LAFCO
Fresno
Read the report at Local Agency Formation Commissions ↗
CITY OF FRESNO MUNICIPAL
SERVICE REVIEW AND SPHERE OF
INFLUENCE UPDATE
July 13, 2016
Preparedd for the
Fresno LLocal Agencyy Formation Commissionn
by Policyy Consultingg Associates,, LLC.
FRESNO LAFCO
CITY OF FRESNO MUNICIPAL SERVICE REVIEW
TA B L E O F C O N T E N T S
LIST OF FIGURES ..................................................................................................................................................... 4
ACRONYMS ................................................................................................................................................................ 5
PREFACE .................................................................................................................................................................... 2
CONTEXT ................................................................................................................................................................ 2
CREDITS .................................................................................................................................................................. 2
NOTE ........................................................................................................................................................................ 2
1. EXECUTIVE SUMMARY .............................................................................................................................. 12
GROWTH AND GROWTH STRATEGIES ...................................................................................................................... 12
DISADVANTAGED UNINCORPORATED COMMUNITIES .............................................................................................. 13
MUNICIPAL SERVICES .............................................................................................................................................. 13
FINANCING .............................................................................................................................................................. 16
GOVERNANCE OPTIONS ........................................................................................................................................... 17
SPHERE OF INFLUENCE ............................................................................................................................................ 18
2. LAFCO AND MUNICIPAL SERVICES REVIEWS ................................................................................... 19
LAFCO OVERVIEW ................................................................................................................................................. 19
MUNICIPAL SERVICES REVIEW ORIGINS .................................................................................................................. 20
MUNICIPAL SERVICES REVIEW LEGISLATION .......................................................................................................... 22
MUNICIPAL SERVICES REVIEW PROCESS ................................................................................................................. 23
SPHERE OF INFLUENCE UPDATES ............................................................................................................................ 24
3. CITY OF FRESNO OVERVIEW .................................................................................................................. 26
BACKGROUND ......................................................................................................................................................... 26
BOUNDARIES ........................................................................................................................................................... 26
SPHERE OF INFLUENCE ............................................................................................................................................ 29
CITY SERVICES ........................................................................................................................................................ 31
4. ACCOUNTABILITY AND GOVERNANCE ............................................................................................... 33
5. PLANNING AND MANAGEMENT PRACTICES ...................................................................................... 35
STAFFING AND ORGANIZATIONAL STRUCTURE ....................................................................................................... 35
MANAGEMENT PRACTICES ...................................................................................................................................... 38
PLANNING PRACTICES ............................................................................................................................................. 39
6. FINANCING .................................................................................................................................................... 40
OVERVIEW ............................................................................................................................................................... 40
REVENUES ............................................................................................................................................................... 43
EXPENDITURES ........................................................................................................................................................ 45
OTHER MAJOR FUNDS ............................................................................................................................................. 47
CAPITAL IMPROVEMENT PROGRAM ......................................................................................................................... 49
ASSETS AND LIABILITIES ......................................................................................................................................... 51
FINANCING EFFICIENCIES AND OPPORTUNITIES ....................................................................................................... 58
7. GROWTH AND POPULATION PROJECTIONS ...................................................................................... 59
LAND USE................................................................................................................................................................ 59
CURRENT POPULATION ............................................................................................................................................ 60
RECENT GROWTH .................................................................................................................................................... 72
GROWTH PROJECTIONS ............................................................................................................................................ 74
DEVELOPMENT ........................................................................................................................................................ 74
GROWTH STRATEGIES ............................................................................................................................................. 76
TABLE OF CONTENTS cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 1
FRESNO LAFCO
CITY OF FRESNO MUNICIPAL SERVICE REVIEW
8. AIRPORT SERVICES .................................................................................................................................... 88
SERVICE OVERVIEW ................................................................................................................................................ 88
STAFFING ................................................................................................................................................................. 90
FACILITIES AND CAPACITY ...................................................................................................................................... 91
INFRASTRUCTURE NEEDS ........................................................................................................................................ 92
CHALLENGES ........................................................................................................................................................... 93
SERVICE ADEQUACY ............................................................................................................................................... 94
9. FRESNO CONVENTION & ENTERTAINMENT CENTER SERVICES ................................................ 95
SERVICE OVERVIEW ................................................................................................................................................ 95
STAFFING ................................................................................................................................................................. 95
FACILITIES AND CAPACITY ...................................................................................................................................... 96
INFRASTRUCTURE NEEDS ........................................................................................................................................ 96
CHALLENGES ........................................................................................................................................................... 97
SERVICE ADEQUACY ............................................................................................................................................... 98
10. FIRE PROTECTION AND EMERGENCY MEDICAL SERVICES ...................................................... 100
SERVICE OVERVIEW .............................................................................................................................................. 100
STAFFING ............................................................................................................................................................... 103
FACILITIES AND CAPACITY .................................................................................................................................... 103
INFRASTRUCTURE NEEDS ...................................................................................................................................... 110
CHALLENGES ......................................................................................................................................................... 110
11. HOMELESS SERVICES .............................................................................................................................. 114
SERVICE OVERVIEW .............................................................................................................................................. 114
STAFFING ............................................................................................................................................................... 117
FACILITIES AND CAPACITY .................................................................................................................................... 118
INFRASTRUCTURE NEEDS ...................................................................................................................................... 118
CHALLENGES ......................................................................................................................................................... 119
SERVICE ADEQUACY ............................................................................................................................................. 119
12. PARKS AND RECREATION SERVICES .................................................................................................. 121
SERVICE OVERVIEW .............................................................................................................................................. 121
STAFFING ............................................................................................................................................................... 124
FACILITIES AND CAPACITY .................................................................................................................................... 124
INFRASTRUCTURE NEEDS ...................................................................................................................................... 141
CHALLENGES ......................................................................................................................................................... 141
SERVICE ADEQUACY ............................................................................................................................................. 142
13. LAW ENFORCEMENT SERVICES ........................................................................................................... 144
SERVICE OVERVIEW .............................................................................................................................................. 144
STAFFING ............................................................................................................................................................... 148
FACILITIES AND CAPACITY .................................................................................................................................... 150
INFRASTRUCTURE NEEDS ...................................................................................................................................... 152
CHALLENGES ......................................................................................................................................................... 152
SERVICE ADEQUACY ............................................................................................................................................. 153
14. SOLID WASTE SERVICES ......................................................................................................................... 156
SERVICE OVERVIEW .............................................................................................................................................. 156
STAFFING ............................................................................................................................................................... 157
FACILITIES AND CAPACITY .................................................................................................................................... 158
INFRASTRUCTURE NEEDS ...................................................................................................................................... 159
SERVICE ADEQUACY ............................................................................................................................................. 160
15. STREET MAINTENANCE SERVICES...................................................................................................... 162
SERVICE OVERVIEW .............................................................................................................................................. 162
TABLE OF CONTENTS cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 2
FRESNO LAFCO
CITY OF FRESNO MUNICIPAL SERVICE REVIEW
STAFFING ............................................................................................................................................................... 164
FACILITIES AND CAPACITY .................................................................................................................................... 165
INFRASTRUCTURE NEEDS ...................................................................................................................................... 166
CHALLENGES ......................................................................................................................................................... 167
SERVICE ADEQUACY ............................................................................................................................................. 167
16. TRANSPORTATION SERVICES ............................................................................................................... 170
SERVICE OVERVIEW .............................................................................................................................................. 170
STAFFING ............................................................................................................................................................... 172
FACILITIES AND CAPACITY .................................................................................................................................... 173
INFRASTRUCTURE NEEDS ...................................................................................................................................... 174
CHALLENGES ......................................................................................................................................................... 175
SERVICE ADEQUACY ............................................................................................................................................. 175
17. WASTEWATER SERVICES ....................................................................................................................... 177
SERVICE OVERVIEW .............................................................................................................................................. 177
STAFFING ............................................................................................................................................................... 179
FACILITIES AND CAPACITY .................................................................................................................................... 180
INFRASTRUCTURE NEEDS ...................................................................................................................................... 184
CHALLENGES ......................................................................................................................................................... 185
SERVICE ADEQUACY ............................................................................................................................................. 185
18. WATER SERVICES ...................................................................................................................................... 187
SERVICE OVERVIEW .............................................................................................................................................. 187
STAFFING ............................................................................................................................................................... 189
FACILITIES AND CAPACITY .................................................................................................................................... 189
INFRASTRUCTURE NEEDS ...................................................................................................................................... 195
SERVICE ADEQUACY ............................................................................................................................................. 197
19. GOVERNANCE STRUCTURE OPTIONS ................................................................................................ 199
20. MUNICIPAL SERVICE REVIEW DETERMINATIONS AND RECOMMENDATIONS ................... 215
GROWTH AND POPULATION PROJECTIONS ............................................................................................................. 215
LOCATION AND CHARACTERISTICS OF ANY DISADVANTAGED UNINCORPORATED COMMUNITIES WITHIN OR
CONTIGUOUS TO THE SPHERE OF INFLUENCE ........................................................................................................ 217
PRESENT AND PLANNED CAPACITY OF PUBLIC FACILITIES AND ADEQUACY OF PUBLIC SERVICES, INCLUDING
INFRASTRUCTURE NEEDS AND DEFICIENCIES ........................................................................................................ 218
FINANCIAL ABILITY OF AGENCIES TO PROVIDE SERVICES .................................................................................... 222
STATUS OF, AND OPPORTUNITIES FOR, SHARED FACILITIES .................................................................................. 223
ACCOUNTABILITY FOR COMMUNITY SERVICE NEEDS, INCLUDING GOVERNMENTAL STRUCTURE AND
OPERATIONAL EFFICIENCIES ................................................................................................................................. 224
21. SPHERE OF INFLUENCE UPDATE ......................................................................................................... 225
EXISTING SPHERE OF INFLUENCE .......................................................................................................................... 225
SPHERE OF INFLUENCE OPTIONS ............................................................................................................................ 225
SPHERE OF INFLUENCE ANALYSIS ......................................................................................................................... 228
SPHERE OF INFLUENCE DETERMINATIONS AND RECOMMENDATIONS .................................................................... 229
TABLE OF CONTENTS cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 3
FRESNO LAFCO
CITY OF FRESNO MUNICIPAL SERVICE REVIEW
L I ST OF F I G U R ES
FIGURE 2-1: COMMISSION MEMBERS, 2014 .............................................................................................................. 20
FIGURE 3-1: CITY OF FRESNO ANNEXATION HISTORY (2006-2013) ............................................................................. 28
FIGURE 3-2: MUNICIPAL SERVICE PROVIDERS ............................................................................................................. 31
FIGURE 4-1: CITY OF FRESNO GOVERNING BODY ........................................................................................................ 34
FIGURE 6-1: FY 14-16 TOTAL CITY RESOURCES &APPROPRIATIONS ........................................................................... 41
FIGURE 6-2: FY 12-14 TOTAL APPROPRIATIONS BY FUND CLASSIFICATION ................................................................ 42
FIGURE 6-3: GENERAL FUND SUMMARY FIVE-YEAR FORECAST .................................................................................. 42
FIGURE 6-4: GENERAL FUND RESERVE (THOUSANDS) .................................................................................................. 43
FIGURE 6-5: GENERAL FUND REVENUES ...................................................................................................................... 44
FIGURE 6-6: GENERAL FUND EXPENDITURES ............................................................................................................... 46
FIGURE 6-7: OTHER MAJOR FUNDS REVENUES/EXPENDITURES & FUND BALANCE ..................................................... 48
FIGURE 6-8: FY 16PROPOSED CAPITAL IMPROVEMENT PROGRAM .............................................................................. 50
FIGURE 6-9: NET ASSET SUMMARY GOVERNMENTAL ACTIVITIES AND BUSINESS ACTIVITIES .................................... 52
FIGURE 6-10: NET ASSET SUMMARY- MAJOR BUSINESS ACTIVITIES ........................................................................... 53
FIGURE 6-11: GENERAL FUND & OTHER GOVERNMENTAL FUNDS CASH RESERVES .................................................... 54
FIGURE 6-12: SUMMARY OF DEBT &FY 16 DEBT SERVICE .......................................................................................... 55
FIGURE 6-13: BOND RATINGS ...................................................................................................................................... 56
FIGURE 6-14: PENSION SYSTEM ACTUARIAL VALUATION ............................................................................................ 57
FIGURE 6-15: SUMMARY OF OTHER LONG TERM LIABILITIES ...................................................................................... 57
FIGURE 7-1: PARCELED LAND USE, 2011 .................................................................................................................... 59
FIGURE 7-2: VACANT LAND INVENTORY, 2011 (ACRES) ............................................................................................. 60
FIGURE 7-3: DISADVANTAGED UNINCORPORATED COMMUNITIES .............................................................................. 65
FIGURE 7-4: HISTORICAL POPULATION GROWTH, 1900 - 2010 .................................................................................... 72
FIGURE 7-5: ISSUED RESIDENTIAL PERMITS, 2000-2014 (UNITS) ................................................................................. 74
FIGURE 7-6: GENERAL PLAN PROJECTED POPULATION ............................................................................................... 74
FIGURE 7-7: GENERAL PLAN 2025 VISION .................................................................................................................. 78
FIGURE 7-8: GENERAL PLAN (2035) VISION ................................................................................................................ 78
FIGURE 7-9: GENERAL PLAN PRIORITY AREAS FOR DEVELOPMENT INCENTIVES ........................................................ 79
FIGURE 10-1: FIG GARDEN FIRE PROTECTION DISTRICT ........................................................................................... 101
FIGURE 10-2: NORTH CENTRAL FIRE PROTECTION DISTRICT .................................................................................... 101
FIGURE 10-3: FIRE PROTECTION AREAS IN AND AROUND CITY OF FRESNO .............................................................. 102
FIGURE 10-4: FFD FACILITIES, EQUIPMENT AND STAFFING 2013/2014 .................................................................... 105
FIGURE 10-5: FFD TOTAL CALL VOLUMES 2007-2014 .............................................................................................. 112
FIGURE 10-6: FFD BREAKDOWN OF 2014 CALLS ....................................................................................................... 112
FIGURE 10-7: FFD RESPONSE TIMES WITHIN CITY BOUNDARIES (2014) ................................................................... 113
FIGURE 12-1: CITY OF FRESNO PARK AND RECREATION FACILITIES .......................................................................... 127
FIGURE 13-1: FRESNO PD FACILITIES ........................................................................................................................ 151
FIGURE 13-2: AVERAGE CITYWIDE RESPONSE TIMES TO “0” PRIORITY CALLS, 2008-2014 ....................................... 154
FIGURE 13-3: FRESNO POLICE DEPARTMENT OVERVIEW ........................................................................................... 155
FIGURE 17-1: CITY OF FRESNO WASTEWATER SERVICE ADEQUACY INDICATORS ..................................................... 185
FIGURE 18-1: CITY OF FRESNO WATER SERVICE AREA .............................................................................................. 188
FIGURE 18-2: CURRENT AND PROJECTED WATER SUPPLY SOURCES IN NORMAL YEARS (AFY) ................................. 192
FIGURE 19-1: PINEDALE COUNTY WATER DISTRICT (WATER SERVICE) AND CITY OF FRESNO ................................. 201
FIGURE 19-2: PINEDALE COUNTY WATER DISTRICT (WASTEWATER SERVICE) AND CITY OF FRESNO ...................... 202
FIGURE 19-3: PINEDALE COUNTY WATER DISTRICT (SOLID WASTE SERVICE) AND CITY OF FRESNO ...................... 203
FIGURE 19-4: PINEDALE PUBLIC UTILITY DISTRICT AND CITY OF FRESNO ................................................................ 206
FIGURE 19-5: MALAGA COUNTY WATER DISTRICT AND THE CITY OF FRESNO ......................................................... 208
FIGURE 19-6: CALWA RECREATION AND PARK DISTRICT AND THE CITY OF FRESNO ................................................ 211
FIGURE 19-7: BLUFFS COMMUNITY SERVICE DISTRICT ............................................................................................. 213
FIGURE 21-1: HIGH SPEED RAIL MAINTENANCE FACILITY STUDY AREA ................................................................... 226
FIGURE 21-2: POTENTIAL FRIANT-COPPER SOI EXPANSION TERRITORY ................................................................... 227
LIST OF FIGURES cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 4
FRESNO LAFCO
CITY OF FRESNO MUNICIPAL SERVICE REVIEW
AC RON YMS
ACS: American Community Survey
ADA: Americans with Disabilities Act
ADWF: Average dry weather flow
af: Acre-feet
afa: Acre-feet per annum
ARFF: Aircraft Rescue and Fire Fighting
ASES: Afterschool Education and Safety
AVCRAD: Aviation Classification Repair Activity Depot
BHC: Building Healthy Communities
BLS: Basic Life Support
BOD: Biological oxygen demands
BOE California Board of Equalization
BPAC: Bicycle Pedestrian Advisory Committee
BRT: Bus rapid transit
CAFR: Comprehensive Annual Financial Report
CAD: Computer Aided Dispatch
CALEA: Commission on Accreditation for Law Enforcement Agencies
CalEMA: California Emergency Management Agency
CalRecycle: California Department of Resources, Recycling, and Recovery
CALTRANS: California Department of Transportation
CANG: California Air National Guard
CARTS: Cedar Avenue Recycling and Transfer Station
ccf: Hundreds of cubic feet
CC&R Covenants, Conditions and Restrictions
CEO: Chief Executive Officer
CEQA: California Environmental Quality Act
CFAI: Commission on Fire Accreditation International
cfs: Cubic feet per second
CHDO: Community Housing Development Organization
CHP: California Highway Patrol
CIWMB: California Integrated Waste Management Board
CIP: Capital improvement plan
CKH: Cortese-Knox-Hertzberg Local Government Reorganization Act of 2000
CMS: Center for Medical and Medicaid Studies
CNG: Compressed natural gas
COP: Citizens on Patrol
CRPD: Calwa Recreation and Park District
CSA: County Service Area
CSD: Community Services District
CSDA: California Special District Association
CSIB: Crime Scene Investigations Bureau
CSM: Collection system maintenance
CSU: Call Screening Unit
CTSA: Consolidated Transportation Service Agencies
ACRONYMS cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 5
FRESNO LAFCO
CITY OF FRESNO MUNICIPAL SERVICE REVIEW
CUSD: Clovis Unified School District
CVP: Central Valley Project
CY: Calendar year
DARM: Development and Resource Management Department
DFG: California Department of Fish and Game
DME: Durable Medical Equipment
DOF: California Department of Finance
DPH: California Department of Public Health
DPU: Department of Public Utilities
DUC: Disadvantaged Unincorporated Community
DVMT: Daily vehicle miles traveled
DWR: California Department of Water Resources
EMS: Emergency Medical Services
EMT: Emergency Medical Technician
EOC: Fresno County Economic Opportunities Commission
EPA: U.S. Environmental Protection Agency
ERAF: Educational Revenue Augmentation Fund
ERP: Enforcement Response Plan
ERS: Employees Retirement System
FAA: Federal Aviation Administration
FAT: Fresno Yosemite International Airport
FAX: Fresno Area Express
FCFPD: Fresno County Fire Protection District
FCH: Fresno Chandler Executive Airport
FCVB: Fresno Convention Visitors Bureau
FCCVB: Fresno Clovis Convention and Visitors Bureau
FCDCH: Fresno County Department of Community Health
FCMA: Fresno Clovis Metropolitan Area
FCRTA: Fresno County Rural Transit Agency
FD: Fire District
FDAC-FASIS: Fire District Association of California- Fire Agency Self-Insurance System
FEERAM: Fire Engine Equipment Replacement and Maintenance
FEMA: Federal Emergency Management Agency
FF: Firefighter
FFD: Fresno Fire Department
FGFPD: Fig Garden Fire Protection District
FID: Fresno Irrigation District
FMAAA: Fresno Madera Area Agency on Aging
FMCoC: Fresno Madera Continuum of Care
FMFCD: Fresno Metropolitan Flood Control District
FMVCD: Fresno Mosquito and Vector Control District
FOG: Fats, oils and greases
FPD: Fresno Police Department
FPRS: Fire and Police Retirement System
FRC: Fresno Revitalization Corporation
FSL: Fresno Sanitary Landfill
FTA: Federal Transit Administration
ACRONYMS cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 6
FRESNO LAFCO
CITY OF FRESNO MUNICIPAL SERVICE REVIEW
FTE: Full Time Equivalent
FUN: Fresno United Neighborhoods
FUSD: Fresno Unified School District
FY: Fiscal year
GGE: Gasoline gallon equivalent
GIS: Geographic Information Systems
GM: General Manger
gpd: Gallons per day
gpm: Gallons per minute
GP: General Plan
HEAT: Help eliminate auto theft
HMRT: Hazardous Materials Response Team
HSR: California High Speed Rail
HUD: U.S. Department of Housing and Urban Development
I/I: Infiltration and inflow
ISD: Information Services Department
ISO: Insurance Services Organization
IRWMP: Integrated Regional Water Management Plan
IWMA: Integrated Waste Management Act
ITS: Intelligent Transportation System
JHA: Jurisdiction having authority
JPA: Joint Powers Authority
KRCD: Kings River Conservation District
KRWA: Kings River Water Association
LAFCo: Local Agency Formation Commission
LEA: Local enforcement agency
LOS: Level of service
LRT: Light rail transit
MCL: Maximum Contaminant Level
MCWD: Malaga County Water District
MEIR: Master Environmental Impact Report
mg: Millions of gallons
mgd: Millions of gallons per day
MHI: Median household income
MOU: Memorandum of Understanding
MSR: Municipal Service Review
MS4: Municipal separate storm sewer systems
NA: Not applicable
NASSCO: National Association of Sewer Service Company
NCFPD: North Central Fire Protection District
NESWTF: Northeast Surface Water Treatment Facility
NFPA: National Fire Protection Association
NFWRF: North Fresno Water Reclamation Facility
NP: Not provided
NPDES: National Pollutant Discharge Elimination System
NRPA: National Recreation and Park Association
OASA: Out-of-Area Service Agreement
ACRONYMS cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 7
FRESNO LAFCO
CITY OF FRESNO MUNICIPAL SERVICE REVIEW
OES: Office of Emergency Services
OIT: Operator in training
OPR: Governor’s Office of Planning and Research
PARCS: City of Fresno Parks, After School, Recreation, and Community Services
PCWD: Pinedale County Water District
POST: Peace Officer Standards and Training
PMS: Pavement Management System
PPUD: Pinedale Public Utility District
PSAP: Public Safety Answering Point
PWWF: Peak wet weather flow
RFP: Request for proposals
RID: Resort Improvement District
RWQCB: Regional Water Quality Control Board
RWRF: Regional Wastewater Reclamation Facility
SCADA: Supervisory Control and Data Acquisition
SDMRA: Special District Risk Management Authority
SDWA: Safe Drinking Water Act
SEDA: Southeast Development Area
SEGA: Southeast Growth Area
SOI: Sphere of influence
SSMP: Sewer System Management Plan
SSO: Sewer System Overflow
SWAT: Special Weapons and Tactics
SWP: State Water Project
SWTF: Surface Water Treatment Facility
SR: State Route
SWRCB: State Water Resources Control Board
TDS: Total dissolvable solids
TIGER: Transportation Investment Generating Economic Recovery
TMDL: Total maximum daily load
TPL: Trust for Public Land
TOT: Transient occupancy tax
TSS: Total suspended solids
UGM: Urban Growth Management
USAR: Urban Search and Rescue
USDA: United States Department of Agriculture
USFS: United States Forest Service
UWMP: Urban Water Management Plan
VIPS: Volunteers in Police Service
WDR: Waste discharge requirements
WWTP Wastewater treatment plant
WTP: Water treatment plant
YJPP: Fresno Youth Job Preparation Program
ACRONYMS cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 8
FRESNO LAAFCO
CITYY OF FRESNO MUNICIPAL SERVICE REVIEW
PREEFACC E
Prepared for the Fresno Loocal Agencyy Formationn Commission (LAFCo)), this Muniicipal
Services Review (MMSR) is a Staate-requiredd compreheensive studyy of servicess within thee City
of Fresno. This MSR focuses on municipaal services pprovided byy the City, inncluding airrport,
conventiion, fire, emmergency mmedical, hommeless, parrks and reccreation, laaw enforcemment,
solid waste, street mmaintenancee, transporttation, wasttewater, andd water servvices.
