are submitted to the Fresno County Auditor and State Controller. Annual
audits conclude that the District’s financial practices conformed with generally accepted
accounting principles (GAAP).
Based on available financial information, the District is financially sound and
demonstrates characteristics an agency that appropriately monitors its finances and
adjust rates when the District board deems it necessary.
5. STATUS OF, AND OPPORTUNITIES FOR, SHARED FACILITIES
During the preparation of this report, LAFCo learned that the State Water Resources
Control Board (State) requested that the District consider taking on the managerial
responsibility of Lanare CSD’s public water system.
Riverdale PUD is the nearest agency to Lanare CSD with a similar public water system.
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Under the State’s scenario, the District could provide administrative and technical staff
for the day-to-day management and operation of the Lanare CSD public water system in
compliance with State water regulations.
As of November 7, 2017, the Riverdale PUD board of directors received a presentation
from the State regarding Lanare CSD’s receivership status and managerial consolidation
options. However, Riverdale PUD board of directors have not made a formal decision
regarding Lanare CSD.
No other opportunities have been identified for shared facilities that would present a
benefit to the Riverdale Public Utility District, or improve service provisions within the
vicinity of Riverdale.
6. ACCOUNTABILITY FOR COMMUNITY SERVICE NEEDS,
INCLUDING GOVERNMENT STRUCTURE AND OPERATIONAL
EFFICIENCIES
The District is governed by a five-member board of directors, voted at-large, and
functions independently from the County.
The board of directors creates District policy by adopting resolutions and ordinances
through duly-noticed public meetings. Active District board members receive a $75.00
per diem for each board meeting attended.
The District board meets on the first Tuesday of each month at 4:00 p.m. in the Fire
Station Annex Building, located at 20868 Malsbary Street, Riverdale, Ca 93656.
District board meetings are open to the public and residents are invited to attend the
monthly board meetings. Opportunity to address the District board on items not on the
agenda is provided on each meeting agenda.
The District recently unveiled an official District website:
http://www.riverdalepublicutilitydistrict.com. The District’s website provides general
district information, water information, special events, drought information, and bill
paying options.
The District has one appointed full-time General Manager responsible for the daily
operations of the District, and he/she is assisted by five full-time employees, and 18
volunteer firefighters.
The District is a member of the California Special Districts Association (CSDA) and the
California Special Districts Risk Management Authority (SDRMA). The CSDA is the
association that provides a strong voice for all independent special districts in the State
by promoting legislative representation, educational resources, and special district
support and collaboration.
The District’s government structure is appropriate to ensure adequate services are
provided and managed.
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7. ANY OTHER MATTER RELATED TO EFFECTIVE OR EFFICIENT
SERVICE DELIVERY, AS REQUIRED BY COMMISSION POLICY
The District’s facilities and underground wells are in solely in the North Fork Kings
Groundwater Sustainability Agency.
During the preparation of this MSR, the District informed LAFCo that it actively engages
in groundwater recharge programs, and has entered into a participation agreements
with the NFKGSA.
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3 . SPHERE OF I NFLUENCE R EVISION
Fresno LAFCo has prepared this service review consistent with GC sec. 56430 in order to update
the District’s sphere of influence in accordance with GC sec. 56425. The purpose of the service
review is to get a “big picture” of the public services provided by a local agency, determine
service needs, and make recommendations in order to promote the orderly development of
local agencies.
Chapter one of this Municipal Service Review was prepared in conjunction with this proposed
sphere update. In summary, the service review found that the District is efficiently providing its
various services within its existing service area, and has capacity to support additional growth
within its existing SOI.
The District has approximately 110 acres identified within the District’s SOI; Fresno County
general plan and Riverdale Community Plan designates low-density residential and general
industrial land uses for territory within the District’s SOI. The District informed LAFCo that it
does not actively plan to annex land currently designated within the District’s SOI.
The District informed LAFCo that any substantial revisions to the SOI or annexation requests
made to LAFCo would likely be initiated and funded by the development proponent. The
District would look to the County of Fresno to process the appropriate permit review or
environmental assessment analysis. The District board would also have an opportunity to
evaluate whether new development proposals or extension of District services would create an
impact on existing District service capacities.
Sphere of Influence Background and Analysis
According to the LAFCo record, on February 24, 1993, the Commission updated the existing
sphere of influence for Riverdale PUD to reflect Fresno County’s amendments to the Riverdale
Community Plan.43
LAFCo staff reviewed the District’s existing sphere boundary in light of the data collected during
the MSR process, as well as from meetings with the District, a comprehensive review of previous
LAFCo actions/resolutions, and County Assessor’s office staff. Furthermore, LAFCo staff
reviewed the County’s General Plan, Riverdale Community Plan, and assessed the District’s
service area and SOI as it relates to the Fresno County Riverdale Community Plan. Based on
analysis of these plans and policies, staff proposes the following SOI revision.