CONTEXTT
Fresnno LAFCo is required to preparee this MSR by the Corrtese-Knox-HHertzberg LLocal
Governmment Reorgaanization AAct of 2000 (Governmeent Code §556000, et seeq.), which took
effect onn January 1, 2001. The MSR reviews servicees providedd by public agencies wwhose
boundarries and govvernance arre subject tto LAFCo. TThe City of Fresno is tthe focus off this
review.
CRREDITS
The City provided a substaantial portioon of the innformation included inn this documment,
including budgets, financial sttatements, vvarious plaans, and ressponded to questionnaaires.
The authors extend their apppreciation tto those inndividuals aat the City of Fresno that
providedd informatioon, documents, and asssistance crucial to this rreview.
Fresnno LAFCo EExecutive OOfficer Davvid Fey, proovided projject directiion and revview.
Fresno LLAFCo Anallyst George Uc, prepared maps annd providedd GIS analysis. This reeport
was preepared by Policy Conssulting Asssociates, LLLC, and waas co-authored by Jennnifer
Stephenson and Oxxana Wolfsoon. Jenniferr Stephensoon served aas project mmanager. OOxana
Wolfson provided rresearch anaalysis. Reseearch assisttance was pprovided byy Arianna Menon
and Umaa Hinman.
NNOTE
This MSR begaan with a kickoff meeeting betwween city sstaff, LAFCoo staff, and its
consultaant in Augusst, 2013. Att that time ccity manageement staff were briefeed on the prroject
and the material suupport for thhis project iin the form of informattion and daata coordinaation.
Since thhat time, senior management sttaff underwwent a siggnificant chhange-over, and
replacemment staff who were not present at the kickoff asssumed leaddership of their
respectivve departments. Criticcal communication linkks were lost in this trannsition leading to
lags in thhe review aand commennt of administrative drrafts of this report. LAFCo and thee city
have maade a good faaith effort too account foor discrepanncies in the data.
PREFACE cÉÄ|vç VÉÇáââÄÄà|Çz TááÉv|tàxxá? __V 2
FRESNO LAAFCO
CITYY OF FRESNO MUNICIPAL SERVICE REVIEW
1 . E XEEC U TIIVE SSU M MM A RYY
This report is a Municipal SService Reviiew (MSR) aand Sphere of Influencee (SOI) Studdy on
the servvices provided by thee City of FFresno preepared for the Fresnoo Local Aggency
Formatioon Commisssion (LAFCCo). An MSR is a Staate-requiredd comprehensive studdy of
services within a ddesignated ggeographic area, in this case, thee City of Fresno. The MSR
requiremment is codified in the Cortese-Knnox-Hertzbeerg Local GGovernmentt Reorganizaation
Act of 22000 (Goveernment Coode Section 56430et sseq.). Afterr MSR deteerminationss are
adopted, the Commission will uupdate the ssphere of innfluence (SOOI) of the Citty of Fresnoo.
GGROWTHH AND GGROWTHH STRATTEGIES
The CCity of Fressno has experienced siggnificant grrowth over the last 30 years. Thee City
anticipattes that higgh rates of growth wiill continuee through 22035, but nnot to the ssame
degree as growth rates seeen in prevvious yearss. Althouggh new deevelopmentt has
significantly slowedd in recent years, the City conttinues to hhave appliccations for new
structures and largger multi-unnit developmments. Thee City’s Genneral Plan pprojects thaat the
area witthin the Citty’s SOI willl accommoodate an addditional poopulation of approximmately
226,000 new resideents by 20335, resultingg in a total population of 771,0000, which equuates
to an aveerage annuaal growth raate of 1.24 ppercent overr the next 20 years.
The City adopteed an updatte to its 20025 Generall Plan Updaate in Decemmber 2014.. The
focus of the City’s GGeneral Plann is to balannce investmment in estabblished neigghborhoodss and
new groowth areas. Due to plaans for a grreater empphasis invesstment alonng high cappacity
transit ccorridors annd downtowwn, the Geneeral Plan alllows an oveerall increase in resideential
density aand developpment intennsity in thosse areas as ccompared too the 2025 GGeneral Plann.
In orrder to efficciently accoommodate tthis projectted growth,, the Generaal Plan callls for
strategicc sequencinng of development between neww growth annd infill arreas in ordeer to
maximizze existing infrastructuure. Develoopment willl occur within the Innfill Opportuunity
Zones (IOZs) and GGrowth Areaas 1 and 2 as infrastruucture becoomes availabble and demmand
increasees. The Ciity and Coounty will need to evvaluate andd renegotiaate the currrent
Memoraandum of Unnderstandinng regardingg annexationn as it is sett to expire inn 2017.
The California HHigh Speedd Rail projeect is anticiipated to ppromote ecoonomic andd job
growth wwith the construction oof the proposed heavyy maintenannce facility jjust south oof the
Fresno SSOI and development of the downttown stationn. To capitaalize on the project, thee City
has alreaady initiatedd a Station AArea Master Plan; this plan evaluaates econommic and landd use
opportunnities in thee areas surrounding thee identified HSR stationn location.
The City works to collaborrate with neighboring agencies too address issues of muutual
concern and plan oon a regionnal scale foor future grrowth and development. The Ciity of
Fresno hhas partnereed with 13 of the otherr 15 federallly-defined Urbanized AAreas in thee San
Joaquin Valley as ppart of the SSmart Valleey Places neetwork. Thhe City has made efforrts to
meet witth the City oof Clovis regarding plaanning for ggrowth in arreas of mutuual interestt, and
has madde plans to continue tthis practicce. The Citty has adoppted severaal policies iin its
General Plan to eensure coorrdinated developmentt of certaiin infrastruucture commmon
betweenn the City oof Fresno aand City off Clovis. Giiven these efforts, theere is roomm for
EXECUTIVVE SUMMARYY cÉÄ|vç VÉÇáââÄÄà|Çz TááÉv|tàxxá? __V 12
FRESNO LAAFCO
CITYY OF FRESNO MUNICIPAL SERVICE REVIEW
enhanceed regional planning onn the part oof the City wwith the Citty of Clovis,, Fresno County,
Madera County, annd other neeighboring cities, as wwell as enhhanced collaboration with
Fresno LLAFCo.
The City of Frresno has irregular boundariess and seveeral large unincorporrated
urbanizeed areas enntirely or substantiallyy surrounded by the city limits. These ‘coounty
islands’ exist in parrt because they were ddeveloped inn the Countty long befoore the city grew
to their edge. Manyy were approved by thhe County wwith special districts too provide onne or
more mmunicipal seervices. Thhis perceptiion of servvice independence conntributes too the
residentts’ historic opposition to annexaation and thhe persisteence of the county isllands
within thhe city limitts.
Fresnno LAFCo adopted a policy encouraging aannexation of unincorrporated isllands
within ccity limits aand requirinng cities in Fresno Couunty to devvelop planss to annex tthese
areas. TTo date, thee City of Fresno does nnot have a plan in plaace for anneexation of tthese
islands. The City hhas commented duringg the prepaaration of tthis MSR thhat “it is fisscally
imprudeent for thee City of FFresno to aannex thesee islands aand peninssulas withoout a
significant shift in tthe tax sharring agreemment with thhe County.” In response, to the exxtent
that the City’s Geneeral Plan annticipates annnexation oof land, the City’s anneexation proggram
should rreflect the comprehennsive actionns needed ffor its fiscaally balanceed, orderly,, and
logical immplementattion.
DDISADVAANTAGEDD UNINCCORPORRATED CCOMMUNNITIES
Goveernment Codde §56430 rrequires LAAFCo to idenntify the loccation and characteristiics of
any disaadvantaged unincorporrated commmunities witthin or conttiguous to tthe SOI. Frresno
LAFCo ddeveloped a policy to aid in defininng how to goo about idenntifying these communnities.
Fresno LAFCo Poliicy 106 maandates thaat LAFCo wwill verify all informaation and mmake
independent attemppts to identtify DUCs ussing informmation sourcces. LAFCo staff considdered
various sources of informmation avaiilable andd included local coommunity-bbased
organizaations in ordder to determine the llocations whhere DUCs may exist wwithin the CCity’s
SOI bounndaries andd greater unnincorporatted areas. OOver the couurse of thiss process, LAAFCo
staff ideentified 20 DUCs withhin Fresno’ss SOI and ssix DUCs wwithin a onne mile disttance
outside tthe adoptedd SOI bounddaries.
MMUNICIPPAL SERRVICES
The CCity providees a wide vaariety of muunicipal serrvices to its constituents. The serrvices
reviewedd as part off this MSR aare limited to airport, cconvention center, firee protectionn and
emergenncy medicall, homeless,, parks and recreationn, law enforrcement, sollid waste, sstreet
maintenance, transpportation, wwastewater, and water services.
Present and PPlannedd Capaciity
Finanncial limitattions of the City have rresulted in rreorganizattion of several departmments
and a significant reeduction in staffing, reesulting in llimited capacity of all departmennts to
maintainn service leevels. Certaain departmments whosse funding is primarilly derived from
propertyy and sales tax revenuues, face moore significaant challengges to capaccity than otthers.
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CITY OF FRESNO MUNICIPAL SERVICE REVIEW
The public safety departments have more readily identifiable capacity concerns, compared
to other departments, as defined by prolonged emergency response times.
The City of Fresno Police Department had to implement significant organizational
changes to meet community needs with fewer resources, including priority modification,
staff reassignment, and restructuring of the operations. These economic constraints,
combined with other issues, such as parole reform and the early release of prisoners, have
required the Department to focus its resources on the highest priority duties, resulting in
longer response times.
The Fire Department has been unable to meet target response times, due to cuts in the
number of units available to respond. Additionally, due in part to the duplication of services
provide by American Ambulance, the Department has stopped responding to serious
medical emergency calls, and reduced availability for all public education outreach.
The Parks, After School, Recreation and Community Services Department (PARCS) has
experienced deferred maintenance of infrastructure which is costly to maintain and relies
heavily on volunteers for maintenance work.
The City requires additional staff and infrastructure capacity to address anticipated
demand for fire, law enforcement, park, wastewater, and water services. All other
reviewed services appear to have sufficient or excess capacity to handle projected demand.
Service Adequacy
The City appears to provide adequate services based on the performance measures
assessed in this document. No significant deficiencies were identified that greatly affect the
overall level of services offered. However, typical of any public service provider, there is
room for improvement in the level of services offered by the City. During the course of this
review the following highlighted recommended enhancements to service were identified to
address issues or public safety concerns:
1. Ensure that contract convention center provider continues to meet benchmarks
and subsidizing of operations by the General Fund is minimized to the greatest
extent possible.
2. Continue to strive for lower response times by public safety departments to meet
goals and standards.
3. Prioritize the availability of parks or other green space in older neighborhoods to
ensure an equal distribution of park and recreation facilities throughout the City.
4. Continue to ensure timely water quality testing and reporting.
5. Address infiltration and inflow in the wastewater collection system in Downtown
Fresno.
6. Appropriately plan for future capacity needs of the Regional Wastewater Facility
given approaching capacity threshold of 75 percent.
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Infrastructure Needs and Deficiencies
The City plans for infrastructure needs in a five-year capital improvement plan that is a
component of the annual budget. The City is proposing $1.3 billion in capital
improvements amongst the various departments between FYs 16 and 20, with the most
extensive expenditures in the Public Works and Public Utilities Departments. The most
noteworthy infrastructure needs identified for each service are as follows:
1. Airports: A majority of the airports’ major infrastructure needs were addressed in
FY 14 with smaller projects planned over the next five-year period.
2. Fresno Convention & Entertainment Center: Three of the halls/theaters associated
with the Fresno Convention & Entertainment Center are aging and in need of
improvements that have been deferred until sufficient funding could be identified.
Funding has recently been identified and a facility assessment is to be conducted to
prioritize necessary improvements.
3. Fire and EMS: The Fire Department has plans for a new fire station to replace its
existing temporary structure where Station 18 is presently housed. Other
infrastructure needs include a new Fire Apparatus Repair Facility as well as
upgrades to the Fire Training Facility; however, these capital improvements have
been deferred until funding can be identified.
4. Homeless: There is opportunity for community leaders to develop plans for the
creation of an appropriate emergency shelter. There is a continued need to develop
plans for permanent housing opportunities. While the City might be able to help
fund the cost of an emergency homeless shelter, the underlying responsibility of
operating such a facility resides with the County and/or other social service
agencies.
5. Law Enforcement: Reportedly, there are multiple law enforcement infrastructure
needs that have not yet been recorded because facilities have not been thoroughly
assessed.
6. Parks and Recreation: The City continues to develop new parks as funding allows,
but it has had to make certain cuts to cover budget shortfalls and ensure adequate
funding for continued maintenance upon construction. As a result of budget cuts,
there is substantial deferred maintenance at existing park facilities. In addition, the
level of funding from park impact fees, combined with developers applying fee
credits to their projects, have resulted in General Fund dollars that could have been
used for deferred maintenance now being used to cover the debt service for new
parks built over the last 10 years.
7. Solid Waste: The City conducts groundwater remediation in the vicinity of the
inactive Fresno Sanitary Landfill as prescribed by the United States Environmental
Protection Agency (USEPA). In the near- and long-term future, the City will continue
to conduct and fund groundwater remediation at the inactive Fresno Sanitary
Landfill as directed by the USEPA.
8. Streets: Fresno has transportation facilities that meet all modes of circulation, but
the systems for pedestrians and bicycles are largely incomplete. The reduction in
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gasoline tax revenue byy the State of Californiia has resullted in less revenue thhat is
avvailable for street and road mainteenance efforts.
9. TTransportatiion: The Citty is propossing significcant improvvements to iits public trransit
syystem overr the next ffive years. Capital andd operatingg expendituures will haave a
particular emmphasis onn the bus rapid transiit and imprroving servvice levels aalong
other key traansit corridoors (e.g., Shaw Avenue)).
10. WWastewater Collection System: Thhe City hass funded ann inspection, maintenance,
reepair and rreplacementt program ffor the wasstewater coollection sysstem to adddress
exxpected weear and deteerioration oof the systeem. Additionnally, the City is in neeed of
and is plannning to construct the East Centraal Recycledd Water Faccility to proovide
reecycled watter for non--potable purrposes and redirect seewer flow frrom a portioon of
thhe sewer truunk system that lacks aadequate caapacity.
11. WWastewater Treatmentt: At present, there iss more thann adequate capacity aat the
Fresno-Cloviis Regional Wastewater Reclamatiion Facility to handle eexisting demmand;
however, thhe City willl need to assess optiions for adddressing ppotential fuuture
inncreased deemand at thhe facility, ass it is nearinng 75 perceent capacityy—the thresshold
att which inittial planning efforts arre required by State sttatute and aare considerred a
best manageement practice.
12. WWastewater Recycling: The City hhas prepareed a Recycled Water MMaster Plann that
presents an implementtation plan for a 25,0000 acre-fooot per year recycled wwater
program. PPhase I of the recycleed water trreatment aand distribuution systeem is
scchedule to be placed iinto servicee October 11, 2016, witth a goal of having 255,000
acre-feet of rrecycled waater availablle to the commmunity byy 2025.
13. WWater: In Feebruary, 20115, the Fressno City Couuncil approvved a five-yyear capital plan
and five-year rate plan for the Water Divisionn to improvve the reliabbility, resiliency,
and sustainaability of thee City’s watter supply ssystem. The major commponents oof the
City’s waterr capital plan include raw waterr pipelines,, additional surface wwater
trreatment facilities, finished wwater trannsmission mains, aand intenttional
groundwaterr recharge facilities. TThe construuction of the water cappital prograam is
sccheduled too be complleted by Deecember 20018. The wwater capital programm will
allow the City to produuce approxiimately 1100,000 acre-feet per yeear of surface to
reeduce the demand on tthe City’s groundwater supply sources.
14. Economic DDevelopmennt: The Ciity is purssuing in paartnership with indusstrial
developers tthe creation of “shovvel ready” iindustrial pproperty. The City hhas a
shhortage of industrial property that is prroperly enttitled in thhe City annd is
developmentt ready. Woorking withh private inddustrial landd owners annd developeers is
crritical to hhave industtrial propeerty availabble for jobb creation, expansion and
atttraction.
FINNANCINGG
The City of Freesno, like aall other citties in the State of CCalifornia, hhas sufferedd the
devastatting impactts that the prolongedd recessionn has had on its ecoonomy and City
revenues. Loss of significant ammounts of saales tax, prooperty tax, aand service charge reveenue,
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CITYY OF FRESNO MUNICIPAL SERVICE REVIEW
combineed with an iincrease in public safeety related eexpenses sppecific to thhe General Fund
heavily iimpacted thhe financial ccondition of the City.
Due to the City’’s size, munnicipal servvice responssibilities, baargaining uunit agreemments,
debt serrvice obligaations, and capital exppenditure reequirementts, revenue growth didd not
proportiionately maatch expendditure increaases. Howevver, the Cityy has madee great striddes in
implemeenting cost saving meaasures to mmanage the slow revennue recovery, includinng an
overall rreduction oof approximmately 1,200 employees, reductioon or suspension of ssome
maintenance and reeplacement of equipmeent, and inccreased utiliization of voolunteers wwhere
feasible in the parkss and recreaation type aactivities.
The CCity has impplemented a five-year budget plann to managee the fiscal condition oof the
City andd grow itselff back to suustainable levels. Due tto the instaability of revenues, thee City
previoussly experiennced significcant short tterm cash fflow problemms, incurreed negative fund
balancess that have been repaid, and until recently, hhad no oppportunity too build adeqquate
cash reserves. The ffive-year plan proposeed by the Maayor and suubsequentlyy adopted by the
City Council is workking to addrress many of these longg term and ssystemic isssues.
As is the case wwith most citties, a numbber of departments ideentified lackk of fundingg as a
significant challengge to increasing servicee levels. Thhe City’s “eenterprise ffunds” (business
type actiivities) are nnow financiially stable aand no longger need to rely on the General Funnd to
cash floww some of thhese operattions (e.g., FFresno Areaa Express). There are ssome exceptions
such as the Public Works Department inn which thhe reimburssement for various fedderal
grants caan, at times,, negativelyy impact the General Fuund’s cash position.
GOVERNAANCE OPPTIONS
Therre are severral agenciess, including Pinedale CCounty Water District, Pinedale PPublic
Utility DDistrict, Malaga Countyy Water District, 10 Coounty Servicce Areas, Caalwa Recreaation
and Parkk District, aand Bluffs Community Services District, that provide muunicipal services
similar tto the City. These agenncies’ multiiple servicee boundariees overlap the incorporrated
City terrritory and unnincorporatted areas/isslands withiin the City’ss SOI.
Past planning aanalyses conncluded thaat service ddelivery effiiciencies coould result from
consoliddation of serrvice responsibilities bby fewer local agenciees. A successsful exampple is
the eightt-year effort in the 19990s to consoolidate the CCounty Watter Districtss with the Ciity of
Fresno’ss Water Diviision.
Givenn the City’ss current Geeneral Plann focus on tthe fiscal efffects of groowth, it maay be
prudent to reassesss the efficienncies of multiple speciaal districts inn the Fresnoo SOI.
The Fresno Meetropolitan Flood Control Districct (FMFCD)) encompassses almostt the
entirety of the Fressno-Clovis MMetropolitann Area, withh the excepption of 6.5 square milles of
SEDA, wwhich has yet to be anneexed to the District. Onnce all of SEEDA is annexed, FMFCDD will
develop and adopt storm wateer master pllans for SEDDA. Annexaation of thee remaining area
would alllow the District to moove forwardd in planninng for the entirety of thhe metropoolitan
area.
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SPPHERE OOF INFLUENCE
The City’s Sphere of Influeence (SOI) wwas most rrecently uppdated by FFresno LAFCCo in
2006 annd again in 2007. The current SSOI is compprised of mmost land wwithin the CCity’s
boundarries, as well as the uninncorporatedd islands, annd land beyond the outter city limits on
all four sides. Thee SOI encommpasses 1557 square miles, of wwhich 43 ssquare miles is
unincorpporated landd.
The ffollowing opptions are iddentified with regard tto the Commmission’s deesignated SOOI for
the City of Fresno:
Optioon #1: City Proposal – No Change
Optioon #2: Expaansion to innclude potenntial High Sppeed Rail MMaintenance Facility
Optioon #3: Expaansion to innclude identtified parcells in the Friaant-Copper area
Optioon #4: Remmoval of SEDDA from Cityy’s SOI
Optioon #5: Deteermine an SOI for the RRegional Waater Reclamaation Facilitty
Givenn the uncerrtainty in timming of the high speedd rail projecct and the laack of prezooning
for the property, combined with the City’s desirres to retaain its existing SOI, it is
recommended that the high sppeed rail sitee be considered for incclusion in thhe SOI whenn the
Fresno ssite is selectted. At that point, the CCity can apply to LAFCoo for an SOI amendmennt.
The CCity did nott identify thhe Friant Copper parcells as a potenntial excepttion to its ddesire
to retainn its existinng SOI; howwever, the proposed adddition is mminimal in ssize and exiisting
land usee is not proposed to change. Thhe addition of these pparcels to tthe City’s SOI is
recommended.
SEDAA is identifieed as Growtth Area 2 inn the City’s General Plaan. It is reccommendedd that
this SOI be retainedd at this time to allow ffor the oppoortunity to pproperly adddress the ppolicy
concernss identified in this repoort. Fresno LAFCo mayy define a period within which thee City
must repport back aand providee the statuss of its efforrts at conducting speccific planninng or
identifyiing a timelinne for whenn specific plaanning will occur.
It is recommennded that an SOI be ddetermined for the Reegional Watter Reclamaation
Facility in order too facilitate future annexations neecessary foor expansion of this ppublic
facility.
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CITYY OF FRESNO MUNICIPAL SERVICE REVIEW
2 . LLA FCCO ANND MM U N I C I PA L
SE RV I CEES R EEV I EWWS
This report is prrepared purrsuant to leegislation ennacted in 20000 that requires LAFCCo to
conduct a comprehhensive review of muniicipal servicce delivery and updatee the spherres of
influencee (SOIs) off all agenciies under LLAFCo’s jurrisdiction. This chaptter providees an
overvieww of LAFCo’s history, powers and rresponsibilities. It disccusses the oorigins and legal
requiremments for prreparation oof the Muniicipal Servicces Review (MSR). Finally, the chaapter
reviews the processs for MSR reeview, MSR approval, and SOI updaates.
LAFCOO OVERVVIEW
Afterr World Warr II, Californnia experiennced dramattic growth iin populatioon and econnomic
developmment. Withh this boomm came a deemand for hhousing, jobbs and pubblic servicess. To
accommodate this ddemand, maany new loccal governmment agencies were forrmed, often with
little forrethought ass to the ultimate governance struuctures in aa given region, and exiisting
agenciess often commpeted for expansion areas. The lack of ccoordinationn and adeqquate
planningg led to a muultitude of ooverlappingg, inefficientt jurisdictional and servvice boundaaries,
and the ppremature cconversion of Californiia’s agricultuural and oppen-space laands.
Recognizing this problem, in 1959, GGovernor EEdmund G. Brown, Srr. appointedd the
Commisssion on Metropolitan AArea Probleems. The CCommission's charge wwas to studyy and
make recommendattions on thee "misuse oof land resoources" and the growinng complexiity of
local goovernmentaal jurisdicttions. Thhe Commission's reccommendattions on local
governmmental reorgganization wwere introdduced in thee Legislaturre in 1963, resulting inn the
creation of a Local AAgency Formmation Commmission, orr "LAFCo," ooperating in every counnty.
LAFCCo was formmed by thee Legislaturre as a couuntywide aggency to diiscourage uurban
sprawl and encourage the oorderly formmation andd developmment of loccal governmment
agenciess. LAFCo is responsiible for coordinating logical andd timely chhanges in local
governmmental bouundaries, iincluding annexationns and detachmentss of terriitory,
incorporrations of ccities, formaations of sppecial distriicts, and coonsolidationns, mergerss and
dissolutiions of distrricts, as well as reviewwing ways tto reorganizze, simplify,, and streammline
governmmental struccture. The Commission's efforts aare focusedd on ensuring that serrvices
are provvided efficiently and eeconomically while aggricultural and open-sspace landss are
protecteed. To bettter inform iitself and thhe communnity as it seeeks to exercise its chharge,
LAFCo conducts serrvice reviewws to evaluaate the provvision of muunicipal serrvices withinn the
County.
LAFCCo regulatees, through approval, denial, connditions annd modificaation, bounndary
changes proposed by public aagencies orr individualls. It also regulates tthe extensioon of
public seervices by cities and sppecial districcts outside ttheir jurisdiictional bouundaries. LAAFCo
is empowwered to innitiate updaates to the SOIs and pproposals innvolving the dissolutioon or
consoliddation of sppecial districcts, mergerrs, establishhment of suubsidiary diistricts, andd any
reorganiization incluuding such aactions. Othherwise, LAFFCo actions must originnate as petitions
or resoluutions from affected vooters, landowwners, cities or districtts.
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Fresnno LAFCo consists of fiive regular members: ttwo membeers from thee Fresno Coounty
Board off Supervisorrs, two city council meembers, andd one publicc member wwho is appoiinted
by the oother membbers of thee Commissioon. There iis an alternnate in each category.. All
Commisssioners aree appointedd to four-yeear terms. Any membber appointted on behaalf of
local govvernment shall represeent the inteerests of thee public as a whole annd not solelyy the
interest of the appointing authoority Government Codee Section 566325.1
Figure 2--1: Commmission Memmbers, 20144
Appoointing Ageency MMembers Alternatte Memberrs
Two meembers fromm the Boarrd of BBrian Pacheeco Buddy MMendes
Supervissors appoointed by the HHenry Pereaa
Board off Supervisorrs.
Two members reepresentingg the RRobert Silvaa Chet Reilly
cities in the Countyy. Must bee city DDaniel Parraa
officer aand appointed by thee City
Selectionn Committee.
One meember fromm the general MMario Santooyo Michael Lopez
public apppointed byy the otherr four
commisssioners.
MUUNICIPAAL SERVICES REEVIEW OORIGINS
The MMSR requirrement was enacted byy the Legisllature montths after thee release off two
studies rrecommendding that LAAFCos conduct reviewss of local aggencies. The “Little Hooover
Commisssion” focussed on the need for ooversight aand consolidation of sspecial disttricts,
whereass the “Commmission on LLocal Goverrnance for tthe 21st Cenntury” focused on the need
for regioonal planninng to ensurre adequatee and efficieent local govvernmentall services aas the
Californiia populatioon continues to grow.
Little Hooverr Commiission
In May 2000, thhe Little Hooover Commission releaased a report entitled SSpecial Disttricts:
Relics off the Past oor Resourcees for the FFuture? Thiis report foocused on ggovernancee and
financiall challengess among speecial districcts, and the barriers to LAFCo’s puursuit of disstrict
consoliddation and dissolutionn. The repport raisedd the conccern that ““the underrlying
patchwoork of speciaal district goovernmentss has becomme unnecesssarily redunndant, ineffiicient
and unacccountable.”
In paarticular, thhe report raised conceern about aa lack of viisibility andd accountabbility
among ssome indepeendent speccial districtss. The reporrt indicatedd that many special disttricts
hold exccessive reseerve funds and some receive queestionable property taax revenue.. The
report expressed cooncern about the lack of financiall oversight of the distrricts. It asseerted
that finaancial reporrting by special districtts is inadequate, that ddistricts are not required to
submit ffinancial infformation too local elected officialss, and conclluded that ddistrict finaancial
informattion is “larggely meaninngless as a tool to evaluuate the effeectiveness aand efficienncy of
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services provided by districts, or to make comparisons with neighboring districts or
services provided through a city or county.”1
The report questioned the accountability and relevance of certain special districts with
uncontested elections and without adequate notice of public meetings. In addition to
concerns about the accountability and visibility of special districts, the report raised
concerns about special districts with outdated boundaries and outdated missions. The
report questioned the public benefit provided by healthcare districts that have sold, leased
or closed their hospitals, and asserted that LAFCos consistently fail to examine whether
they should be eliminated. The report pointed to service improvements and cost reductions
associated with special district consolidations, but asserted that LAFCos have generally
failed to pursue special district reorganizations.
The report called on the Legislature to increase the oversight of special districts by
mandating that LAFCos identify service duplications and study reorganization alternatives
when service duplications are identified, when a district appears insolvent, when district
reserves are excessive, when rate inequities surface, when a district’s mission changes,
when a new city incorporates and when service levels are unsatisfactory. To accomplish
this, the report recommended that the State strengthen the independence and funding of
LAFCos, require districts to report to their respective LAFCos, and require LAFCos to study
service duplications.
Commission on Local Governance for the 21st Century
The Legislature formed the Commission on Local Governance for the 21st Century
(“21st Century Commission”) in 1997 to review statutes on the policies, criteria,
procedures and precedents for city, county and special district boundary changes. After
conducting extensive research and holding 25 days of public hearings throughout the State,
at which it heard from over 160 organizations and individuals, the 21st Century
Commission released its final report, Growth Within Bounds: Planning California
Governance for the 21st Century, in January 2000.2 The report examines the way that
government is organized and operates, and establishes a vision of how the State will grow
by “making better use of the often invisible LAFCos in each county.”
The report points to the expectation that California’s population will double over the
first four decades of the 21st Century, and raises concern that our government institutions
were designed when our population was much smaller and our society was less complex.
The report warns that without a strategy open spaces will be swallowed up, expensive
freeway extensions will be needed, job centers will become farther removed from housing,
and this will lead to longer commutes, increased pollution and more stressful lives. Growth
Within Bounds acknowledges that local governments face unprecedented challenges in
their ability to finance service delivery since voters cut property tax revenues in 1978 and
the Legislature shifted property tax revenues from local government to schools in 1993.
1Little Hoover Commission, 2000, page 24.
2The Commission on Local Governance for the 21st Century ceased to exist on July 1, 2000, pursuant to a statutory sunset
provision.
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The repoort asserts tthat these fiinancial straains have crreated goveernmental eentrepreneuurism
in whichh agencies coompete for sales tax revenue and mmarket sharre.
The 21st Century Commmission recoommended that effecctive, efficiient and eeasily
understaandable government be encouraaged. In acccomplishinng this, the 21st Cenntury
Commisssion recommmended coonsolidationn of small, inefficient or overlappping proviiders,
transparrency of muunicipal service deliverry to the peeople, and aaccountabillity of muniicipal
service pproviders. TThe sheer nnumber of sppecial distrricts, the repport assertss, “has provvoked
controveersy, includding several legislative attempts too initiate district conssolidations,””3 but
cautionss LAFCos thhat decisionns to consolidate distrricts shouldd focus on tthe adequacy of
services,, not on the number of districts.
Growwth Within Bounds obbserved thhat LAFCoss cannot aachieve theeir fundamental
purposes without a comprehennsive knowlledge of thee services avvailable withhin each county,
the current efficiency of providding servicee within varrious areas of the counnty, future nneeds
for eachh service, aand expansiion capacityy of each sservice proovider. Furtther, the reeport
assertedd that many LAFCos lacck such knowwledge andd should be required too conduct suuch a
review tto ensure thhat municipal services are logicallly extendedd to meet Caalifornia’s fuuture
growth aand developpment.
MSRss require LLAFCos to loook broadlyy at all locaal agencies that providde one or mmore
municipal services aand to exammine the ordder, logic, annd efficiencyy of their seervices. Thee 21st
Century Commissioon recommeended that tthe review include waater, wastewwater, and oother
municipal services that LAFCoo judges to be importaant to future growth. TThe Commisssion
recommended thatt the serviice review be followeed by conssolidation studies and be
performed in conjuunction witth updates of SOIs. Thhe recommmendation wwas that service
reviews be designned to makke several important determinattions, eachh of which was
incorporrated verbaatim in thee subsequenntly adopteed legislatioon. The Legislature since
consoliddated the ddeterminatioons into sixx categoriees, and mosst recently added anoother
categoryy totaling seeven requireed findings aas of the draafting of thiis report.
MUNICIPAL SSERVICEES REVIEW LEGGISLATIOON
The Cortese-Knox-Hertzberg Local Goovernment Reorganizaation Act off 2000 requires
LAFCo rreview and update SOIs not less than everyy five yearss and to reeview muniicipal
services before uppdating SOIIs. The reqquirement ffor servicee reviews aarises fromm the
identified need for a more coordinated aand efficiennt public seervice struccture to suppport
Californiia’s anticipaated growthh. The servvice review provides LLAFCo with a tool to sstudy
existing and futuure public service cconditions comprehennsively annd to evaluate
organizaational optioons for accoommodatingg growth, ppreventing uurban sprawwl, and ensuuring
that critiical servicess are providded efficienttly.
Effecctive Januarry 1, 2008,, Governmeent Code §56430 requires LAFCCo to conduuct a
review of municippal servicess provided in the couunty by reegion, sub-rregion or oother
designatted geograpphic area, ass appropriatte, for the sservice or seervices to bbe reviewedd, and
prepare a written sttatement off determinattion with reespect to eacch of the folllowing topiics:
3Commissioon on Local Govvernance for thee 21st Century, 22000, page 70.
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GGrowth and population projectionss for the affeected area;
TThe location and characcteristics of any disadvaantaged uniincorporateed communiities
wwithin or conntiguous to the SOI (efffective July 1, 2012);
Present and planned caapacity of ppublic faciliities and addequacy of public servvices,
inncluding innfrastructure needs orr deficienccies (includding needs or deficienncies
reelated to seewers, municipal and industrial wwater, and sstructural fiire protectioon in
any disadvanntaged, uninncorporatedd communitties within oor contiguous to the spphere
of influence);
Financial abiility of agenncies to provvide servicees;
Sttatus of, andd opportuniities for shaared facilitiees;
AAccountabiliity for commmunity servvice needs, including ggovernmental structuree and
operational eefficiencies;; and
AAny other mmatter relatted to effecttive or efficcient servicce delivery, as requireed by
coommission policy.
MUUNICIPAL SERVIICES REVIEW PPROCESSS
For tthe City of Fresno, the MMSR processs involved tthe followinng steps:
OOutreach: LAAFCo outreaach and expplanation off the projectt
DData Discoveery: The Citty provideddocumentss and responnded to LAFFCo questions
Profile Revieew: Internal review and commentt on LAFCo ddraft profilee of the Cityy
Public Revieww Draft MSRR: Review aand commeent on LAFCo draft MSRR
LAFCo Heariing: Attend and providde public commments on MSR
MSRss are exemmpt from CCalifornia EEnvironmenntal Qualityy Act (CEQQA) pursuannt to
§15262 (feasibility or planninng studies) or §15306 (informatioon collectioon) of the CCEQA
Guidelinnes. LAFCo’’s actions tto adopt MSSR determinnations aree not considdered “projects”
subject tto CEQA.
This review willl be availabble for use bby LAFCo, thhe County, cities, special districtss, and
the pubblic to bettter understtand how services aare provideed within Fresno County.
Additionnally, the revview will bee a resourcee to inform LLAFCo decissions, includding:
UUpdating sphheres of inflluence,
Innitiating or consideringg jurisdictioonal boundaary changes,,
Considering other typess of LAFCo aapplicationss, and
Providing a rresource forr further stuudies.
LAFCCo will use this reportt as a basis to update the sphere of influencce of the Ciity of
Fresno.
The report conntains a disscussion off various allternative ggovernmentt structures for
efficient service proovision. LAFFCo is not reequired to innitiate any bboundary chhanges baseed on
service rreviews. Hoowever, LAFFCo, other loocal agenciees (includinng cities, speecial districcts or
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the County) or thee public may subsequuently use this reportt together with addittional
researchh and analyysis, where necessary, to pursue changes inn jurisdictioonal boundaaries.
Governmment Code §§56375(a) ggives LAFCoo the powerr to initiatee certain typpes of bounndary
changes consistent with a servvice revieww and spherre of influennce study. TThese bounndary
changes include:
Consolidation of districtts (joining ttwo or morre districts iinto a singlee new succeessor
district);
DDissolution ((terminationn of the exisstence of a ddistrict and its corporaate powers);;
MMerger (termmination of the existennce of a distrrict by the mmerger of tthat district with
a city);
Establishmennt of a subsidiary disttrict (wheree the city coouncil is deesignated as the
board of direectors of thee district); oor
AA reorganizaation that inncludes any of the abovve.
LAFCCo may alsoo use the informationn presentedd in the serrvice reviewws in revieewing
future pproposals for annexations or extensionss of serviices beyonnd an agency’s
jurisdicttional bounndaries or ffor proposaals seekingg amendmeent of spheere of influuence
boundarries.
Other entities annd the publiic may use tthis report aas a foundaation for furtther studiess and
analysis of issues reelating to the services ooffered by thhe City of Frresno.
SPHERE OF INNFLUENCCE UPDAATES
The CCommissionn is chargedd with develloping and uupdating thhe Sphere off Influence ((SOI)
for each city and special districct within thee county.4
An SOOI is a LAFCCo-approvedd plan that designates an agency’ss probable ffuture bounndary
and servvice area. Spheres arre planningg tools usedd to providde guidancee for indivvidual
boundarry change prroposals annd are intennded to encoourage efficcient provisiion of organnized
communnity services, discouragge urban spprawl and premature conversionn of agriculltural
and openn space landds, and prevvent overlappping jurisddictions andd duplicationn of services.
Everyy determination madee by a commmission musst be consisstent with tthe SOIs of local
agenciess affected by that determination,5 for example, territoryy may not bbe annexedd to a
city or ddistrict unless it is withhin that ageency's spherre. In otherr words, thee SOI essentially
defines where annd what ttypes of ggovernmentt reorganizations (e.g., annexaation,
detachmment, dissoluution and cconsolidatioon) may be initiated. If and when a governmment
reorganiization is innitiated, therre are a nummber of proocedural steeps that muust be conduucted
for a reoorganization to be appproved. Suuch steps innclude moree in-depth analysis, LAAFCo
considerration at a nnoticed publlic hearing, and processses by whicch affected agencies annd/or
residentts may voicee their approoval or disaapproval.
4The initiall statutory manndate, in 1971, imposed no ddeadline for commpleting spherre designationss. When most LLAFCos
failed to actt, 1984 legislatiion required all LAFCos to estaablish spheres oof influence by 11985.
5Governmeent Code §563755.5.
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SOIs should discourage duplication of services by local governmental agencies, guide
the Commission’s consideration of individual proposals for changes of organization, and
identify the need for specific reorganization studies, and provide the basis for
recommendations to particular agencies for government reorganizations.
The Cortese-Knox-Hertzberg Act (CKH) requires LAFCo to develop and determine the
SOI of each local governmental agency within the county and to review and update the SOI
every five years, as necessary. LAFCos are empowered to adopt, update and amend the SOI.
They may do so with or without an application and any interested person may submit an
application proposing an SOI amendment.
LAFCo may recommend government reorganizations to particular agencies in the
County, using the SOIs as the basis for those recommendations. In determining the SOI,
LAFCo is required to complete a service review and adopt the seven determinations
previously discussed. In addition, in adopting or amending an SOI, LAFCo must make the
following determinations:
Present and planned land uses in the area, including agricultural and open-space
lands;
Present and probable need for public facilities and services in the area;
Present capacity of public facilities and adequacy of public service that the agency
provides or is authorized to provide;
Existence of any social or economic communities of interest in the area if the
Commission determines these are relevant to the agency;
Present and probable need for water, wastewater, and structural fire protection
facilities and services of any disadvantaged unincorporated communities within the
existing sphere of influence; and
In the case of special districts, the nature, location, and extent of any functions or
classes of services provided by existing districts.
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33. C ITTY OF FRESN OO OVV E RVII EW
BACKKGROUNND
The City of Freesno was foounded by the Centraal Pacific Railroad Commpany in 11872.
Leland J.. Stanford, aa company ddirector forr the railroaad at the timme, was so immpressed wwith a
wheat fieeld he saw iin the distannce that he decided thiss was the pllace for the new stationn.
In 18875 the Cenntral Califorrnia Colonyy was estabblished soutth of Fresnoo, which seet the
model foor a system of developmment that wwas used thrroughout thee San Joaquuin Valley. TTracts
of land wwere subdivvided into 220- to 40-accre parcels, irrigated frrom a systeem of canalss and
often lanndscaped wwith boulevaards of palmms, eucalyptuus or other drought-reesistant treees. By
1903 theere were 488 separate ccolonies or ttracts in Frresno Countty, which drrew farmerss and
their fammilies fromm Scandinavvia and fromm across thhe United SStates. Fressno becamee the
county sseat in 1874 and waas incorporrated in 18885 as a ccharter cityy. By 1890, the
population was oveer 10,000. TThe first sttreetcars weere introduuced in 18992 and streetcar
suburbs soon followwed. The areea has had aan ethnic mix from the earliest yeaars with Chiinese
railroad workers annd Scandinaavian farmeers joined bby Germans from Russiia, Japanesee and
Armeniaans, and by aa large Hisppanic populaation in the early 20th century.
The nname Fresnno is the Spaanish languuage word foor ash tree,, and an ashh leaf is feattured
on the City's flag. Thhe City is noow the fifth largest cityy in Californnia, the largeest inland city in
Californiia, and the 332nd largestt in the natiion.
BOUUNDARIEES
The City of Fresno is locaated in nortth-central FFresno County and shhares a commmon
boundarry with the City of Cloovis on its eeastern sidee. It abuts tthe Fresno//Madera Coounty
boundarry to the norrth. On all oother sides, the City is ssurroundedd by unincorrporated coounty
territoryy. The citiess of Fresno and Sangerr (southeastt of Fresno)), at their cllosest pointts are
approximmately fourr miles apaart and theiir respectivve SOIs are approximaately 2.25 mmiles
apart. TThe cities oof Fresno aand Fowler (south of Fresno), aat their cloosest pointss are
approximmately 3.5 mmiles apart and their reespective SOOIs are apprroximately 0.85 miles aapart
along thee SR 99 corrridor.
The City of Frresno boundary area is not uniiform and contains mmultiple isllands
(unincorrporated urrban pocketts completely or substaantially surrrounded byy a city), mmostly
concentrrated in thee north andd southeastt. These inefficient lannd use pattterns that were
developeed over several decadees have provven to be exxpensive to maintain annd to providde an
acceptabble level oof urban services. Thhey have also createed public confusion over
jurisdicttional bounddaries and sservice respponsibilitiess.
The eexperience of cities, counties, and special disttricts throuughout Califfornia suppoorted
a generaal principlee that anneexation of County islands wouldd result inn more effiicient
municipal service ddelivery. Baased on thiis principle,, there werre major poolicy agreemments
beginninng in the 19970s betweeen the Cityy and Fresnno County to agree to terms by wwhich
proposed developmment would bbe directed to the City for annexattion and exiisting developed
areas suubstantially surroundeed by the CCity would be annexedd. Fresno LAFCo adoopted
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CITY OF FRESNO MUNICIPAL SERVICE REVIEW
policies encouraging annexation of unincorporated islands within city limits and requiring
cities in Fresno County to develop plans to annex these areas. The LAFCo policy for an
annexation program was substantially updated in 2014.
Since the initial formative agreements between the City and the County—and
supporting LAFCo policies—were approved many decades ago, there has been an
inexorable shift in the nature of city planning and growth and municipal funding. These
changes warrant a reassessment of the terms and conditions under which the City’s
General Plan growth occurs to ensure that they fulfill the public goal of orderly, logical, and
efficient delivery of municipal services.
The City of Fresno has undertaken 41 annexations since 2006, the details of which are
shown in Figure 3-1. The annexed areas were correspondingly detached from the Kings
River Conservation District (KRCD) and either the Fresno County Fire Protection District
(FCFPD) or the North Central Fire Protection District (NCFPD). Currently, the City of Fresno
total boundary area is almost 114 square miles.