Proposed SOI Revision: (See Figure 2) This revision to the District’s SOI is based on information
developed during the course of this service review to correct District service area and SOI
inconsistencies: one area in use by the district but neither in its service area nor its existing SOI,
and two areas already in the District’s service area that are not within the District SOI. The
proposed SOI revision will add approximately 82.5 acres into the District SOI, and will not
change the District service area.
43 Fresno LAFCo File No. RSOI-91, Riverdale PUD SOI Revision, February 24, 1993.
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SOI revision to include the WWTF (Area 1) – takes in the land where the District’s 80-
acre wastewater treatment facility is located. The land is not contiguous to the District’s
service area and located north of Riverdale near the South Brawley Avenue and West
Barrett Avenue alignment intersection.44
During the preparation of the MSR, LAFCo found that the District’s 40-acre wastewater
treatment facility was previously shown on LAFCo’s 1993 District maps. However, this
territory was omitted from LAFCo’s 2007 District maps. LAFCo staff could find no record
of LAFCo action approving the annexation of this territory to the District, nor of the
LAFCo action that the County Assessor relied on to give the subject parcels a “T” (tax
exempt) designation. However, because it is physically developed for the purpose of
wastewater treatment and disposal, and given the District’s investment in this territory
and its long-standing use of the property, it is important to depict this site within the
District SOI. Further, by not having determined a SOI for this territory, it could appear
that LAFCo is signifying the eventual detachment of land from the District, which is not
the case.
Designating a SOI for Area 1 will also initiate action by LAFCo to work with the District
and the County Assessor to resolve Area 1’s status as a tax-exempt parcel not within the
boundaries of the RPUD and to plan for eventual annexation of this territory to the
District.
SOI Area 2- revises the existing District SOI by approximately one acre to encompass
APN 055-200-04ST, which is already in the District service area. The subject territory is
owned by the District and contains the District’s Well site 06. The subject parcel was
created in 2010, and is under the ownership of the District.45
LAFCo staff notes that the subject territory is designated for Agricultural uses by the
Fresno County General Plan, and identified in the AE-20 Exclusive Agricultural zone
district. Although the parcel is in the District service, the subject territory has not been
included in Riverdale Community Plan.
SOI Area 3- revises the existing District SOI by approximately 1.5 acres to encompass the
existing five-farm housing units situated on the western portion of APN 055-200-06S.
The subject parcel encompasses approximately 4.84 acres, of which approximately 3.34
acres are actively being farmed by the property owner. LAFCo notes that the entire
parcel is in the District service area; however, the five farm housing units are located on
the western portion of the land, and currently not in the District SOI.
The five farm housing units were constructed for farm employees in 1992 and front on
to Lafayette Avenue. The subject land is designated for Agricultural uses by the Fresno
County General Plan, and identified in the AE-20 Exclusive Agricultural zone district.
Although the entire parcel is in District service area, the subject territory is not identified
within the Riverdale Community Plan. LAFCo notes that Farm employee housing is a
44 Assessor Parcel Numbers: 053-090-36ST and 053-090-11ST.
45 Fresno County Plat book number 56, page 6
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permitted use within Fresno County’s AE-20 Exclusive Agricultural zone district. The SOI
revision would recognize the existing housing units in the District SOI.
Approval of the SOI revision for Area 3 includes LAFCo’s recommendations to the
District and Fresno County Public Works and Planning Division to either evaluate the
detachment of the balance of this area from the District or include parcels 055-200-06S,
-07S, -4ST in the County’s Riverdale Community Plan no later than the next scheduled
Riverdale Community Plan update.
When Fresno LAFCO updates a sphere of influence for a local governmental agency within its
purview, it must adopt specific determinations with respect to the following factors:
1. PRESENT AND PLANNED LAND USES, INCLUDING
AGRICULTURAL AND OPEN-SPACE LANDS
The District’s service area lies completely in the unincorporated areas of Fresno County.
The County of Fresno is the land use authority for land located within the District.
Fresno County maintains the Riverdale Community Plan to guide future growth within
the plan area and the District’s boundaries.
The District’s service area and sphere of influence (SOI) are not coterminous. The
District’s service area encompasses 424 acres, while the SOI encompasses
approximately 534 acres.
Land outside of the District service area is designated for agricultural uses.
New development within the community of Riverdale would require land use
entitlement or building permit approvals by the Fresno County Planning Commission
and/or Fresno County Board of Supervisors.
The County’s housing element site inventory estimated that the vacant land inside the
existing Riverdale Community Plan could accommodate 221 new residential units, of
which 154 units can be multi-family units up to 18 units per acre on C-4 and R-2
properties.
According the Fresno County General Plan, rural settlement areas surrounded by
agricultural and open space, such as the unincorporated communities, have historically
experienced little growth since their establishments. Substantial population growth in
the unincorporated communities is not anticipated in the future.
2. PRESENT AND PROBABLE NEED FOR PUBLIC FACILITIES AND
SERVICES IN THE AREA
The District is authorized to provide public street lighting, municipal water, sewer, storm
drainage, solid waste disposal, and fire protection.