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Figure 3-1: City of Fresno Annexation History (2006-2013)
Effective Acres Acres
Date Name Detached From Proposed Approved
2/17/2006 Princeton-Brawley No. 2 Reorganization NCFPD and KRCD 14.6 14.6
3/6/2006 Bullard-Grantland No. 3 Reorganization NCFPD and KRCD 40
3/8/2006 Byrd-Clovis No. 1 Reorganization FCFPD and KRCD 12 12
3/17/2006 McKinley-Polk No. 4C Reorganization NCFPD and KRCD 20 20
4/13/2006 Grantland-Ashlan Northeast Reorganization NCFPD and KRCD 330
5/25/2006 Belmont-Marks No. 2B Reorganization NCFPD and KRCD 20
6/8/2006 Shaw-Bryan No. 3 Reorganization NCFPD and KRCD 49 49
6/18/2006 Shields-Cornelia No. 3 Reorganization NCFPD and KRCD 92
6/18/2006 Clinton-Brawley No. 1 Reorganization NCFPD and KRCD 4.1
6/30/2006 Copper-Chestnut No. 2D FCFPD 5
6/30/2006 Heaton-Burgan No. 1B Reorganization FCFPD and KRCD 2.2
6/30/2006 Clinton-Polk No. 1 Reorganization NCFPD and KRCD 41
9/5/2006 San Joaquin Bluffs No. 1 Reorganization NCFPD 1.96
10/2/2006 Madison-Valentine Northeast Reorganization NCFPD and KRCD 54 95.28
10/31/2006 Belmont-Fowler No. 2 Reorganization FCFPD and KRCD 140
Clinton-Temperance Northwest
12/5/2006 NCFPD and KRCD 41.36
Reorganization
12/14/2006 Willow-International Reorganization FCFPD and KRCD
1/22/2007 Temperance-Gould Canal Reorganization NCFPD and KRCD 70.65 45
2/1/2007 Dakota-Hayes No. 2 NCFPD and KRCD 80
3/15/2007 Shields-Locan No. 4C Reorganization FCFPD and KRCD 20.05 20.05
3/15/2007 Shields-Locan No. 4C Reorganization FCFPD and KRCD
9/19/2007 Alluvial-Chestnut No. 1B Reorganization FCFPD and KRCD 3.22
10/12/2007 “Shields-Armstrong No. 3 Reorganization” FCFPD and KRCD 20.1
10/12/2007 Clinton-Fowler No. 1 Reorganization FCFPD and KRCD 142.13
12/10/2007 Dakota-Temperance No. 1 Reorganization FCFPD and KRCD 52
Kings Canyon-Minnewawa No. 3B
1/23/2008 FCFPD and KRCD 35 37.15
Reorganization
3/14/2008 Barstow-Garfield No. 1 Reorganization NCFPD and KRCD 41.5
3/28/2008 Olive-Polk No. 4F Reorganization NCFPD and KRCD 2.49
5/13/2008 Barstow-Grantland No. 3 NCFPD and KRCD 50
Dakota-Maple No. 2 Reorganization (Island
10/15/2008 FCFPD and KRCD 82 82.98
Annexation)
11/13/2008 Jensen-Clovis No. 4 Reorganization FCFPD and KRCD 36.7 35.44
1/16/2009 McKinley-Brawley No. 5 Reorganization NCFPD and KRCD 41.89 41.89
4/24/2009 Clinton-Armstrong Southeast Reorganization FCFPD and KRCD 58
7/7/2009 Central-Orange No. 4 Reorganization FCFPD and KRCD 176.5 176.5
1/19/2010 Dakota-Polk No. 4 Reorganization NCFPD and KRCD 36.91
5/7/2010 Church-Fowler No. 2 Reorganization FCFPD and KRCD 60
Belmont-Sunnyside No. 3 Reorganization
3/7/2011 NCFPD and KRCD 94
(Island Annexation)
4/9/2012 Chestnut-Copper No. 1 Reorganization FCFPD and KRCD 180
4/9/2012 Willow-Copper No. 1 Reorganization FCFPD 287.313 287.31
6/6/2012 Nees-Willow No. 3 Reorganization FCFPD and KRCD 35 35
11/19/2012 Ashlan-Bryan No. 1 Reorganization NCFPD and KRCD 80.44 67.91
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SPPHERE OOF INFLUENCE
The Fresno Sphhere of Influuence (SOI) was most recently uppdated by FFresno LAFCCo in
2006 and again in 22007. The SOOI update thhat took plaace in 2007 after the coompletion oof the
Municipaal Service Reeview reaffirrmed the Ciity’s SOI preeviously ammended in 20006.6
The current SOII is comprissed of land within the city limits (with the eexception oof the
non-contiguous inccorporated territory where thee Regional Wastewatter Reclamaation
Facility is located southwest of the Cityy), as well as unincorrporated islands, and land
beyond tthe city limits. The SOII encompassses 157 squuare miles, oof which 433 square miles is
unincorpporated landd. The City’ss SOI is largger than its ccorporate liimits area bby 39 percennt.7
The SSOI amendmment in 20006 consisted of the adddition of 8,8863 acres fformerly terrmed
the Souttheast Growwth Area or SEGA andd now termmed the Souutheast Devvelopment Area
(SEDA). The territoory added too the SOI wwas describeed in the LAAFCo resoluution as the area
boundedd on the noorth by Gouuld Canal, too the east bby McCall, Highland aand Temperrance
Avenuess, on the souuth by Jenseen and Norrth Avenuess, and on thhe west by tthe previous SOI
boundarry along Minnnewawa, TTemperancee and Locan Avenues.8
Fresnno LAFCo innitially included SEDAA within thee City’s SOI in 2005. Shortly afterr this
action, tthe Commiission rescinded its aaction and required the City tto meet ceertain
conditions for the aarea in question prior to reconsidderation at another timme. In 20066, the
City ressubmitted aan applicattion to LAAFCo for thhe SOI ammendment. This time,, the
Commisssion determmined that most of thhe conditioons had been met andd approvedd the
applicatiion to include SEDA in the City’s SSphere of Innfluence. Fuurther condditions, howwever,
were plaaced on futture annexaations of paarcels within SEDA, inccluding adoopting a speecific
plan for the SEDA territory, ppreparing aand adoptinng a masterr service delivery plann for
SEDA, annd preparinng, adoptingg and initiaating implemmentation of a prograam for anneexing
open spaace areas annd rural resiidential neighborhoodss.9
On February 11, 2011, the Fresno Cityy Council reeceived a report preparred by the CCity’s
Finance & Audit CCommittee titled “Finddings and Recommenndations onn the Southheast
Growth AArea” whichh provide recommendaations to thhe City Counncil regardinng this plannning
area. Thhe report prresented reccommendattions to the City Counciil to 1) susppend furtherr City
work and investments in SEDAA, 2) to direct City growwth in the aarea west off SR 99 as aa high
priority, 3) to directt staff to produce a listt of planning, infrastructure, and lland use policies
for the City of Freesno, and 44) for Council to direcct staff to rreport on ooptions andd the
feasibilitty of increaasing the innfill percenttage beforee work can commencee on Phase II of
SEDA.10
6LAFCo Ressolution MSR-077-29.
7 City of Freesno, 2035 Geneeral Plan Initiattion Review Drafft, August 20122, p. 4.
8LAFCo Ressolution USOI-1144.
9Ibid.
10Fresno Ciity Council Finnance & Audit Committee, “FFindings and RRecommendationns on the Southh East Growth Area”
Committee members Andreeas Borgeas& Leee Brand, 2011 WWeb: http://wwww.fresno.gov/CouuncilDocs/agendda2.10.2011/9300.pdf
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A specific plan for SEDA was drafted and released for review in 2008. However, this
plan was never adopted by the City. Instead, initial plans for SEDA were deferred in favor
of incorporating the SEDA land use concepts into the City’s General Plan with its focus on
enhanced infill in its existing city limits and directing new development to the west and
southwest. The City has to some degree incorporated SEDA into its General Plan; however,
there is a need for clear General Plan policies that integrate how this development area will
be implemented in the context of adopted LAFCo SOI policies.
The SEDA territory is fully incorporated into the Fresno General Plan land use diagram
and designated with land uses and street circulation classifications consistent with those of
the entire SOI planning area covered by the updated General Plan. Environmental analysis
was completed through the certification of a Master Environmental Impact Report (MEIR)
for the Fresno General Plan and Development Code Update. SEDA’s incorporation into the
General Plan policies is discussed further in the Growth Strategies section of Chapter 7.
One of Fresno LAFCo’s policies states that in Fresno County any territory within a city’s
SOI is completely included in that city’s Urban Service Area (as defined by Government
Code §56080). According to the same policy, LAFCo may not disapprove an annexation
within an urban service area that is initiated by a city resolution and is contiguous
territory, which is not prime agricultural land and is designated for urban growth on the
City’s General Plan.11
The General Plan planning area12includes territory within the City’s corporate limits and
SOI, land to the north adjacent to the SOI that serves as a logical boundary between Willow
Avenue and the San Joaquin River, as well as land to the southwest of the SOI dedicated to
the Fresno-Clovis Regional Wastewater Reclamation Facility (RWRF). The area to the north
has open space and low density residential land use designations consistent with the rural
residential and open space properties that exist there now.
The land area associated with the RWRF is within the City’s municipal corporate limits
as an incorporated island not contiguous to the city proper. The practice of not including a
city’s non-contiguous public facility within an SOI is not uncommon for Fresno LAFCo;
other examples include the City of Reedley’s municipal airport and the City of Clovis’
landfill facility. An SOI is defined in CKH as “a plan for the probable physical boundaries
and service area of a local agency, as determined by the commission.” Growth of public
facilities is relatively slow compared with private development, and generally occurs in
response to the territory needed to expand the public facility. By not having determined a
SOI for this territory, it could appear that LAFCo is signifying the eventual detachment of
11 Fresno LAFCo, Commission Policies, Standards and Procedures Manual, Revised September 11, 2013, Policy #318, p. 48.
12The Planning Area is the geographic area for which the General Plan establishes policies about future urban growth,
long-term agricultural activity, and natural resource conservation. The boundary of the Planning Area was determined in
response to State law requiring each city to include in its General Plan all territory within the boundaries of the
incorporated area as well as ―any land outside its boundaries which in the planning agency‘s judgment bears relation to
its planning.(California Government Code Section 65300).
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this landd from the CCity. Also, not includinng this terrritory in thee Fresno SOOI precludess any
subsequent annexattions, whichh must be coonsistent wwith SOIs13.
Areas proposed for inclusion in the CCity’s SOI duuring this uupdate are ddiscussed inn the
Growth SStrategies seection of thiis report.
CITY SERVICCES
The CCity of Fresnno providess a wide varriety of munnicipal serviices. Reviewwed in this sstudy
are servvices provided by thee City direectly to its residents, including airport, Frresno
Conventtion & Enteertainment Center, firee protectionn and emeergency medical, homeeless,
park andd recreationn, law enfoorcement, sttreet mainttenance (including street lightingg and
drainagee), solid wasste, transportation, watter, and wasstewater seervices. In aaddition, thee City
is respoonsible for providingg a numbeer of regioonal facilitiies, includiing the Frresno
Conventtion & Enterrtainment CCenter, Chukkchansi Staadium, Wooodward Parkk, Roeding Park,
and the SSouthwest RRegional Spports Complex.
In adddition to thhe City, muunicipal servvices are prrovided witthin the Cityy and its SOOI by
16local agencies unnder LAFCoo jurisdictioon, as well as federal and state aagencies, Frresno
County, and privatee service prroviders. Prroviders off municipal services in the City annd its
SOI are sshown in Figgure 3-2.
Figure 3--2: Municipaal Service Prroviders
Muniicipal Servicce City LLimits SSOI (unincorrporated)
Public Saffety
Police Direect Counnty Sheriff
Traffic Ennforcement Direect Counnty Sheriff, Caalifornia
Highway Patrol
Parking EEnforcementt Direect Counnty Sheriff
Code Enfoorcement Direect Fresnno County
Animal Control Direect (licensingg), Central Fresnno County
California SPCA
Fire Proteection Direect City oofFresno viaa contracts
with Fig Garden FFPD, North
Centrral FPD, and Fresno
Counnty FPD
Emergency Medical Direect, Americann Ambulancee City oof Fresno/Ammerican
Ambulance via coontracts withh
Fig GGarden FPD, NNorth Centraal
FPD, and Fresno County FPD
Utilities
Water Reetailer – Dommestic Direect, CSU Fressno, Malaga CCWD City oof Fresno, Pinedale CWD,
Bakmman Water Company, Parrk
Van NNess Mutual Water
Comppany, Malagaa CWD,
varioous County Service Areass,
13 Every deetermination mmade by a commmission regardiing the matterss provided for by subdivisionns (a), (m), and (n) of
Section 563375 and by subbdivision (a) off Section 56375.3 shall be consistent with tthe spheres of influence of thhe local
agencies afffected by thosee determinationns. (California Goovernment Codde section 563775.5)
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private wells
Water Retailer – Irrigation Fresno Irrigation District Fresno Irrigation District
Wastewater Direct, PCWD, PPUD, private Private septic tanks, PPUD, and
septic tanks PCWD, various County Service
Areas
Electricity PG&E (franchise) PG&E, SCE
Natural Gas PG&E (franchise) PG&E
Residential Solid Waste Direct, Malaga CWD (franchise) Malaga CWD, PCWD,
Collection Residential Services, Waste
Management, IWS
Residential Solid Waste Fresno County, Caglia Family, Malaga CWD, PCWD,
Disposal Malaga CWD (franchise) Residential Services, Waste
Management, IWS
Commercial Solid Waste Republic Services, Mid Valley Malaga CWD, PCWD,
Collection Disposal Residential Services, Waste
Management, IWS
Commercial Solid Waste CARTS, Avenal Landfill, Mid Malaga CWD, PCWD,
Disposal Valley Disposal, Korchegen Residential Services, Waste
Farms Management, IWS
Public Works
Drainage Direct, Fresno Metropolitan FMFCD
Flood Control District (FMFCD)
Street Maintenance Direct, Caltrans, PPUD Fresno County, Caltrans, PPUD
Street Lighting Direct, PPUD Fresno County, CSAs 7, 18, 19,
34, PPUD
Transportation Direct, Clovis Transit, Fresno Fresno County RTA
County RTA
Community Services
Parks Direct, Malaga CWD, Calwa RPD, Malaga CWD, Calwa RPD,
Fresno County (courthouse) Fresno County
Recreation Direct, Malaga CWD, Calwa RPD Malaga CWD, Calwa RPD,
Fresno County, CSA 2
Library Fresno County Fresno County
Mosquito Abatement Fresno MVCD Fresno MVCD
Vector Control Fresno MVCD Fresno MVCD
Cemetery Clovis CD, private companies, Clovis CD, Sanger/Del Rey CD,
religious organizations private companies, religious
organizations
Airports Direct City of Fresno
Fresno Convention & City contract with SMG City contract with SMG
Entertainment Center
Homeless Direct, nonprofits, HUD, USDA, Direct, nonprofits, HUD, USDA,
State of California, Fresno State of California, Fresno
County, Madera County County, Madera County
Economic Development Direct City of Fresno, County of
Fresno through the Economic
Development Corporation
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4. ACCOU NTA BI L I TY AND
G OV E R NA N C E
The City of Fresno is a charter city with a “strong-Mayor” form of government. Under
this system, the Mayor is elected and serves as the City’s Chief Executive Officer. The Mayor
does not sit on the City Council or participate in its deliberations, except by exercising veto
power. The City Council serves as the legislative authority, while the Mayor serves as the
executive authority. Both, the Mayor and council members serve four-year terms and are
limited to two terms in office.
The City Council is represented by seven elected council members, each from a
geographically-defined district within the City. One of the council members is elected
President by the Council for a term of one year and serves as the presiding officer of the
Council. Council members receive an annual base salary of $65,000. In fiscal year (FY)
2014, additional funding in the amount of $10,000 over and above salary for normal
operations within their council district has been appropriated for the Council President’s
salary. The Mayor of Fresno receives an annual compensation of $130,000. Details for the
executive and legislative branches of the City are shown in Figure 4-1.
Council may create a board, a commission, or a committee of the Council, or other body
of the City by ordinance, resolution, or other formal action of the Council. There are
currently 32 boards, committees and commissions created by the Council and serving
many areas of the City’s day-to-day life and business. They provide a platform for public
involvement in the governmental process. Legislative bodies created by the Council report
to the City Council and are subject to the Brown Act.
Boards and commissions created by the City Charter include the Planning Commission,
Civil Service Board, and City Retirement Board. In addition, in 2010, the City Council
created the Charter Review Committee, which evaluates and makes recommendations
regarding the City Charter.
With significant improvements planned for the water system, the City Council and the
Mayor’s Administration created the Enterprise Capital Management and Citizen Oversight
Committee to review capital improvement plans with regard to the enterprise functions of
the City to ensure efficient use of public funds. It should be noted that the City Manager has
determined that all public works improvements in excess of $10 million, regardless of
funding source, will be reviewed by this Committee.
The Council meets every Thursday at 8:30 a.m., with the exception of the third
Thursday of the month when the meeting is held at 1:30 p.m. The meetings take place at
the Council Chambers, located in City Hall. Council meetings are broadcast live on the city
website and on cable TV at 8:30 a.m. and replayed at 8:00 p.m. The Council meeting
agendas and related staff reports are posted on the city website, as well as at the office of
the City Clerk. City Council meeting agendas, minutes, and supplemental information are
posted on the website on Friday following the council meeting.
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Figure 4-1: City of Fresno Governing Body
City of Fresno
City Contact Information
Contact: City Manager, Bruce Rudd
Address: 2600 Fresno Street, Fresno, CA 93721
Telephone: 559-621-7770
Website: www.fresno.gov
Executive Authority- Mayor
Length of
Name Position Term Expiration Manner of Selection Term
Ashley Swearengin Mayor December-2016 Elected 4 years
Legislative Authority- City Council
Length of
Member Name District Term Expiration Manner of Selection Term
Esmeralda Soria District 1 December-2018 Elected 4 years
District 2,
Steve Brandau December-2016 Elected 4 years
Council
District 3,
Oliver L. Baines III December-2018 Elected 4 years
President
Paul Caprioglio District 4 December-2016 Elected 4 years
Sal Quintero District 5 December-2018 Elected 4 years
Lee Brand District 6 December-2016 Elected 4 years
Clint Olivier District 7 December-2018 Elected 4 years
Meetings
Every Thursday at 8:30am, with the exception of the third Thursday meeting
Date: which is held at 1:30 pm.
Location: City Hall 2600 Fresno Street, Fresno CA 93721
Agenda Distribution: Agendas are available on the City's website and at City Clerk’s office.
Minutes Distribution: Minutes are available on the City's website and at City Clerk’s office.
The City conducts constituent outreach via its website, multiple newsletters distributed
by various departments, and press releases. Fresno solicits constituent input on numerous
public documents developed by the City, including the recent General Plan Update.
Additional outreach efforts include community meetings, surveys, and workshops.
Service requests and complaints may be submitted online, through phone calls, email,
letters, and in-person to the City Council, department heads or the City Manager. City
departments' contact information are available on the city's website. In addition, the
website contains numerous email, complaint and reporting forms. The City recently
implemented a new smart phone application that can now be used by residents to report a
variety of issues ranging from streetlights to illegal dumping.
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5 . PLAAN N INNG AN D MM A NAAG E MM E N TT
P R ACT I CCES
While public secctor manageement standdards vary ddepending oon the size aand scope oof the
organizaation, theree are minnimum standards. WWell-manageed organizaations evaluate
employeees annuallyy, track employee and agency prooductivity, periodicallyy review aggency
performance, prepaare a budgeet before thhe beginninng of the fisscal year, cconduct perriodic
financiall audits to ssafeguard thhe public trust, maintaain relativelyy current fiinancial records,
conduct advanced pplanning forr future servvice needs, aand plan annd budget foor capital neeeds.
STAFFFING AND ORGAANIZATIONAL STRUCTUURE
The City of Fressno deliverrs municipaal services wwith a commbination off staff, conttracts
with othher agenciess, and contraacts with prrivate contraactors.
The City of FFresno hass two eleected brancches—executive and legislativee—as
represennted by thee Mayor annd City Council. City operations are brokenn down intto 13
departmments consisting of Airports, Fresno Coonvention & Entertainment Ceenter,
Development and RResource Maanagement,, Finance, Fire, Generall City Purpoose, Informaation
Services, PARCS (pparks, afterr school, recreation aand commuunity serviices), Persoonnel
Services, Police, Pubblic Utilitiess, Public Woorks, and TTransportatiion (FAX). AAdditionallyy, the
Mayor, CCity Council, City Manager, City Atttorney, andd City Clerk operate froom offices att City
Hall.
The City of Fressno relies oon paid professional sttaff to condduct the daiily businesss and
operatioons of the CCity. The Ciity currentlly employs 3,126.7514 full-time equivalent ((FTE)
personnel. Fresno has reduceed its workkforce by abbout 1,200 over the laast four yeaars to
meet buudget goalss and reduuce costs. The City also reliess on volunnteers for park
maintenance, the ooperation of communitty centers, and for vaarious functtions withinn the
police deepartment.
The Mayor apppoints and ooversees thhe City Mannager who manages eeach of thee city
departmments. The MMayor is alsso responsiible for recoommendingg legislationn and presennting
the annuual budget tto the City CCouncil. Thee City Counncil, supportted by counncil assistannts, is
responsiible for the appointment or removval of the Ciity Clerk annd City Attorney. The ooffice
of the Maayor currenntly employss 5.0 FTEs.
The CCity Councill departmennt of the Cityy consists oof seven divisions correesponding tto the
seven coouncil distriicts, plus a ccouncil support divisioon. Each of the seven ddistrict divissions
has 3.0 FFTEs, whilee the council support ddivision empploys 2.0 FTTEs. There iis a total off 23.0
FTE stafff in the Cityy Council deppartment.
As wwas previoussly mentionned, the Cityy Council apppoints the City Attornney and thee City
Clerk. Thhe City Attorney's Officce representts and advisses the Mayor, City Couuncil, certainn city
boards aand commisssions, and city officialls and depaartments in legal matteers pertaininng to
14 City of Frresno, Adopted BBudget, FY 13-114, p. 271.
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their office and city operations. The City Attorney's office has a staff of 33.0 full-time
employees (one city attorney and 32.0 support staff) in three divisions—transaction
division, litigation division, and administrative support.
The City Clerk’s Office connects the public with city government by posting agendas,
providing support during City Council meetings, and creating minutes of the City Council
meetings. The City Clerk’s Office confirms ordinances and resolutions, posts them on the
web and safeguards the original documents. It maintains and updates the Fresno Municipal
Code. The City Clerk’s Office is also responsible for the administration and fulfillment of
legal requirements in compliance with state law and the Fresno City Charter. The office has
4.0 FTEs in the administration division and 1.0 FTE in the records management division.
The City Manager is the head of the administrative branch of the city government and is
responsible for appointing all other city department heads. In addition to housing the
administrative branch of the City of Fresno, the City Manager’s Office also includes the
office of independent review (1.5 FTEs), the economic development division (5.0 FTEs),
and city administration (7.0 FTEs).
Since 2009, the offices of the Mayor and City Manager operating and support budgets
have decreased by 18.9 percent. Over the last five years a net total of four positions have
been eliminated from these two offices leaving a staff of 18.50 FTEs.
The Airports Department is charged with the development, maintenance and operation
of two airports owned by the City. The Director of Aviation, who is the head of the
department, supervises three divisions, including Fresno Yosemite International, Chandler,
and Projects Administration. These divisions employ a total of 82.4 FTEs, of which 4.6 are
sworn positions and 77.8 are civilian.
The Fresno Convention & Entertainment Center does not employ any personnel directly
and outsources its operations to SMG, a private contractor. The general manager of the
Fresno Convention & Entertainment Center is an employee of SMG and reports to the City
of Fresno City Manager. SMG employs 16 FTE and 350 part-time employees all of which are
private at-will employees.
The Development and Resource Management Department (DARM) focuses on public
and private property development throughout the city and management of the city’s land
and water resources, and public infrastructures. It manages both development and
neighborhood services through downtown and neighborhood revitalization, long range
land use planning, new development entitlements, building permit issuance, building plan
reviews, inspections, code enforcement, housing grant programs, and resource efficiency
programs for residential and commercial properties. As of December 2012, in an effort to
more closely define the scope of DARM's responsibilities, part of the Department's business
development, industrial recruitment and economic development responsibilities were
moved from DARM to the City Manager's office. The Department has 184.60 FTE
employees.
The Finance Department provides leadership for the City’s fiscal, budgetary, purchasing
and printing activities. The Department is managed by an administration division that
oversees several other divisions consisting of accounting, budget and management studies,
and business/dog licenses. These divisions provide a wide range of comprehensive
financial support services, such as accounting, financial administration and reporting,
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budgeting, internal audits, treasury/cash management, investments, payroll, billing and
accounts receivable, accounts payable, as well as business licenses and cashiering. Also
under the umbrella of the administration division are the purchasing and graphics and
reproduction services divisions. The purchasing division provides procurement services to
citywide departments for capital and operating programs. The graphics and reproduction
services division provides citywide departments with a range of services including copying,
printing, graphic design, as well as mail and messenger services. The interim City
Controller/Finance Director supervises all financial divisions. The Department has 56.0
FTE employees.
The Fresno Fire Department provides emergency response to fire, emergency medical,
urban search and rescue, and hazardous materials incidents. The interim Fire Chief has an
executive assistant and supervises the operations division, administration division, and
prevention, investigation and support services division. The Fire Department employs
346.20 FTE authorized personnel, including 303.20 sworn safety members and 43.0
civilians.
The General City Purpose Department is divided into the Fresno Revitalization
Corporation (FRC), retirement administration division, general city purpose division, and
citywide resources and appropriations division, and employs 11.0 FTE personnel (1.0 in
the FRC and 10.0 in the retirement administration division).
The Information Services Department (ISD) focuses on technology solutions that assist
city departments with providing services and meeting strategic goals. ISD collaborates with
outside agencies to develop operational economic efficiencies as well as to promote a
unified regional technology vision. The Director of Information Services supervises three
divisions, including administration, system and applications and computer services. The
Department has 52.80 FTE employees.
The City of Fresno Parks, After School, Recreation and Community Services (PARCS)
Department operates nearly 80 parks, including regional parks, neighborhood parks, action
sports facilities, play structures, community and neighborhood centers, and golf courses.
The Department employs 52.0 FTE. The interim PARCS director, whose role is currently
filled by the City Manager, supervises the administration division (7.0 FTEs), parks division
(23.0 FTEs) and recreation services division (22.0 FTEs).
The Personnel Services Department’s mission is to serve as a catalyst and resource for
change within the City of Fresno and to help city departments attract, motivate, develop
and retain qualified, diverse, productive and customer-service oriented employees. The
Department is headed by a Personnel Services Director who employs an assistant director
and supervises the operations, labor relations, risk management, administration,
organizational development and training manager, and employee benefits divisions. The
Department has a staff of 31.0 FTEs.
The Fresno Police Department is responsible for enforcement of state and city laws,
investigation of crimes, apprehension of criminals, reducing traffic collisions, maintenance
of ongoing crime prevention programs, and building ties with the community and other
local law enforcement agencies. The Police Department is divided into four divisions—the
patrol division, the investigation division, the professional standards division, and the
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support division. Thhe Chief of PPolice supervises all diivisions, whhich employy a total of 9920.0
FTE authhorized personnel, including 717.00 sworn safeety memberrs and 203.00 civilians.
The DDepartment of Public Utilities (DPU) providees water, wwastewater and solid wwaste
services to city residents andd includes 614.75 FTEE employeees. The Dirrector of PPublic
Utilities (this position is currenntly vacant)) supervisess administraation, billing and collecction,
and utiliity planning and enginneering. Thhe Departmment is stafffed with 6114.75 FTEs that
include 15.0 in addministratioon, 58.0 in utility billling and coollection, 1196.75 in wwater
operatioons, 177.0 inn solid waste, and 168.00 in wastewwater managgement.
The PPublic Workks Department focuses on infrastrructure deveelopment annd revitalizaation
activity in the City,, including land use planning, peermit issuannce, plan chheck, inspection
services,, and construction off public faccilities. Thee Departmeent also maaintains annd/or
operatess public facilities and aassets such as traffic ssignals, streeetlights, strreets, sidewwalks,
median iislands, urbban forest, laandscape mmaintenancee districts, aand pedestrrian/bicyclee trail
projects.. The Publiic Works DDirector supervises 2772.50 FTE employeess in the finnance
administtration, administration, capital managemeent, street maintenance, engineeering
services,, and facilitiies managemment divisioons.
The Departmennt of Transsportation provides ffixed route and paratransit demmand
responsee service 3663 days a yeear throughout the Cityy of Fresno and in some areas of CClovis
and the County of FFresno. The Transportaation Deparrtment housses adminisstration, suppport
services,, planning, operationns, maintennance, and fleet divisions. The transportaation
director employs ann assistant ddirector andd supervisess all the divvisions. The Departmennt has
407.0 FTTE employeees.
MAANAGEMEENT PRAACTICESS
Emplloyees in thhe majority of the classsified full timme positionns in the Citty are evaluuated
on an annual basiss after the satisfactoryy completioon of the pprobationarry period. New
classifiedd employeees are evaluuated durinng the probbationary peeriod whichh is typicallly 12
months in length. The length of the probationary pperiod mayy vary depeendent uponn the
classificaation.
City employees make use of PeopleSooft, a softwware designeed to coorddinate and ttrack
training exercises. From this software employees ccan view a training summary, reqquest
training enrollmennt, view thhe status oof any traaining requuests, add or review any
professioonal traininng, educatioon, honors and awardds, languagees, licenses and certificates
and memmbership innformation. The Cityy makes avaailable bothh mandatorry and opttional
training and educattional oppoortunities. MMandatory training toopics for cerrtain emplooyees
include anti-harassment andd anti-discrrimination, ethics, seexual haraassment, annd a
Supervissor Academmy. The Personnel Serrvices Depaartment alsso offers opptional trainnings
and lunnch time wworkshops covering topics succh as custtomer servvice, leaderrship
developmment, workk/life balancce, basic funndamentals,, and legal ttopics. Cityy employeess also
have acccess to hunddreds of noo-cost self-ppaced onlinee training inn subject arreas such aas the
Microsofft Office Suite and Business & Proffessional Deevelopment.
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PPLANNINNG PRACCTICES
The City’s centrral planningg documentt is its Geneeral Plan, wwhich includdes elementts on
housing,, land use, ccommunity design, cirrculation, ecconomic deevelopment,, public services
and facilities, safetyy, conservaation and open space, noise, andd air qualityy. The plann was
previoussly adopted in 2002 witth a planninng horizon oof 2025, andd was updatted in 2014 with
a planning horizon of 2035 annd beyond. TThe General Plan has aa planning aarea that coovers
territoryy within thee City’s servvice area annd SOI, landd to the norrth adjacentt to the SOII that
serves as a logical bboundary aloong Willoww Avenue and east of the San Joaquuin River, ass well
as land to the souuthwest of the SOI deedicated too the regionnal wastewwater facilitty. In
conjuncttion with thhe General Plan, Fresnno has certtified a masster environmental immpact
review (MEIR). In addition tto the Geneeral Plan, tthe City addopts multiple commuunity,
neighborrhood and sspecific planns.
Other significannt City plannning documments includde the Stronng Communities (SC2) WWork
Plan, thee 2010-20114 Consolidaated Plan, which deveelops a commprehensivve strategy that
addressees the City’ss housing aand community develoopment neeeds over a ffive-year peeriod,
and the 110-Year Plan to End Chronic Homelessness (20008).
Somee service departmennts have sstrategic buusiness plans. The Public Utiilities
Departmment’s Strateegic Businesss Plan outllines objecttives, measuures, targetts and initiaatives
over the 2013-20155 time framee. The Fire DDepartmentt adopted a strategic pllan in 2007 with
a planniing horizonn of 2008-22013. Otherr service deepartmentss’ key plannning documments
include the 2010 UUrban Wateer Managemment Plan (UUWMP) adopted in 20012, the Ciity of
Fresno RRecycled Waater Master PPlan adopteed in 2011, tthe wastewwater divisioon’s Enforcement
Responsee Plan (ERPP) adopted in 2008, thhe Sewer SSystem Mannagement PPlan (2014)), the
traffic enngineering’ss Intelligentt Transporttation System (ITS) Maanagement PPlan adopteed in
2012, annd the Fresnno Yosemite Internatioonal Airportt Land Use Compatibiliity Plan adoopted
in 2012.. The Metroopolitan Waater Resourcces Manageement Plan Update is currently uunder
developmment and reeview.
The City’s finanncial planniing documeents include annually adopted bbudgets andd the
Comprehhensive Annual Financial Reportts (CAFRs).TThe adopteed budgets from FY 001-02
through FY 14-15 aand the CAFFRs from FYY 02-03 throough FY 12--13 are posted on the ccity’s
website. Monthly ffinancial annd investmeent reportss from July 2007 throough Septemmber
2014 aree also availaable on the ccity’s websiite.
Additionally, the City commpleted a raate study foor water annd wastewwater services in
March 22015. The CCity has a five-year caapital imprrovement pprogram, whhich is upddated
annuallyy and includded in its annnual budgetts.
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6. FINNA N CCI N G
OVERVIEWW
The CCity of Fresnno, like all oother cities in the Statee of Californnia, sufferedd the devasttating
impacts that the prrolonged reecession hass had on itss economy and City reevenues. Looss of
significant amountss of sales taax, propertyy tax, and sservice charrge revenuee specific too the
General Fund durinng the receession heavvily impacteed the finanncial condittion of the City.
Sales taxx revenue hhad decreassed approxximately 20 percent inn FY 10 from FY 08 leevels.
Propertyy tax and sservice charrge revenuee decreasedd approximmately four percent annd 22
percent respectivelly in the saame time pperiod. Theese three reevenue souurces comprised
approximmately 66 percent of thhe total Geneeral Fund reevenue for tthat time peeriod.15
However, the City has showwn recoveryy over the ppast couple of fiscal yeaars. As repoorted
in the mmost recentt Compreheensive Annuual Financiaal Report ((CAFR), thee City’s finaancial
condition as of Junee 30, 2014,
“…is distinctly diifferent andd more encouraging thaan it has beeen for manyy years. Thee City
has sseen substanntial revenue growth duuring the paast fiscal yeaar and has mmarkedly sloowed
its exxpenditure pprogression.. As a resultt, the City iss achieving ffinancial sttability. Many of
the laabor costs tthat were drriving the exxpenditure iincreases haave been adddressed thrrough
new agreementss with the laabor groupss. There are no lawsuitss or legal isssues at this time
that might jeoppardize the City’s finanncial improovement. Moost impresssively, the ccredit
markkets have nooted Fresno’’ss improvemment, as eviddenced by raating agencyy actions and the
City’ss ability to oobtain lease ffinancing foor equipmennt.”
The CAFFR notes thaat the City hhas made prrogress in iimplementinng cost-savving measurres to
manage the slow revenue reccovery, and is experienncing revennue increasses in the mmajor
revenue categories mentioned..
Somee of the moore significaant cost savving measuures taken oover the last four years as
noted inn the FY 14 Budget incllude an oveerall reductiion of approoximately 11,200 emplooyees
(25 perccent citywidde and 33 peercent of Geeneral Fundd employeess), reductioon or suspennsion
of some maintenancce and extennding replacement of eequipment, and increassed utilization of
volunteeers where feasible inn the parkks and reccreation tyype activitiies.16 Signifficant
reductioons in publiic safety peersonnel haave also beeen implemmented. Additionally, llabor
agreemeents have beeen modifieed to reducee costs by requiring emmployees too help in funnding
retiremeent and heallth insurancce costs.
As is noted by thhe City, signnificant worrk remains. The City haas implemeented a five--year
budget pplan to mannage the fiscal conditioon of the City and groww itself back to sustainnable
levels. TThe City hhad Primary Government totall long-termm debt annd liabilitiees of
approximmately $1.2 billion as oof June 30, 22014,17 of wwhich approoximately $$74.2 millionn are
15 Data deriived from the City’s FY 11 Adopted Budget Doocument.
16 FY 14 Buudget- Mayor’s TTransmittal Lettter.
17 FY 14 CAAFR
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due within one year. The City has been meeting all of its debt service obligations. Summary
budget information for the City is depicted in Figures 6-1 through 6-3.
Figure 6-1: FY 14-16 Total City Resources &Appropriations
TOTAL CITY RESOURCES & APPROPRIATIONS
FY 16 FY 15 FY 14
Budget Amended Actuals
Total City Revenues $1,506,801,300 $1,564,336,500 1,111,376,000
Less Transfers and
$117,663,000 $110,402,000 $94,527,000
Interdepartmental Charges
Total Net City Resources $1,389,138,300 $1,453,934,500 1,016,849,000
Total Appropriations $1,245,430,800 $1,135,116,500 $790,610,100
Less Interdepartmental
$102,307,000 $94,665,200 $78,494,300
Charges
Total Net City Budget $1,143,123,800 $1,040,451,300 $712,115,800
Source: FY 16 Proposed Budget Document
Figure 6-1 above identifies a three-year trend of annual revenue and resources
available to the City, and annual appropriations. As noted in the table, overall total City
resources have fluctuated over the three year period. However, FY 16 budgeted resources
are approximately 36.6 percent higher than FY 14—a positive trend.
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Figure 6-2: FY 12-14 Total Appropriations by Fund Classification
TOTAL CITY APPROPRIATIONS BY FUNCTION
FY 16 FY 15 FY 14
Budget Amended Actuals
General Fund 269,758,200 261,056,000 243,261,000
Trust 0 0 1,241,800
Special Revenues 157,273,200 189,362,700 98,499,600
Capital 20,290,800 23,731,800 14,135,100
Debt Service 33,766,600 35,637,500 35,585,100
Enterprises (Business Type Activities) 764,342,000 625,328,500 397,887,400
Less and Interdepartmental Charges (102,307,000) (94,665,200) (78,494,300)
Total Net City Budget 1,143,123,800 1,040,451,300 712,115,700
Source: FY 16 Proposed Budget Document
Figure 6-2 above identifies a three-year trend of annual appropriations by City fund
classification. As noted in the table, general fund appropriations have trended upwards
over the three-year period, as the City has recovered from the recession and have restore
public safety positions and some select services. Although enterprise operations have
increased dramatically since FY 12, those appropriations are offset mainly with service
charge revenue. The significant increase in public ways and means appropriations reflect
capital project expenditures generally offset by bond proceeds and special revenues.
Figure 6-3: General Fund Summary Five-Year Forecast
GENERAL FUND SUMMARY FIVE YEAR FORECAST
FY 16 FY 17 FY 18 FY 19 FY 20
Ca rry Over from
Pr ior year 9,177,000 2,759,000 0 0 0
To tal Revenues 288,494,000 296,397,000 302,533,021 309,453,843 315,949,309
Total Resources 288,494,000 296,397,000 302,533,021 309,453,843 315,949,309
Total Expenditures 269,758,000 275,321,000 279,618,000 285,805,000 292,530,000
Subtotal Operating
Income (Deficit) 27,913,000 23,835,000 22,915,000 23,649,000 23,420,000
Total T ransfers (22,154,000) (21,835,000) (20,915,000) (21,065,000) (21,201,000)
Net Change 5,759,000 2,000,000 2,000,000 2,584,000 2,219,000
Source: FY 16 Proposed Budget Document
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Figurre 6-3 abovee depicts thhe City’s currrent five-yeear forecastt for Generaal Fund reveenues
and exppenditures. The City hhas adoptedd a five-yeaar recoveryy plan. Thiss five-year plan
projects The five yeear projections show ssteady revennue growthh over the fforecast winndow
with an annual trannsfer to the General Funnd Reserve.. At the endd of the foreecast periodd this
reserve iis projectedd to be $27.33 million or 8.7 percentt of total Geeneral Fund expenditurres.
Figure 66-4: Generaal Fund Resserve (thouusands)
FY 20016 FFY 2017 FY 2018 FY 2019 FY 22020
Adoppted FForecast Forecast Forecasst Forrecast
Reservee Beginning
Balance $$8,959 $15,459 $20,459 $22,459 $$25,043
Estimmated RDA
Debt Repayment $3,500 $3,000
Trf off Est Budget
Surpllus/(Deficit) $3,000 $2,000 $2,000 $2,5844 $2,219
Reserve Ending
Balannce $115,459 $20,459 $22,459 $25,043 $227,262
Souurce: FY 20166 Proposed BBudget Documment
In adddition to thhe annual transfers of GGeneral Funnd surplus, tthe reserve will also receive
the repaayment of RRedevelopmment Agencyy (RDA) loaans, which hhave been aapproved byy the
Departmment of Finance.
The ffollowing seections discuss specificc areas of thhe financial status of thhe City in greeater
detail. TThese areass include overall City revenues aand expendditures, thee General FFund,
several oof the majoor enterprisse funds, thhe capital immprovemennt program,, city assetss and
liabilities, the pension systems and other lliabilities, deebt service,, and City boond ratings..
REVENUESS
Primmary sourcess of Generall Fund revennue consistt of propertyy taxes, salees taxes, chaarges
for servvices, businness licensses, franchiise fees annd hotel ttaxes. A vaariety of oother
miscellaneous revenues make up the balance of thee General Fuund. The Ciity also receives
restricteed revenue such as sstate gasoliine taxes ffor road innfrastructurre maintennance
purposes, and otheer grants and directedd revenues. Enterprisee activities such as wwater,
wastewaater, and soolid waste disposal seervices receeive the significant mmajority of their
revenues from charrges for servvices. The FFY 15 estimmated year eend revenuees and the FFY 16
budgetedd revenues for the General Fund aare depictedd in Figure 66-5.
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Figure 6-5: General Fund Revenues
GENERAL FUND REVENUES
FY 15 Year End Est. FY 16 Budget
Revenues
Sales Tax 77,780,000 82,233,000 28.5%
Property Tax 107,788,000 110,483,000 38.3%
RDA Increment 2,100,000 2,153,000 0.7%
Business License 17,529,000 17,880,000 6.2%
Franchise Fees 11,999,000 12,225,000 4.2%
Room Tax 10,170,000 10,424,000 3.6%
Charges for Current Services 30,676,000 29,874,000 10.4%
Intergovernmental Revenues 8,447,000 4,351,000 1.5%
Intergovernmental Revenues 12,847,000 11,518,000 4.0%
All Other 3,125,000 2,424,000 0.8%
Total Revenues 287,200,000 288,494,000 100.0%
Source: FY 16 Budget Document
Property Taxes
Property taxes comprise the largest source of revenue for the City’s General Fund
totaling approximately 39.0 percent of revenue for FY 16. Property tax revenue
experienced a sharp decline with the onset of the recession in 2008, however has since
begun to recover, at a steady rate, 4.8% in FY 2015 as the economic recovery continues.
Sales & Use Taxes
Sales and use taxes comprise the second largest source of revenue for the City’s General
Fund, totaling approximately 28.5 percent of revenue for FY 16. Sales tax growth
projections within the FY 16 budget reflect an increase of 3.6 percent over FY 15 and a 9.4
percent increase over FY 14. Steady recovery of this revenue is anticipated to continue as
the economy strengthens over time.
Franchise Fees
Franchise fees comprise approximately 4.2 percent of the City’s General Fund revenue
for FY 16. These fees are collected from telecommunications, electricity and other utility
providers. Beginning in FY 2012 the city collects Commercial Solid Waste and roll-off bin
franchise fees, which represents a net increase to the General Fund of more than $3 million
annually.
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Room (Hotel)) Taxes & Businness License Taaxes
Roomm (hotel) taaxes, formally known as transient occupancy taxes, and bbusiness liccense
taxes, coombine for aapproximately 9.8 perccent of the FFY 16 Generral fund revvenue. The CCity’s
room taxx rate is 12 percent of the room ccost. The Citty’s businesss tax rates vary depennding
on the tyype of businness.
Fees && Servicce Chargges
Fees and chargees for servicces for Geneeral Fund aactivities comprise appproximately 10.4
percent of revenuees. These feees and chaarges providde cost reccovery for vvarious serrvices
providinng direct benefit to the individualss or businessses utilizinng a service. These feess and
charges include peermit fees, inspection fees, citattion revenuues, gate feees from pparks,
building inspection fees, planniing fees, parrking fees, aand miscellaaneous otheer fees.
Other fees and charges forr services are collectedd within thee various enterprise fuunds,
such as WWater and WWastewaterr for servicees providedby those ennterprise opperations.
The sschedule off rates, fees,, and chargees for residential solidd waste servvice, wastewwater
service, aand water sservice are ddetailed in tthe City’s Master Fee Scchedule, whhich is publiished
on the City’s websitte. The City’’s current reesidential wwastewater rates are $225.75 per mmonth
for single family units. Multi-faamily units aare $25.75 pper month ffor the first unit and $117.29
per monnth for each additionaal unit. Commmercial raates range from $1.0777 to $5.144 per
hundredd cubic feet (ccf) for pootable connnections andd $1.184 to $3.864 perr ccf for effflluent
only connnections depending oon type of aactivity. Thee City’s watter rates coonsist of a fixed
monthlyy charge (meeter charge)) based on mmeter size, and a unit-rrate charge based on uusage.
As of Julyy 1, 2015, thhe fixed moonthly chargge for a 1-innch meter iss $12.40 perr month, and the
unit-ratee charge is $$1.09 per 1000 cubic feeet (748 galloons) of usagge.