The wastewater treatment facility’s design capacity is 0.25 million gallons per day (mgd).
The facility presently operates at approximately 0.22 mgd (average daily flow), or 88% of
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the treatment capacity. The most critical need for the District at this time is complete
the upgrade of the water treatment plant.
The District is capable of addressing and adjusting its probable service needs for public
facilities.
The projected growth within the Riverdale PUD SOI is consistent with the Commission’s
20 to 25-year planning horizon for SOIs.
3. PRESENT CAPACITY OF PUBLIC FACILITIES AND ADEQUACY OF
PUBLIC SERVICES THAT THE AGENCY PROVIDES OR IS
AUTHORIZED TO PROVIDE
The District currently has sufficient capacity to meet existing demands for public street
lighting, municipal water, storm drainage, solid waste disposal, and fire protection.
However, based on the MSR, the District has indicated is plan to expand its wastewater
treatment plant.
LAFCo observed that the organization and certification of the District’s fire company
may not be in compliance with relevant Health and Safety codes. The District did not
provide a record demonstrating that firefighters’ training requirements have been
maintained.
LAFCo notes that the District should develop and maintain an administrative record that
tracks volunteer fire personnel training attendance, demonstrates compliance to fire
training standards, and demonstrates an adequate record of the volunteers’ continued
education.
The District’s wastewater treatment and disposal facility is not within the RPUD service
area and both parcels have been designated as tax exempt by the County Assessor.
4. EXISTENCE OF ANY SOCIAL OR ECONOMIC COMMUNITIES OF
INTEREST IN THE AREA IF THE COMMISSION DETERMINES
THAT THEY ARE RELEVANT TO THE AGENCY
As observed by LAFCo, there no social or economic communities of interest exist near
the District relevant to the agency’s service provisions.
5. THE PRESENT AND PROBABLE NEED FOR THOSE PUBLIC
FACILITIES AND SERVICES OF ANY DISADVANTAGED
UNINCORPORATED COMMUNITIES WITHIN THE EXISTING
SPHERE OF INFLUENCE
The District service area and SOI encompass various census tracts and block groups that
meet the Water Code definition of Disadvantaged Communities based on reported MHI
levels. The community of Riverdale satisfies at least two DUC criteria as defined by
Commission policy.
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Riverdale is located within U.S. census tract 77.00-block group 1 and 3. According to the
US census data, census tract 77.00-block group 1 had a MHI of $44,219 and block group
3 had an MHI of $41,321 between years 2010-2014.
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4 . RECOMMENDATIONS
In consideration of information gathered and evaluated during the Municipal Service Review, it
is recommended the Commission:
1. Receive this report and any public testimony regarding the proposed Municipal Service
Review and proposed sphere of influence update.
2. Find that the Municipal Service Review is exempt from the California Environmental
Quality Act pursuant to section 15306 (Information Collection).
3. Approve the recommended Municipal Service Review determinations, together with any
changes deemed appropriate.
4. Acting as Lead Agency pursuant to California Environmental Quality Act (CEQA)
Guidelines, find that the proposed SOI revision is Categorically Exempt from the
provisions of CEQA under Section 15061(b) (3), “General Rule” where it can be seen
with certainty that a revision of the District SOI will not have an effect on the existing
environment.
5. Approve the recommended sphere of influence determinations, together with any
changes deemed appropriate.
6. Approve a SOI revision, as described in Chapter 3, which will add 82.5 acres into the
District SOI, and would not change the District service area.
7. Determine a new SOI to encompass the District’s 80-acre sewer treatment and disposal
facility located north of Riverdale near the South Brawley Avenue and West Barrett
Avenue alignment intersection.
8. Recommend the District and Fresno County Public Works and Planning Division to
evaluate the possible options to detach parcels 055-200-06S, -07S, -4ST or begin
planning efforts to include these parcels in the County’s Riverdale Community Plan no
later than the next scheduled Riverdale Community Plan update.
9. That the District collect an administrative record that tracks volunteer fire personnel
training attendance, demonstrates compliance to fire training standards, and
demonstrates an adequate record of the volunteers’ continued education.
10. Direct staff to work with the District and the County Assessor to resolve SOI Area 1’s
status as a tax-exempt parcels not within the boundaries of the RPUD and to plan for
annexation of this territory to the District.
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5 . ACKNO WL ED GEMENTS
This Municipal Service Review update was prepared by Fresno LAFCO. Supporting
documentation was made available through the effective partnership between District staff and
LAFCo. LAFCo extends its appreciation to the District for their assistance in the development of
this Municipal Service Review.
Available Documentation – documents used for the preparation of this report consist of public
records and are available at the Fresno Local Agency Formation Commission Office located at:
Fresno Local Agency Formation Commission
2607 Fresno Street, Suite B
Fresno, California 93721
The Municipal Service Review is available on Fresno LAFCo’s website,
http://www.fresnolafco.org/default.asp
G:\LAFCo Projects\Districts\PUD\Riverdale Public Utility\MSR Update\Final_Riverdale PUD MSR_02142018.doc
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