EXPENDITURRES
Primmary General Fund expeenditures coonsist of emmployee exppenses incluusive of salaaries,
benefits and retiremment contriibutions, opperations annd maintenaance expenditures, pennsion
obligatioon bonds annd interdeppartmental ccharges. Ennterprise activity expennditures incclude
similar obligations as with thhe Generall Fund. Pubblic safety services (ppolice and fire)
comprise approximmately 19.3percent of the net Ciity budget, a relatively low amoount;
howeverr, those costts are approoximately 669 percent oof total Geneeral Fund uuses. Proprieetary
activity and governnmental actiivities expeenditures reeflect approoximately 66.9 percentt and
42.1 perrcent of the net citywidde budget, reespectively.. The estimaated year ennd expendittures
for FY 155, and the FY 16 budgeted expenditures for thhe General FFund are deepicted in Fiigure
6-6.
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Figure 6-6: General Fund Expenditures
GENERAL FUND EXPENDITURES
FY 15 Year End Est FY 16 Budget
Expenditures
Employee Services 149,362,000 157,058,000 58.2%
Attrition Savings (2,000,000) (1,973,400) -0.7%
Health & Welfare 15,896,000 18,022,000 6.7%
Retirement Contribution 22,183,000 22,158,000 8.2%
Pension Obligation Bonds 12,723,000 12,740,000 4.7%
Operations & Maintenance 27,002,000 28,490,000 10.6%
Interdepartmental Charges 27,390,000 30,152,000 11.2%
Minor Capital 2,834,000 3,111,000 1.2%
Contingency 10,000 0 0.0%
255,400,000 269,757,600
Total Expenditures 100 %
Transfers
Debt Service Transfers (18,633,400) (16,973,500) 76.6%
Transfers Between Funds (4,981,600) (4,780,800) 21.6%
Reserve for the next 27th Pay
$400,000 $400,000 1.8 %
Period
Loan Repayment (8,230,000) 0 0.0%
Transfer to Econ Development (2,000,000) 0 0.0%
Total Transfers (34,245,000) (22,154,300) 100.0%
Total
Expenditures/Transfers 289,645,000 291,911,900
Source: FY 16 Proposed Budget Document
Personnel Costs
Personnel costs comprise approximately 77.1 percent of the City’s General Fund
expenditures. These costs include employee services, retirement and pension obligation
bonds. Personnel costs have been increased approximately $9.8 million for FY 16 from the
previous year, due to increases in employee health insurance and retirement related
expenses as well as the addition of sworn public safety personnel and other non-public
safety positions.
Operations & Maintenance
Operations & maintenance costs comprise approximately 10.6 percent of FY 16 General
Fund expenditures. This represents an approximate $1.5 million increase from FY 15, due
to increased costs for contracted services, and costs associated with the additional
positions.
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Interddepartmmental CCharges
Interrdepartmental charges are charges to the Genneral Fund ffor supportt services too City
operatioons. These charges commprise approoximately 111.2 percentt of the FY 116 General Fund
expendittures, and reflect an increase off approximately $2.7 million oveer FY 15. This
increasee is due to 1) costs assoociated the aadditional ppositions; 2)) the increaased reservees for
softwaree replacemeent and risk costs.
Minorr Capital Costs
Minoor capital costs accoount for aapproximattely one ppercent of General Fund
expendittures for FYY 16. Minor capital expeenditures innclude minoor facility immprovementt and
upgrades, and machhinery and equipmentt replacemeents. This category aalso includes the
first of an eight-year replacemeent programm for all firee apparatus and auxiliarry vehicles.
Transfers
Transfers from the General Fund accoount for appproximatelyy 7.5 percennt of total FFY 16
General Fund expeenditures. TThese transsfers occurr for variouus purposes, such as debt
service, transfers too funds provviding serviices, repaymments of traansfers to thhe General Fund
of funds borrowed from other funds, etc. Debt servicce transfers account for approximmately
76.6 perrcent of alll transfers, and approoximately 5.8 percent of the totaal General Fund
expendittures for FYY 16.
OOTHER MMAJOR FFUNDS
The CCity maintains various other fundss for providding a varietty of servicees and activvities.
The enteerprise fundds, which prrovide business type sservices, commprise mosst of these ffunds
the City utilizes. Figgure 6-6 depicts five off the major enterprise fund activiities for serrvices
providedd by the Citty. Other mmajor funds not reflecteed are the Fresno Areea Transit ((FAX)
and the FFresno Yoseemite Internnational Airrport (FYI).
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Figure 6-7: Other Major Funds Revenues/Expenditures & Fund Balance
OTHER MAJOR FUNDS
FY 16
FY 16 FY 16 FY 16 FY 16 Convention
Water Wastewater Solid Waste Airport Center
Revenues
Taxes 3,000 500 0 678,000 0
Licenses & Permits 0 0 0 0 0
Intergovernmental
Revenue 2,013,300 1,292,600 273,700 11,699,200 0
Charges for Services 77,615,600 80,005,000 29,950,700 14,832,600 150,000
Fines 600 0 0 10,500 0
Other Revenue 495,700 945,100 225,300 9,653,300 401,200
Interdepartmental
Charges for Services 0 0 900 0 0
Miscellaneous Revenue 205,233,100 14,898,600 908,700 (6,500) 5,418,400
Transfers 100,000 835,500 10,579,500 839,000 10,133,300
16,102,900
Total Revenues
285,461,300 97,977,300 41,938,800 37,706,100
Expenditures
Personnel Services 20,075,300 17,552,800 13,136,400 9,360,100 15,300
Non Personnel Services 275,680,600 97,002,000 10,601,100 22,635,200 16,231,500
Interdepartmental
Services 14,385,000 7,283,300 14,547,200 3,635,500 8,100
Contingencies 350,000 0 0 0 0
Total Expenditures 310,490,900 121,838,100 38,284,700 35,630,800 16,254,900
(25,029,600) (23,860,800) 3,654,100 2,075,300 (152,000)
Net Income/(Deficit)
Beginning Fund 60,505,000 148,662,200 17,728,500 22,000,900 1,694,900
Balance
35,475,400 124,801,400 21,382,600 24,076,200 1,542,900
Ending Fund Balance
Source: FY 16 Proposed Budget Document
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As is the case wwith most ennterprise acctivities, theese funds arre generallyy self-sustaining
as they rely primaarily on feees and charrges for seervices provvided. Addiitionally, caapital
projects for infrasstructure ssupporting these servvices are ggenerally ffunded thrrough
accumullated fees ass well as finnancing mecchanisms wiith debt serrvice covereed by the feees. In
additionn, they also rreceive fedeeral and statte grants for one-time projects. Both FYI andd FAX
are suppported by ffunding fromm the Fedeeral Aviationn Administtration and Federal Trransit
Administration, respectively. BBudgets willl fluctuate ffrom year too year, thus deficit spennding
in a giveen year is nnot necessarrily reflectivve of a neggative trendd. Maintaining a reasonnable
fund balance ratio tto annual exxpenditures provides aan indicator of fund stabbility. Generally,
a minimmum ratio off 10 percennt is consideered minimmal. Each of these majoor funds meeet or
exceed tthat threshhold, with tthe exceptiion of the Fresno Connvention && Entertainmment
Center. The Fresnoo Conventioon & Entertaainment Cennter has beeen relativelly unstable over
the last several yeaars with neegative begiinning fundd balances iin FY 1118 19 Howeverr, the
conventiion center’ss finances hhave also sttabilized ovver the pastt few yearss. Since FYY 11’s
beginninng fund balaance of $1,3391,949, thee fund balannce has groown to a figgure of $5977,444
in FY 144.19 Much oof the credit for this tturnaroundd has to doo with the ssuccess of aa co-
promotion strategyy, which has brought neew businesss to the convvention cennter. As a reesult,
the subssidy from thhe General FFund has beeen reducedd, payables are no oldeer than 30 days,
and the bbudget incluudes $400,0000 of workk capital/resserves.
CAPITAL IMPROOVEMENNT PROGGRAM
The City maintaains a five-yyear capital improvemment prograam (CIP), aand updatess this
programm annually. The currennt proposed CIP totalls approximmately $1.33 billion in new
facilitiess and infrastructure uppgrades andd improvemments. For FFY 16, the CCity proposes to
budget aapproximattely $513 mmillion. Fundding for these capital projects iss generally from
bond prroceeds, speecial revenues and grrants. Figurre 6-8 depiicts the prooposed CIPP and
budget aallocations bby City depaartment.
18 FY 14 Budget Documentt
19 FY 16 Prooposed Budget
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Figure 6-8: FY 16Proposed Capital Improvement Program
CAPITAL IMPROVEMENT PROGRAM
FY 16 FY 17 FY 18 FY 19 FY 20
Expenditures
City Council Department $72,000 $0 $0 $0 $0
Police Department $90,000 $90,000 $90,000 $90,000 $90,000
Fire Department $270,000 $0 $0 $0 $0
Parks, After School, Rec & Com
$5,812,000 $200,000 $250,000 $250,000 $250,000
Svcs
Public Works Department $100,109,000 $36,293,000 $22,169,000 $18,434,000 $126,502,000
Development & Resource
$2,726,000 $189,385,000 $147,956,000 $31,049,000 $113,476,000
Management
Public Utilities Department $306,846,000 $189,385,000 $147,956,000 $31,049,000 $113,476,000
Airports Department $15,623,000 $12,610,000 $7,271,000 $6,536,000 $10,791,000
Convention Center
$1,157,000 $0 $0 $0 $0
Department
FAX Transportation
$81,432,000 $6,043,000 $5,902 $4,147,000 $4,704,000
Department
Total Expenditures $513,487,000 $245,449,000 $183,638,000 $60,506,000 $1,258,893,000
Source- FY 16 Budget Document
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ASSETS ANND LIABBILITIESS
Assets
Overrall City asssets exceeded liabilitiees by approoximately $$1.77 billionn as of Junee 30,
2014.20 AApproximattely $1.6 billion of thee excess waas compriseed of capitaal assets (nnet of
related ddebt), apprroximately $123 millioon in restriicted net asssets, and $$48.7 millioon of
unrestricted net asssets. . This uunrestrictedd net asset ddeficit refleects a surpluus for the Ciity in
meeting its currentt and long term obliggations. Cityy Governmeental Fundss had combbined
ending ffund balances of approximately $1178 million.. Approximaately $12.7 million waas not
spendabble, $145.8 mmillion wass restricted, $2.4 millioon was commmitted, annd $16.8 million
was asssigned. A surplus off approximaately $.4 mmillion madde up the balance inn the
unassignned fund baalance. Figures 6-9 andd 6-10 on thhe followingg pages deppict the stattus of
net assetts for the City overall and for four of the majoor enterprisee activities.
20 FY 12 CAAFR
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Figure 6-9: Net Asset Summary Governmental Activities and Business Activities
NET ASSETS
FY 14 Actuals FY 13 Actuals FY 12 Actuals
Governmental Activities
Assets $1,233,166,182 $1,193,606,843 $1,202,153,983
Deferred Outflows of Resources $496,128 $0 $0
Liabilities $563,881,004 $569,787,170 $576,937,928
Net Assets
Invested in Capital Assets, Net of
$744,074,246 $733,961,193 $742,532,911
Related Debt
Restricted for:
General Government $0 $20,870 $0
Public Protection $4,169,718 $3,805,021 $4,290,246
Public Ways $44,639,738 $40,287,101 $34,968,768
Culture and Recreation $1,220,059 $1,589,128 $1,241,138
Community Development $91,093,211 $78,012,535 $81,419,653
Capital Projects $0 $0 $0
Debt Service $0 $0 $0
Emergency Reserve $0* $1,902,776 $1,481,011
Unrestricted (Deficit) ($215,415,666) ($235,758,951) ($240,717,672)
Total Net Assets (Deficit) $669,781,306 $623,819,673 $625,216,055
Business Type Activities
Assets $1,827,428,354 $1,794,108,688 $1,744,996,419
Deferred Outflows of Resources $2,926,224 $0 $0
Liabilities $730,974,636 $744,670,172 $742,816,287
Net Assets
Invested in Capital Assets, Net of
$835,290,155 $829,455,733 $853,404,805
Related Debt
Unrestricted (Deficit) $264,089,787 $219,982,783 $148,775,327
Total Net Assets (Deficit) $1,099,379,942 $1,049,438,516 $1,002,180,132
Total City Net Assets (Deficit) $1,769,161,248 $1,673,258,189 $1,627,396,187
Source: FY 2012, 2013 & 2014 CAFRs
*FY 14 Emergency Reserve of $2,351,228 is included in Unrestricted Net Assets
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Figure 6-10: Net Asset Summary- Major Business Activities
NET ASSETS- MAJOR BUSINESS ACTIVITIES
FY 14 Actuals FY 13 Actuals FY 12 Actuals
Water Enterprise
Assets $499,420,393 $537,168,577 $499,420,393
Deferred Outflows of Resources $1,309,175 $0 $0
Liabilities $247,656,687 $247,768,553 $221,124,416
Net Assets
Invested in Capital Assets, Net of Related
$219,415,437 $219,412,846 $239,168,521
Debt
Unrestricted (Deficit) $96,654,065 $69,987,178 $39,127,456
Total Net Assets (Deficit) $316,069,502 $289,400,024 $278,295,977
Wastewater Enterprise
Assets $845,585,210 $837,693,118 $832,174,173
Deferred Outflow of Resources $1,246,013 $0 $0
Liabilities $266,972,102 $273,350,754 $285,030,803
Net Assets
Invested in Capital Assets, Net of Related
$440,581,456 $431,639,095 $435,508,176
Debt
Unrestricted (Deficit) $139,277,665 $132,703,269 $111,635,194
Total Net Assets (Deficit) $579,859,121 $564,342,364 $547,143,370
Airports Enterprise
Assets $221,100,023 $222,363,746 $219,360,771
Deferred Outflows of Resources $28,946 $0 $0
Liabilities $62,547,927 $66,073,793 $72,393,141
Net Assets
Invested in Capital Assets, Net of Related
$142,953,387 $146,930,439 $134,135,286
Debt
Unrestricted (Deficit) $15,627,655 $9,539,514 $12,832,344
Total Net Assets (Deficit) $158,581,042 $156,289,953 $146,967,630
Convention Center Enterprise
Assets $44,672,998 $48,659,026 $56,757,172
Deferred Outflows of Resources $342,090 $0 $0
Liabilities $49,619,056 $52,577,424 $56,306,669
Net Assets
Invested in Capital Assets, Net of Related
$33,984 $749,224 $5,736,359
Debt
Unrestricted (Deficit) ($4,637,952) ($4,667,622) ($5,285,856)
Total Net Assets (Deficit) ($4,603,968) ($3,918,398) $450,503
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CITY OF FRESNO MUNICIPAL SERVICE REVIEW
Fund Balance Cash Reserves
GASB Statement No. 54 re-categorized certain cash reserve/fund balances to better
define their purposes. These five reporting categories are “nonspendable,” “restricted,”
“committed”, “assigned”, and “unassigned”. “Nonspendable” funds are those that are in a
form that renders them not convertible to cash such as inventories, prepaid items or
receivables. “Committed” funds are those that can only be used for a specific purpose by an
action of the highest level of decision-making authority in the City, generally the City
Council. Committed funds may be reallocated by a decision of the same decision-making
body. “Restricted” funds have constraints placed on them such as grant requirements,
regulatory requirements, and dedicated projects funded by bond proceeds. “Assigned”
funds not classified as nonspendable, committed or restricted, but are intended for a
specific purpose. “Unassigned” funds are those that are not classified in any of the other
categories and are available for any purpose. Figure 6-11 depicts the three year trend of
these reserves from FY 12 through FY 14. Although the trend for the “unassigned” category
is heading in the appropriate direction, the City remains in a very unstable position with
respect to cash reserve capacity.
Figure 6-11: General Fund & Other Governmental Funds Cash Reserves
FUND BALANCE CASH RESERVES- GASB 54
FY 14 FY 13 FY 12
Actuals Actuals Actuals
General Fund
Nonspendable $12,690,500 $12,690,500 $12,690,500
Restricted $7,001 $435,369 $0
Committed $2,351,228 $1,902,776 $1,481,011
Assigned $1,006,021 $1,094,848 $389,863
Unassigned $8,191,661 ($9,355,244) $483,340
Total General Fund $24,246,411 $6,768,249 $15,044,714
All Other Governmental Funds
Restricted $145,763,010 $128,099,712 $125,274,801
Assigned $15,752,156 $17,624,081 $19,896,550
Unassigned ($7,748,893) ($5,196,448) ($7,547,150)
Total All Other Governmental
$153,766,273 $140,527,345 $137,624,201
Funds
Source: FY 2012 CAFR, FY 2013 CAFR, FY 2014 CAFR
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CITY OF FRESNO MUNICIPAL SERVICE REVIEW
Debt, Debt Service & Bond Ratings
Debt/Debt Service
The City has incurred a number of various long-term bond debt and loan obligations
over the years for various purposes. Twelve bonds and seven loans are backed by the
General Fund. Most of the bonds are lease revenue bonds. Six bonds and one loan are
backed by enterprise funds. All of the bonds are revenue bonds. Figure 6-11 reflects the
total obligations and debt service requirements for these bonds and loans. Of the
approximately $1.3 billion total debt,21 approximately $695 million is associated with
enterprise funds revenue bonds. Approximately $228 million are general obligation bonds
and approximately $377 million are lease revenue bonds for general governmental
projects. Total General Fund backed indebtedness is approximately $605 million. The FY 16
General Fund debt service is approximately 12.9 percent of the General Fund budget.22 This
ratio is relatively high as a ratio of less than 10 percent would be considered an ideal level.
The City currently forecasts this ratio to decrease annually to 11.1 percent in five years and
below 10 percent in nine years.
Figure 6-12: Summary of Debt &FY 16 Debt Service
DEBT & DEBT SERVICE
6/30/2015 FY 16
General
Outstanding Fund Debt
Principal & Principal Interest Total Debt Service
Interest Payment Payment Service Portion
Bonds $1,300,377,466 $35,505,260 $44,808,553 $79,921,615 $31,356,912
Loans $66,301,926 $5,757,473 $392,198 $6,149,671 $2,214,678
Totals $1,366,679,392 $35,505,260 $48,808,553 $86,071,286 $33,571,590
Source: FY 16 Proposed Budget Document
Bond Ratings
All three credit rating agencies monitor the City’s credit ratings annually. Over the last
several years, the City has experienced rating downgrades from each agency. All three
agencies had similar concerns leading to a downgrade—failure to adopt a balanced budget
for FY 13 and the exhaustion of the City’s General Fund unrestricted fund balance in 2012.
However, in light of the City’s improving financial condition, two rating agencies upgraded
their outlooks during the most recent ratings review period. The ratings as of January 31,
2015 are listed in Figure 6-13.
21 FY 16 Budget Document
22 Ibid.
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Figure 6-13: Bond Ratings
BOND RATING- 2014
Lease Revenue Bonds
Pri or Rating Prior Outlook New Rating New Outlook
Fitch BBB/BB- Negative BBB/BBB- Stable
S & P BB+ Stable BB+ Stable
Moody's B a2/Ba3 Stable Ba2/Ba3 Positive
General Obligation Bonds
Prior Rating Prior Outlook New Rating New Outlook
Fitch BBB+ Negative BBB+ Stable
S & P BBB- Stable BBB- Stable
Moody's Baa1 Stable Baa1 Positive
So urce: FY 16 Proposed Budget Document
Pension and Other Long-Term Liabilities
Pension Systems
The City maintains two retirement systems for its employees, the Fire & Police
Retirement System (FPRS) and the Employees Retirement System (ERS). As of June 30,
2014, there were 2,029 members in FPRS in two tiers, and 3,817 members in ERS.23
The City restructured its 1993-94 Pension Obligation Bonds in 2002, and provided
collective cash contributions and pre-funded actuarial accrued liability totaling
approximately $180 million for the combined funds. The City levies a parcel tax of
$0.032438 per $100 of assessed valuation to fund pension obligations. Both pension
systems are currently well funded and stable. Figure 6-13 reflects the current actuarial
valuations of each pension system as of June 30, 2014.
23 FY 12 CAFR
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CITY OF FRESNO MUNICIPAL SERVICE REVIEW
Figure 6-14: Pension System Actuarial Valuation
FIRE & POLICE RETIREMENT SYSTEM
Actuarial
Accrued
Actuarial Actuarial Value Liability Entry (Prefunded) Funded
Valuation of Assets Age Unfunded AAL Ratio
Date (a) (b) (b-a) (a/b)
113.6
6/30/2014 $1,142,649,000 $1,006,028,000 ($136,621,000)
percent
EMPLOYEES RETIREMENT SYSTEM
Actuarial
Accrued
Actuarial Actuarial Value Liability Entry (Prefunded) Funded
Valuation of Assets Age Unfunded AAL Ratio
Date (a) (b) (b-a) (a/b)
104.6
6/30/2014 $993,641,000 $950,274,000 ($43,367,000)
percent
Source- Controller Transmittal Report: FY 14 CAFR
Other Long Term Liabilities (Includes OPEB)
As of June 30, 2014, the City has other long term liabilities totaling approximately
$257.0 million. Figure 6-15 depicts the breakdown of these other obligations by major
activities.
Figure 6-15: Summary of Other Long Term Liabilities
OTHER LONG TERM LIABILITIES
Business Total
Governmental Type Fiduciary Primary
Activities Activities Funds Government
Compensated Absences &
Health Retirement $51,008,290 $11,162,714 $58,488 $62,229,492
Arrangement
Net OPEB Obligation $45,970,820 $17,863,016 $0 $63,833,836
Liabilities for Self Insurance $101,495,210 $0 $0 $101,495,210
CVP Litigation Settlement $0 $12,442,464 $0 $12,442,464
Accrued Closure Cost $0 $16,211,324 $0 $16,211,324
Pollution Remediation $0 $809,411 $0 $809,411
Total long Term Liabilities $198,474,320 $58,488,929 $58,488 $257,021,737
Source : FY 14 CAFR
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CITYY OF FRESNO MUNICIPAL SERVICE REVIEW
FINANCING EFFFICIENCIES ANND OPPOORTUNITTIES
Therre are very llimited opportunities ffor improvinng the finanncing of thee City other than
those mmeasures alrready taken by the CCity. Fortunnately, thosse measurees that the City
undertoook in the paast few yearrs are beginnning to payy dividends. With expeenses remaining
relatively constant oover the lasst few fiscal years, the CCity is posittioned to finnancially beenefit
as revennues increasse.
The City’s low credit andd bond ratiings may ccomplicate any new ffinancing or re-
financingg the City mmay wish to pursue, aas interest rrates wouldd be negativvely affecteed by
these raatings. Howwever, Mooddy’s has reccently upgrraded the CCity’s crediit rating byy one
notch. If other raating agencies follow ssuit or Mooody’s continnues to upggrade the CCity’s
rating inn the next yyear,, there may be oppportunities in the foreseeable futuure to refinnance
and reduuce the impaact that debbt has on thee City’s buddget.
The CCity must continue its prudent finnancial mannagement aand strive too further reeduce
costs, orr minimize cost increases in all arreas where costs cannnot be recovvered by fees or
charges for servicess. The City feee and servvice charge rrate structuures should be analyzedd and
monitored often to ensure full cost recovery is being aachieved for fee recoveery servicess.
Therre are some areas the CCity may wissh to revieww to determmine if furtheer efficienciies in
service delivery maay be gaineed at a redduced cost. One area would be cconsolidatioon of
functions within departmentss or funds. The City mmay have opportunitiies to eliminate
duplication of functions throough consoolidation. AAnother areea the Cityy may wannt to
investigaate is contraacting moree services too the privatee sector whhere it can bbe demonstrrated
that saviings would be achieved and a higgher level off service prrovided throough the prrivate
sector.
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77. GRROWTTH AN D PP O P UU L AT II O N
PPRO JEECT I O N S
The purpose of this sectiion is to eevaluate grrowth and populationn projectionns in
relationsship to the City of Freesno’s boundaries and SOI, in ordder to anticcipate the fuuture
service nneeds of thhe City. Addditionally, the anticippated growtth patterns of the Cityy are
evaluateed in order to determinne the impaact and commpatibility oof such growwth on landd use
plans annd local goveernment strructure.
LAND USEE
Of paarceled land within ciity limits, tthe largest land use iss residentiaal at 35 perrcent
(residenntial and rurral residentiial uses), ass shown in FFigure 7-1. Other signiificant land uses
within thhe City are for streets and vacant or agricultuural purposses. Withinn the SOI ouutside
of the CCity limits, 29 percennt of land uuse is residdential andd 16 percent is vacannt or
agricultuural.
Figure 7--1: Parceledd Land Use, 2011
Incorporateed Uninncorporated SOI Total
Land Usee Accres Perrcent Acrres Percent Acres Perccent
Residentiial 224,176 334% 55,518 188% 299,694 299%
Rural Ressidential 739 1% 33,594 122% 44,333 44%
Commerccial 4,790 7% 165 11% 44,955 55%
Industrial 5,984 8% 11,327 44% 77,356 77%
Public Facilities 5,873 8% 189 11% 66,063 66%
Open Spaace 4,173 6% 756 22% 44,929 55%
Wastewater Treatmennt Plant 3,292 5% - 00% 33,292 33%
Streets 114,256 220% 22,793 99% 177,049 177%
Vacant/AAg land 8,438 112% 88,367 277% 166,805 166%
Southeast Growth Areea - 0% 88,353 277% 88,353 88%
Other 437 1% 60 00% 497 00%
Totals 772,158 1000% 311,122 1000% 1033,326 1000%
Source: Geneeral Plan Update WWorking Paper 2 -- Urban Form andd Land Use, 2011
Agriculttural Lands
While agricultural uses coontinue to ddominate mmuch of the regional landscape, only
moderatte amounts of agriculttural land rremains in productionn within thee City’s planned
urban bboundary ((primarily in the eastern, souttheastern aand southwwestern arreas).
Expansioon of the Ciity’s planneed urban booundary andd sphere off influence oover the past 35
years haas allowed conversion oof some impportant agricultural lannds to urbann uses. Howwever,
a trend oof an ever eexpanding uurban footpprint was mmoderated too some exteent by efforrts to
direct grrowth awayy from the highest quaality agriculltural, avoidd prematurre conversioon of
agricultuural land to planned urrban uses, aand to accommodate eexisting agriicultural-related
industriaal activities.
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In 20011, there wwas approximately 16,8805 acres off agriculturaal or vacantt land within the
City and its sphere oof influencee. A majorityy of vacant lland along tthe urban eddge was acttively
cultivateed agricultuural land att one time, although pportions maay have beeen purchaseed in
anticipattion of futuure urban eexpansion. In some innstances, aggricultural land uses were
discontinnued along the fringess of the Cityy in anticippation of urrban use. WWhile the Ciity of
Fresno hhas adoptedd policies to discouragee the premaature converrsion of agrricultural lannd to
urban usses, there is nothing to deter premmature disinvvestment inn agriculturaal land.24
Vacant LLand Inventtory
As off 2011, therre were appproximately 196,350 paarcels (or 84,104 acress) of vacantt land
within thhe City’s SOOI. Of thesee propertiess, 13,146 accres were ddesignated ffor single faamily
residenttial uses in tthe 2025 Genneral Plan. Of the totall vacant landd designateed for resideential
uses in tthe SOI areaa, 2,217 acres (17 percent) were eencumberedd by approvved subdivissions
with appproved tentaative tract mmaps.
Figure 7--2: Vacant LLand Inventtory, 2011 (aacres)
Overall Available Laand
West Soouthwest Doowntown SEGA Innfill1 Noorth Tottal
Acreage DDeveloped2 7,204 3,516 4,676 3,336 443,075 336 62,,144
Acreage VVacant3 4,160 4,290 347 5,060 7,538 567 21,,961
Percent VVacant4 37% 55% 7% 60% 15% 63% 26%
Availablle Residentiaal Land - Dessignated by 22025 Generall Plan Plannned Land Usee for Residenntial
West Soouthwest Doowntown SSEGA5 Innfill1 Noorth Tottal
Total Vaccant/
2,572 2,148 108 5,060 2,790 467 13,,146
Residentiial PLU
Vacant/RResidential
813 412 9 - 927 55 2,217
Mapped
Remaininng Vacant
1,759 1,736 100 5,060 1,862 412 10,,930
Residentiial Capacity
Source: City of Fresno Generaal Plan Update Woorking Paper #2: UUrban Form and LLand Use
Notes:
1) Land withhing the existing ccity limits with an existing land usee of either vacant, open space or agriculture.
2) Developed is all existing land use that is nott vacant, open spaace or ag. This alsoo includes rural residential developpment.
3) Vacant includes lands that are vacant, open space or agricultuure.
4) Acreage mmay vary given certain shape files iinclude roads whiile others do not.
5) Estimatedd residential capaacity for SEGA.
6) Mapped iis a vacant lot withh an approved tenntative tract map..
CUURRENTT POPULLATION
As off January 1, 2014, the City has a populationn of approxximately 515,609, baseed on
Californiia Departmment of Finaance (DOF)) estimates,, which inddicates approximately four
percent growth sincce the 20100 Census. TThe City estiimates thatt around 50,000 peoplee live
in unincoorporated laand within the City’s SOOI.
24 City of Frresno, General PPlan Update Urbban Form and Laand Use Workinng Paper, 2011, p. 3-18.
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The City supports a highly-concentrated population compared to rural areas within the
County. In total, there are approximately 4,418 persons per square mile within the City
limits, compared to 156 persons per square mile countywide. In comparison to
neighboring Clovis (4,982 persons per square mile), the concentration of population is
slightly less. Residential density in Fresno is also comparable to that of Clovis – 2.38 units
per acre in Fresno and 2.37 units per acre in Clovis.
As of 2010, the City’s population consisted of approximately 30 percent under the age
of 18 and approximately nine percent over the age of 65. By comparison, other areas in
California generally have a lower population of youth, with the under 18 population
comprising 25 percent of the statewide population.
Household size in the City is generally comparable with that of the County with
approximately 3.1 persons per household within the City, and 3.2 persons per household
throughout the entire County.
Income levels within the City are slightly lower than that of the County as a whole with
a median household incomes of $42,276 and $45,741, respectively. Similarly, a greater
portion of the City’s population (27.5 percent) lives at or below the poverty level than
countywide (24.8 percent).
Disadvantaged Unincorporated Communities
The purpose of Senate Bill 244 (Wolk, 2011) is to begin to address the complex legal,
financial, and political barriers that contribute to regional inequity and infrastructure
deficits within disadvantaged unincorporated communities (DUCs). Identifying and
including these communities in the long range planning of a city or special district is
required by SB 244.
SB 244 requires cities to identify and plan for these communities on or before the next
adoption of its housing element. Government Code (GC) §65302.10(a) requires that each
city review and update the land use element of its general plan, based on available data,
including, but not limited to, the data and analysis developed pursuant to GC §56430 (CKH
Act, Service Reviews). Legislative requirements designated to cities per SB 244 are
independent from requirements designated to LAFCos through its governing legislation
(Cortese-Knox-Hertzberg Act of 2000).
The Cortese-Knox-Hertzberg Local Government Reorganization Act (CKH) requires
LAFCo to make determinations regarding DUCs when considering a change of organization,
reorganization, sphere of influence expansion, and when conducting municipal service
reviews. For any updates to an 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.25
25 Government Codes §56425(e)5, Present and Probable need; disadvantaged unincorporated communities
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Government Code §56033.5 defines a DUC as 1) all or a portion of a “disadvantaged
community” as defined by §79505.5 of the Water Code, and as 2) “inhabited territory” (12
or more registered voters), as defined by §56046, or as determined by commission policy.
Further, on January 9, 2013, Fresno LAFCo exercised its powers and adopted policy which
refined the DUC definition to include, a DUC shall have at least 15 dwelling units at a
density not less than one unit per acre. Additionally, the Commission Policy defines legacy
communities as a geographically isolated community that meets the DUC criteria, is at least
50 years old, and is beyond the adopted SOI of any City. When approving any new or
updated SOI for a city or special district, the city or special district shall be required to
identify any legacy community within one mile of the existing or proposed SOI.26
CKH prohibits LAFCo from approving an annexation to a city of any territory greater
than 10 acres if a DUC is contiguous to the proposed annexation, unless an application to
annex the DUC has been filed with Fresno LAFCo. An application to annex a contiguous DUC
shall not be required if a prior application for annexation of the same DUC has been made
in the preceding five years or if the commission finds, based upon written evidence, that a
majority of the registered voters within the affected territory are opposed to annexation.27
As previously indicated, income levels within the City are slightly lower than that of the
County as a whole with median household incomes (MHI) of $42,276 and $45,741
respectively. Similarly, a greater portion of the City’s population (27.5 percent) lives at or
below the poverty level than countywide (24.8 percent). As of July 2015, the US Census
estimates show the statewide MHI for California at approximately $61,094; meaning that
pursuant to Water Code §79505.5, any location with a MHI less than $48,875 meets the
income threshold for identifying Disadvantaged Communities. In addition to the MHI
income criteria, a DUC must be outside of the city limits (Unincorporated), within or in the
vicinity of the City’s SOI, and have at least 15 dwelling units at a density not less than one
unit per acre.
This section to the report uses County of Fresno Geographic Information System (GIS)
parcel mapping and US Census information to quantify the economic composition of all the
census block groups within the vicinity of the Fresno city boundaries. GIS files were
derived from the US Census Bureau's American Community Survey (ACS) compiled for the
five-year period between 2006 and 2010 to identify the demographic composition of the
various census geographies. This MSR uses the 2006-10 ACS five-year estimates datasets
because as of July 2015, it was the most up-to-date five year estimates available for
tracking demographics at the census block group level. Although ACS provides annual,
three-year estimates, and five-year estimate reports, the data for years 2006 and 2010
provide the most precise data and mapping information to analyze small populations. The
five-year reports are the most reliable form of information generated by the US Census.28
California’s statewide MHI reported for years 2006 through 2010 was $60,883;
consequently, the DUC threshold for that time period is any geographic unit with an MHI
less than $48,706. The ACS five-year estimates for census block groups within Fresno’s SOI
26 Policies, Standards, and Procedures, Fresno Local Agency Formation Commission, Policy 106 - DUCs
27Government Codes section 56375 (a) (8) (A)- Annexations Greater than 10 acres; Contiguous to a DUC
28 US Census Bureau, http://www. census. gov/acs/www/guidance_for_data_users/estimates/
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and city limits were utilized to provide the economic data background for this section of
the MSR.
The census block groups are geographical units used by the US Census Bureau to
sample data, which is only collected from a fraction of all households within the census
geographic unit. On average, census block groups have a population of 600 to 3,000 people,
and provide the number of households, population, and MHI data for those residents
residing within the geographic unit. An assessment of all census tracts and block groups
immediately outside the city limits were reviewed to determine the MHI levels for areas
outside the City. Areas up to a mile from the Fresno SOI were also assessed to identify any
potential legacy communities. Unincorporated areas were surveyed by aerial photography
and parcel division patterns to determine existence of DUC locations. Fresno LAFCo staff
conducted site drive visits for DUCs closest to the Fresno city boundaries.
Fresno LAFCo has determined that as of the date of adoption of the Commission’s DUC
policy, there may be deficiencies in census data to accurately assess the median household
incomes to unincorporated communities. As a result, LAFCo staff sought various additional
sources of information available in order to determine the locations where DUCs may exist
within the City’s SOI and greater unincorporated areas. In preparation for this section of
the MSR, LAFCo staff consulted and included GIS mapping information provided by
PolicyLink’s GIS specialist/cartographer (a non-profit corporation based in Oakland,
California) to verify locations where identified DUCs exist gathered from independent
research. PolicyLink is a national research and action institute whose stated purpose is to
advance economic and social equity.29
In April 2015, LAFCo staff began its outreach with local community-based organizations
including the Leadership Counsel for Justice and Accountability, Fresno Metro-Ministry,
California Rural Legal Assistance, and Self-Help Enterprises to solicit additional
information to include in this section of the MSR. Several of these organizations informed
LAFCo staff that their organization actively participate in planning and programs to assist
disadvantaged communities and were involved in the City’s 2014 General Plan process.
During the City’s environmental review period for the General Plan Update, many of these
organizations submitted comment letters to the City of Fresno to encourage the City to
identify DUCs within the planning area and formulate policies to address DUCs. LAFCo staff
reviewed the comment letters and information submitted to the City of Fresno, and
considered the organizations’ concerns in this section of the MSR.
LAFCo staff has identified 20 DUCs within Fresno’s SOI and six DUCs within a one-mile
distance outside the adopted SOI boundaries. Locations identified as DUCs display
characteristics that indicate the presence of a DUC pursuant to Fresno LAFCo’s Policy 106
and CKH. Each identified DUC area is designated with a number on the map and a
corresponding description that identifies: the location, number of properties within the
DUC, its US Census tract-block group number, and the MHI level reported by ACS five-year
estimates between 2006 and 2010. As previously indicated, Fresno LAFCo determined that
there may be deficiencies in census data to accurately assess median incomes for small
29 Jake Mann, GIS Specialist/Cartographer, private electronic email correspondence with LAFCo Staff – Draft DUCs for
Fresno County, February 11, 2015.
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disadvantaged unincorporated communities. This section of the MSR includes data
collected by Fresno LAFCo as “information sources” cited in Fresno LAFCo policy 106
which includes: US Census-ACS five-year estimates, Fresno County GIS – Mapping data,
Aerial Photography, site verification on areas closest to the city limits, and information
provided by PolicyLink. Further, Fresno LAFCo reached out to various local organizations
in preparation of this section to the MSR in order to present an overarching assessment of
areas that meet at least two key DUC indicators, per the Commission’s DUC policy.
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Figure 7-3: Disadvantaged Unincorporated Communities
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1. Area 1 is located outside of the Fresno SOI at the northwest corner of Ashlan Avenue
and Chateau Fresno Avenue. The DUC consists of 18 properties located within US
Census Tract 41.00-Block Group 1. The US Census ACS five-year estimate reports
indicate that Census Tract 41.00-Block Group 1 had an MHI of $37,268 between 2006
and 2010. This area of concern meets the two DUC indicators identified by Commission
Policy 106—MHI threshold and at least 15 dwelling units.
2. Area 2 is located within the Fresno SOI at the northwest corner of Dakota Avenue and
Brawley Avenue. The DUC consists of 21 properties located within US Census Tract
38.09-Block Group 1. The US Census ACS five-year estimate reports indicate that
Census Tract 38.09-Block Group 1 had an MHI of $48,553 between from 2006 to 2010.
This area of concern meets the two DUC indicators identified by Commission Policy
106—MHI threshold and at least 15 dwelling units.
3. Area 3 is located within the Fresno SOI at the northwest corner of Clinton Avenue and
Valentine Avenue. The DUC consists of 45 properties spanning across the west and east
sides of Valentine Avenue north of Clinton. The subject area is located within US Census
Tract 38.05-Block Group 2 and Tract 38.05-Block Group 3. The US Census ACS five-year
estimate reports indicate that Census Tract 38.05-Block Group 2 had an MHI of $25,152
while Census Tract 38.05-Block Group 3 had an MHI of $43,256 between from 2006 to
2010. This area of concern meets the two DUC indicators identified by Commission
Policy 106—MHI threshold and at least 15 dwelling units.
4. Area 4 is located within the Fresno SOI at the southeast corner of McKinley Avenue and
Brawley Avenue. The DUC consists of approximately 268 properties located within US
Census Tract 38.07-Block Group 2 and Tract 38.07-Block Group 3. The US Census ACS
five-year estimate reports indicate that Census Tract 38.07-Block Group 2 had an MHI
of $30,880 while Tract 38.07-Block Group 3 had an MHI of $45,365 between 2006 and
2010. This area of concern meets the two DUC indicators identified by Commission
Policy 106—MHI threshold and 15 dwelling units.
5. Area 5 is located within the Fresno SOI at the southeast corner of Olive Avenue and
Marks Avenue. The DUC consists of approximately 267 properties located within US
Census Tract 20.00-Block Group 4 and Tract 20.00-Block Group 5. The US Census ACS
five-year estimate reports indicate that Census Tract 20.00-Block Group 4 had an MHI
of $26,875 while Tract 20.00-Block Group 5 had an MHI of $14,931 between 2006 and
2010. This area of concern meets the two DUC indicators identified by Commission
Policy 106—MHI threshold and at least 15 dwelling units.
6. Area 6 is located within the Fresno SOI at the northwest corner of California Avenue
and Crystal Avenue. The DUC consists of approximately 19 properties on the north and
south sides of California Avenue. The properties are located within US Census Tract
07.00-Block Group 2 and Tract 08.00-Block Group 1. The US Census ACS five-year
estimate reports indicate that Census Tract 07.00-Block Group 2 had an MHI of $36,875
while Tract 08.00-Block Group 1 had an MHI $25,658 between 2006 and 2010. This
area of concern meets the two DUC indicators identified by Commission Policy 106—
MHI threshold and at least 15 dwelling units. This location was also designated as a
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DUC by PolicyLink, an information source that LAFCo Staff consulted with during the
DUC identification process.
7. Area 7 is located within the Fresno SOI at the northeast corner of Jensen Avenue and
Valentine Avenue. The DUC consists of approximately 129 properties located within US
Census Tract 19.00-Block Group 2. The US Census ACS five-year estimate reports
indicate that Census Tract 19.00-Block Group 2 had an MHI of $44,583 between 2006
and 2010. This area of concern meets two DUC indicators identified by Commission
Policy 106—MHI threshold and at least 15 dwelling units.
8. Area 8 is located outside the Fresno SOI at the southeast corner of Muscat Avenue and
Valentine Avenue. The DUC is considered a Legacy Community which consists of
approximately 51 properties located within US Census Tract 19.00-Block Group 3. The
US Census ACS five-year estimate reports indicate that Census Tract 19.00-Block Group
3 had an MHI of $31,071 between 2006 and 2010. This area of concern meets two DUC
indicators identified by Commission Policy 106—MHI threshold and at least 15
dwelling units.
9. Area 9 is located within the Fresno SOI at the northeast corner of Cherry Avenue and
Central Avenue. The DUC consists of 42 properties located within US Census Tract
18.00-Block Group 1. The US Census ACS five-year estimate reports indicated that
Census Tract 18.00-Block Group 1 had an MHI of $26,397 between 2006 and 2010. This
area of concern meets two DUC indicators identified by Commission Policy 106—MHI
threshold and at least 15 dwelling units. LAFCo staff conducted a site visit on April 7,
2015 to verify the physical conditions of the community.
10. Area 10 is located outside the Fresno SOI at the southeast corner of Britten Avenue and
Cherry Avenue. The DUC is considered as a Legacy Community which consists of
approximately 25 properties located within US Census Tract 18.00-Block Group 1. The
US Census ACS five-year estimate reports indicate that Census Tract 18.00-Block Group
1 had an MHI of $26,397 between 2006 and 2010. This area of concern meets two DUC
indicators identified by Commission Policy 106—MHI threshold and at least 15
dwelling units. LAFCo staff conducted a site visit on April 7, 2015 to verify the physical
conditions of the community.
11. Area 11 is located within the Fresno SOI at the northeast corner of Malaga Avenue and
Orange Avenue. The DUC consists of 15 properties located within US Census Tract
15.00-Block Group 1. The US Census ACS five-year estimate reports indicate that
Census Tract 15.00-Block Group 1 had an MHI of $30,208 between 2006 and 2010. This
area of concern meets two DUC indicators identified by Commission Policy 106—MHI
threshold and at least 15 dwelling units.
12. Area 12 is located within the Fresno SOI at the northeast corner of American Avenue
and Orange Avenue. A portion of the DUC is located south of American Avenue, which is
currently outside of the City's SOI. The DUC consists of 25 properties located within US
Census Tract 15.00-Block Group 1 and Tract 17.00-Block Group 1. The US Census ACS
five-year estimate reports indicate that Census Tract 15.00-Block Group 1 had an MHI
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of $30,208 while Tract 17.00-Block Group 1 had an MHI of $46,850 between 2006 and
2010. This area of concern meets two DUC indicators identified by Commission Policy
106—MHI threshold and at least 15 dwelling units. This location was also designated as
a DUC by PolicyLink, an information source that LAFCo Staff consulted with during the
DUC identification process.
13. Area 13 is located outside the Fresno SOI within a mile distance from the City’s SOI. The
subject territory is located at the northwest corner of Lincoln Avenue and Chestnut
Avenue. Although the DUC consists of one large property, the lot hosts a community of
approximately 45 structures adjacent Chestnut Avenue and the Oleander Canal. The
area is located within US Census Tract 17.00-Block Group 1. The US Census ACS five-
year estimate reports indicate that Census Tract 17.00-Block Group 1 had an MHI of
$46,850 between 2006 and 2010. This area of concern meets two DUC indicators
identified by Commission Policy 106—MHI threshold and at least 15 dwelling units.
14. Area 14 is located outside the Fresno SOI at the southeast corner of Central Avenue and
Maple Avenue. The DUC consists of one large property which hosts multiple mobile
homes located within US Census Tract 15.00-Block Group 1. The US Census ACS five-
year estimate reports indicate that Census Tract 15.00-Block Group 1 had an MHI of
$30,208 between 2006 and 2010. This area of concern meets two DUC indicators
identified by Commission Policy 106—MHI threshold and at least 15 dwelling units.
15. Area 15 is located outside the Fresno SOI within a one mile distance from the City’s SOI.
The Community of Malaga is located at the southeast corner of the Muscat Avenue and
Chestnut Avenue. The DUC is considered a Legacy Community and consists of
approximately 223 properties located within US Census Tract 15.00-Block Group 2. The
US Census ACS five-year estimate indicated that Census Tract 15.00-Block Group 2 had
an MHI of $29,375 between 2006 and 2010. This area of concern meets two DUC
indicators identified by Commission Policy 106—MHI threshold and at least15 dwelling
units.
16. Area 16 consists of four properties within the Fresno SOI and 12 properties outside the
City’s SOI. The DUC area is located at the southeast corner of North Avenue and Peach
Avenue. In total, the DUC consists of 16 properties located within US Census Tract
15.00-Block Group 2.The US Census ACS five-year estimate reports indicated that
Census Tract 15.00-Block Group 2 had an MHI of $29,375 between 2006 and 2010. This
area of concern meets two DUC indicators identified by Commission Policy 106—MHI
threshold and at least 15 dwelling units.
17. Area 17 is located within the Fresno SOI at the northeast corner of North Avenue and
Chestnut Avenue. The DUC area consists of 18 properties located within US Census
Tract 15.00-Block Group 2. The US Census ACS five-year estimate reports indicated that
Census Tract 15.00-Block Group 2 had an MHI of $29,375 between 2006 and 2010. This
area of concern meets two DUC indicators identified by Commission Policy 106—MHI
threshold and at least 15 dwelling units.
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18. Area 18 is located within the Fresno SOI near the southeast corner of Church Avenue
and Orange Avenue. The Community of Calwa is considered a DUC—consisting of
approximately 385 properties located within US Census Tract 12.01- Block Group 1 and
Tract 12.01-Block Group 2.The US Census ACS five-year estimate reports show Census
Tract 12.01-Block Group 1 had an MHI of $18,462 while Tract 12.01-Block Group 2 had
an MHI of $38,269 between 2006 and 2010. This area of concern meets two DUC
indicators identified by Commission Policy 106—MHI threshold and at least 15
dwelling units. The “Friends of Calwa,” a non-profit community group, provided
comments during development of the General Plan outlining Calwa’s community.30
19. Area 19 is located north of the Community of Calwa, within City of Fresno’s SOI. The
area is located north of Church Avenue and east of Orange Avenue. The DUC area is
located near industrial areas east of Orange Avenue and consists of 23 properties
located within US Census Tract 12.01- Block Group 1. The US Census ACS five-year
estimate reports indicated that Census Tract 15.00-Block Group 2 had an MHI of
$29,375 between 2006 and 2010. This area of concern meets two DUC indicators
identified by Commission Policy 106—MHI threshold and at least 15 dwelling units.
20. Area 20 is located within the Fresno SOI north of Kings Canyon Avenue and east and
west of Minnewawa Avenue. The DUC area consists of approximately 110 properties
located within US Census Tract 30.03-Block Group 1 and Tract 30.03-Block Group 2.
The US Census ACS five-year estimate reports show Census Tract 30.03-Block Group 1
(west of Minnewawa and north of Kings Canyon) had an MHI of $30,690, while Tract
30.03-Block Group 2 (east of Minnewawa and north of Kings Canyon) had an MHI of
$30,705 between 2006 and 2010. This area of concern meets two DUC indicators
identified by Commission Policy 106—MHI threshold and at least 15 dwelling units.
21. Area 21 is a relatively large area of residential units located within Fresno’s SOI and
encompassed by Fresno city limits. Area 21-A of the DUC is bounded by Belmont
Avenue to the north, Clovis Avenue on the east, Huntington Avenue to the south and
Peach Avenue to the west. Area 21-A of the DUC consists of approximately 473
properties located within US Census Tract 30.04-Block Group 1, Tract 30.04-Block
Group 2, and Tract 30.03-Block Group 1. The US Census ACS five-year estimate reports
indicate that Census Tract 30.04-Block Group 1 had an MHI of $44,191, Tract 30.04-
Block Group 2 had an MHI of $37,361, and Tract 30.03-Block Group 1 had an MHI of
$30,690 between 2006 and 2010.
Area 21-B of the DUC is located within Fresno’s SOI and bounded by the City limits. The
DUC is enclosed by Tulare Avenue on the north, Peach Avenue to the east, Huntington
Avenue to the south, and Willow Avenue to the west. Area 21-B of the DUC consists of
approximately 150 properties located within US Census Tract 29.03-Block Group2. The
US Census ACS five-year estimate reports indicate that Census Tract 29.03-Block Group
2 had an MHI of $31,417 between 2006 and 2010.
30 Friends of Calwa, Laura Katie Moreno, Re: Comments to City of Fresno General Plan Draft 2035, August 18, 2014
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Both locations of concern meet two key DUC indicators identified by Commission Policy
106—MHI threshold and at least 15 dwelling units. This area is also known as Granz
(historical); the location was also designated as a DUC by PolicyLink, an information
source that LAFCo staff consulted with during the DUC identification process.
22. Area 22 covers a large geographic area located within Fresno’s SOI and enclosed by the
Fresno City limits. The DUC is bounded by Olive Avenue to the north, Minnewawa
Avenue to the east, Belmont Avenue to the south, and Peach Avenue to the west. The
area also includes areas south of Belmont Avenue, west of Bush Avenue, north of
McKenzie Avenue, and east of Winery Avenue. A minor portion of the DUC is located
north of SR 180, west of Helm Avenue, south of Tyler Avenue, and east of Willow
Avenue. The entire identified DUC area consists of approximately 639 properties
located within four US Census Tracts. Portions of the DUC are located within US Census
Tract 29.04-Block Group 1, Tract 29.04-Block 2, Tract 29.05-Block Group 2, Tract 30.01-
Block Group 2, and Tract 30.04-Block Group 2. The US Census ACS five-year estimate
reports indicate that Census Tract 29.04-Block Group 1 had an MHI of $35,254; Tract
29.04-Block 2 had an MHI of $40,481; Tract 29.05-Block Group 2 had an MHI of
$17,581; Tract 30.01-Block Group 2 had an MHI of $31,515; and Tract 30.04-Block
Group 2 had an MHI of $37,361 between 2006 and 2010. This area of concern meets
two DUC indicators identified by Commission Policy 106—MHI threshold and at least
15 dwelling units.
23. Area 23 covers a large geographic area located within Fresno’s SOI and enclosed by
Fresno city limits. The DUC is bounded by Shields Avenue to the north, Winery Avenue
to the east, Clinton Avenue to the south, and extends across SR 168 over to Cedar
Avenue in the west. Area 23 also includes an area south of Cambridge Avenue, west of
Maple Avenue, north of University Avenue, and east of SR 168. The DUC area consists of
approximately 965 unincorporated properties that completely encompassed by the City
of Fresno. Portions of the DUC are located within US Census Tract 32.01-Block Group 1,
Tract 32.01-Block 2, Tract 32.02-Block Group 2, and Tract 52.02-Block Group 1. The US
Census ACS five-year estimate reports indicate that Census Tract 32.01-Block Group 1
had an MHI of $46,392; Tract 32.01-Block 2 had an MHI of $29,174; Tract 32.02-Block
Group 2 had an MHI of $39,139; and Tract 52.02-Block Group 1 had an MHI of $26,125
between 2006 and 2010. This area of concern meets two DUC indicators identified by
Commission Policy 106—MHI threshold and at least 15 dwelling units.
24. Area 24 covers a large geographic area located within Fresno’s SOI and enclosed by the
Fresno city limits. The DUC area is bounded by Princeton Avenue to the north, Cedar
Avenue to the east, McKinley Avenue to the south, and First Avenue to the west. The
DUC area consists of approximately 1,200 unincorporated properties that are
substantially surrounded by City of Fresno. Portions of the DUC are located within US
Census Tract 33.01-Block Group 1, Tract 33.02–Block Groups 1, 2, 3 and 4. The US
Census ACS five-year estimate reports indicate that Census Tract 33.01-Block Group 1
had an MHI of $33,134; Tract 33.02-Block 1 had an MHI of $24,313; Tract 33.02-Block
Group 2 had an MHI of $29,052; Tract 33.02-Block Group 3 had an MHI of $40,288; and
Tract 33.02-Block Group 4 had an MHI of $38,482 between 2006 and 2010. This area of
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concern meets two DUC indicators identified by Commission Policy 106—MHI
threshold and at least 15 dwelling units.
25. Area 25 is located at the southwest corner of Ashlan Avenue and Maroa Avenue within
the Fresno SOI immediately outside the Fresno City limits. The DUC area consists of
approximately 60 residential properties located within US Census Tract 49.01-Block
Group 1. The US Census ACS five-year estimate reports indicate that Census Tract 15.00,
Block Group 2 had an MHI of $29,375 between 2006 and 2010. This area of concern
meets two DUC indicators identified by Commission Policy 106—MHI threshold and at
least 15 dwelling units.
26. Area 26 is located within the City of Fresno’s SOI and outside the Fresno city limits near
the southwest corner of Barstow Avenue and Fruit Avenue. The area is enclosed by
Barstow to the north, Fruit Avenue to the east, Twain Avenue to the south, and West
Avenue to the west. The DUC area consists of approximately 275 residential properties
located within US Census Tract 43.03-Block Group 4. The US Census ACS five-year
estimate reports indicate that Census Tract 43.03-Block Group 2 had an MHI of $37,344
between 2006 and 2010. This area of concern meets two DUC indicators identified by
Commission Policy 106—MHI threshold and at least 15 dwelling units.
27. Area 27 is located within the Fresno SOI and completely enclosed by Fresno city limits.
The area of concern is located at the southeast corner of Alluvial Avenue and Chestnut
Avenue. The area is bounded by Alluvial Avenue to the north, Paula Avenue to the east,
Birch Avenue to the south, and Chestnut Avenue to the west. The identified area of
concern consists of 23 residential properties located within US Census Tract 55.09-
Block Group 2. Although the US Census ACS five-year estimate reports indicate that
Census Tract 55.09-Block Group 2 had an MHI of $39,327 between 2006 and 2010, this
location consists of parcels which are larger than one unit per acre; Commission Policy
states a DUC shall have at least 15 dwelling units at a density not less than one unit per
acre. Properties located in the area of concern generally exceed two acres per unit. This
area of concern meets one DUC indicator identified by Commission Policy 106—MHI
threshold. However, Area 27 does not appear to meet the Commission’s policy of at
least 15 dwelling units at a density not less than one unit per acre.
A review of the City’s General Plan indicates the City plans to comply with SB 244 in
developing a City strategy to identify all DUCs within the City’s SOI. Section 6.6
Disadvantaged Unincorporated Communities in Chapter 6 Public Utilities and Services of
the General Plan states that the City of Fresno will perform the required infrastructure
analysis to coincide with its next Housing Element Update in Compliance with State law. In
the interim the City addresses DUCs in the commentary section of Land Use Policy, LU-1-e
Annexation Requirements. As indicated in the commentary of Policy LU-1-e, the City will
partner with the community, if there is wide support for annexation, to coordinate terms to
initiate and support the annexation process. Fresno LAFCo encourages the City of Fresno to
reference the DUC analysis provided in this section in preparation of its infrastructure
analysis. The information in this section provides the City direction to meet SB 244
pursuant to GC §65302.10(a), which requires that each city review and update the land use
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element of its general plan, baased on avaiilable data, including, bbut not limmited to, the data
and anallysis developed pursuaant to GC §56430.
RECENNT GROWWTH
Populatiion
The City has historically bbeen one off the fastest growing cities in the United Sttates.
Accordinng to the Unnited States Census Burreau, the Ciity’s populattion increassed from 100,818
persons in 1900 to 60,685 in 1940, and 494,665 in 2010. Oveer the periood from 20000 to
2010, thhe City expperienced 116 percent overall groowth or 1..5 percent average annnual
growth.
FFigure 7-4: Historical PPopulation GGrowth, 19000 - 2010
600,000
500,000
400,000
300,000
200,000
100,000
0
Permits
The City has geenerally expperienced rrapid growtth, particullarly over tthe period from
1990 to 2010 whenn the City’s populationn approximaately doubleed. Over thhe last 14 yyears,
from 20000 to 20144, the City has issuedd permits foor 26,758 rresidential units, of wwhich
20,090 ((75 percent)) were for single familyy residencess. During thhat time perriod, the nummber
of permiits issued peaked in 20005 at 3,394 units. Simmilar to moost other arreas in the SState,
the City experienceed a significcant dip in rresidential development beginninng in 2008. The
number of permits iissued bottoomed out inn 2011 and rremained reelatively loww through 22012.
In 2013,, the number of permits issued sslightly incrreased commpared to reecent yearss, but
then thee number oof permits iissued hit aa low in 20014 for the 14-year peeriod due tto its
proximitty to a new State Buildiing Code cyccle (see tablle below)
• 2009: 1286-Single Fammily, 1-Dupplex (2-unitts), 3-Tripleex (9-units)), 3-Fourpleex
(112-units), 220-Apts (190-units)
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• 2010: 974-Single Family, 21-Duplex (42-units), 17-Triplex (51-units), 13-
Fourplex (52-units), 21-Apts (188-units)
• 2011: 435-Single Family, 3-Duplex (6-units), 42-Apts (317-units)
• 2012: 754-Single Family, 3-Duplex (9-units), 6-Triplex (18-units), 23-Apts (266-
units)
• 2013: 1088-Single Family, 1-Duplex (2-units), 8-Fourplex (32-units), 45-Apts
(376-units)
• 2014: 529-Single Family, 1-Duplex (2-units), 1-Triplex (3-units), 3-Fourplex
(12-units), 56-Apts (406-units)
• YTD2015: 616-Single Family, 6-Duplex (12-units), 6-Apts (86-units)
Calendar years 2009 and 2013 reflect spikes in permit activity before the end of the year
due to changes in State Building Codes effective January 1 of the following year. Any permit
application processed prior to December 31 would not be subject to the new code
requirements.
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FFigure 7-5: Issued Residential Permmits, 2000-22014 (unitss)
4,000
3,500
3,000
2,500
2,000
1,500
1,000
500
0
Single FFamily Muulti-family
GRROWTH PROJECCTIONS
The CCity’s Generral Plan projjects that thhe area withhin the City’’s SOI will aaccommodaate an
additionnal populatioon of approoximately 2226,000 neww residents bby 2035, ressulting in a total
population of 771,0000, which equates to an averagee annual grrowth rate of 1.24 perrcent.
Meanwhhile, at builldout of thhe General Plan an addditional 425,000 neww residentss are
anticipatted within tthe SOI, whiich would tootal 970,0000 residents by an unspeecified datee.
Figure 7-66: General PPlan Projectted Populatiion
Generaal Plan Horiizon General Plan Builddout
(2035) (unspeecified datee)
Additionnal Population
2226,000 4425,000
(from cuurrent pop.)
Total Population 7771,000 9970,000
The City anticippates that ssurroundingg areas will continue experiencinng high rattes of
population growth over the pplanning hoorizon of tthe Generall Plan, although growwth is
expectedd to be apprroximately hhalf the ratee as that of tthe past 30 yyears.
DEVEELOPMENT
As off Spring 20114, the City wwas activelyy processing 46 applicaations for nnew subdivissions
and struuctures in vaarying stages of the appplication pprocess,31 off these applications, sevveral
are largge-scale ressidential annd commerrcial develoopment prrojects, whiich includee the
following:
31 Active appplications do not include projeects for which ccontact with appplicant was greeater than five yyears ago (20099).
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Westlake: Granville at Westlake, Inc. (the project applicant) is proposing to develop a
master-planned 460-acre project with residential and commercial uses developed around a
man-made private lake. The project will consist of approximately 2,600 residential units
and up to 295,000 square feet of community and neighborhood commercial buildings. At
full buildout, the project would accommodate approximately 7,956 residents (based on a
3.06 person per household ratio). The proposed Westlake project is generally located west
of SR 99 bounded by West Gettysburg Avenue, West Shields Avenue, North Garfield
Avenue, and North Grantland Avenue.
Fresno LAFCo approved the Westlake annexation in July, 2014. Shortly thereafter,
Granville announced that due to market conditions the project area would not be
constructed as planned but planted with trees until the market recovered, perhaps for
several years. The property, which is currently in agricultural production, has recently
been annexed to the city and is planned and partially pre-zoned for several urban uses.
Fig Garden Financial Center Phase IV: The developer is proposing the development of
a four story commercial office building, comprising a total net useable area of 104,593
square feet, with an underground parking structure and at grade parking. The project is
located on the south side of West San Jose Avenue, east of the existing Fig Garden Financial
Center and covers approximately four acres.
El Paseo: The project is located in northwest Fresno and is generally bound by West
Herndon Avenue on the north, North Bryan and West Bullard Avenues on the east,
Carnegie Avenue to the south, and SR 99 to the west. The development consists of
approximately 238 acres at the northwest gateway of the City. The integrated, mixed-use
project is planned to include a large retail marketplace, a lifestyle center or town center
project, a mid-rise office park and hotel, and a light industrial business park.
High Speed Rail
In addition to these proposed developments, the City is making plans for the anticipated
California High Speed Rail (HSR) project, which broke ground in early 2015. The rail
system is planned to initially connect Los Angeles and San Francisco in the next 15 years
and then eventually San Diego and Sacramento. The initial construction section is planned
to start in Madera County to just north of Bakersfield, with a station located in Fresno’s
Downtown, aligned with Mariposa Street. The HSR tracks through Fresno’s Metropolitan
Area would run generally parallel to the Union Pacific Railroad tracks and primarily at-
grade, with some shorter sections being depressed (below surface grade) to clear existing
structures, such as the interchange of State Routes 99 and 180. However, any road
proposed to cross the HSR alignment will be grade-separated from the HSR (that is, it will
go over or under).
A heavy maintenance facility may also be placed on territory presently just outside of
the City’s sphere of influence as part of this project. “Fresno Works” is a coalition of
officials from the County of Fresno, City of Fresno and the Council of Fresno County
Governments, working together to locate the proposed heavy maintenance facility in
Fresno County. The group reports that based on similar heavy maintenance facilities
around the world, the project cost could be estimated at $800 million. According to the City
of Fresno Economic Impact Study, over a five-year period, a heavy maintenance facility of
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that scalle will creatte and sustaain almost 55,000 jobs inn a variety of industriees includingg, but
not limitted to consttruction, maanufacturingg, and transsportation. BBased on ann estimated total
employmment of 2,3000 new worrkers for thhe Fresno County heavvy maintenaance facilityy, and
based onn a conservvative averaage salary oof $47,000 pper year, Frresno Workks approximmates
that direect payroll rrevenues from the faciility would aamount to over $110 mmillion annnually
in Fresno County.
The pproposed hiigh speed raail system hhas been conntentious inn nature, and as such timing
and ultimmate complletion of thee project haas been callled into queestion, due to considerrable
vocal oppposition annd concernss of lack off funding. Proponents of the rail project touut the
economiic benefits tthat will ressult from addditional jobbs during coonstruction and operattions,
improveement to air quality, andd improvedd accessibilitty to the Sann Joaquin VValley regionn.
The CCity sees thhe location oof the Downntown HSR station as aa potential tto redevelopp the
area aroound the sttation with a walkablee district thhat includess offices, reetail, and mmulti-
family housing thattakes advaantage of thee proximityy of the HSRR station andd captures vvalue
from dissembarking passengerss. As part of implemenntation of thhe General PPlan, the Cityy has
already initiated a station areaa master pllan to capitaalize on thee high speeed rail systeem to
complimment and enncourage reevitalizationn in the Dowwntown Plaanning Areaa.32 Additionnally,
the City has expressed interestt in providing utilities to the propposed site. The City shhould
considerr expandingg its SOI too include thhe propertty proposedd as the sitte of the hheavy
maintenance facilityy, located geenerally souuth of the SOOI boundaryy between SSRs 41 and 99 in
the evennt that Fresnno County iss selected.
GGROWTHH STRATTEGIES
Generral Plan Updatee
The adopted Ciity of Fresnno General Plan has twwo planninng horizonss—2035 annd an
unspeciffied time whhen buildouut of the Cityy’s sphere oof influence occurs. A pprimary foccus of
the updaated plan is to encouraage new ressidential andd commercial development withinn the
City’s exxisting urbaan footprintt, while balancing devvelopment in growth aareas withinn the
current SSOI.
Due to plans forr a greater emphasis oon investmeent in estabblished neigghborhoodss, the
General PPlan allowss an overall increase in residentiall density annd developmment intensiity as
compareed to the previous 20255 General Pllan. In manny respects, the City’s GGeneral Plann and
its goal tto accommoodate futuree growth within its’ exxisting SOI, rreflects the fiscal as weell as
environmmental issues related tto air and wwater qualitty. Specificaally, the Cityy’s General Plan
calls forr a significaant reductioon in vehicle miles traavelled andd have exteensively alloowed
others cities and thhe region too comply wwith requireements conttained in ABB32 and SBB375.
For exammple, Commmercial andd office zoned lands suitable foor residentiial uses wiill be
rezoned to a mixedd-use districct that will allow for both residenntial and commercial/ooffice
uses, inccreasing thhe amount of available propertyy for resideential use aand intensifying
residenttial density.. Housing density is presently 22.38 housinng units peer acre, andd the
32City of Freesno, General Pllan Update, Urbban Form Objective UF-9.
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General Plan plans for 3.1 housing units per acre. Figures 7-7 and 7-8 demonstrate the
difference in the general urban form strategy between the two plans.
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FFigure 7-7: General Plaan 2025 Visiion
FFigure 7-8: General Plaan (2035) Viision
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Figure IM-1:
Priority Areas for
Development Incentives
Downtown Planning Area
Phase 1 Bus Rapid Transit Corridors (BRT)
Blackstone BRT Corridor
Ventura Kings Canyon BRT Corridor 41
Phase 2 Bus Rapid Transit Corridors (BRT)
Shaw BRT Corridor
California BRT Corridor
South Industrial Priority Area
South Industrial Priority Area
99
HERNDON AVE HERNDON AVE Infill Opportunity Zones (IOZ)
IOZ
Planning Area
Sphere of Influence
SHAW AVE SHAW AVE
City Limits 168
Downtown 180 180
41
99
0 1/2 1 2 4
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W OLLIW
FRESNO LAFCO
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Urban Form
Key themes of the General Plan include the strengthening of existing centers of activity
and commercial corridors in the city, as well as expansion of the city’s industrial capacity,
retail base, and new residential neighborhoods. Elements of the General Plan vision
include the following:
1. Balance development investment in established neighborhood and new growth
areas.
2. Phasing of new growth through the use of two priority levels of growth areas to
first direct new growth to the desired locations.
3. Development of a successful and competitive Downtown.
4. Directed development along the bus rapid transit corridors.
5. Incentives to direct growth to the Infill Opportunity Zone, which primarily
consists of the older neighborhoods.
6. Strategic opportunities to promote growth in employment centers.
7. Improvements to the parks and open space lands to ensure an equal
distribution of park facilities around the City and adequate ratio of park facilities to
the population served.
The City seeks to prevent an overextension of its developable area and manage land use
impacts on municipal revenues more effectively. The historic pattern of relatively low-
density residential developments on the urban fringe that require annexation has proven
to be expensive for the City to serve with both physical infrastructure (roads, water, and
sewer) and public services (fire and police). In addition, because of tax-sharing
arrangements with the County of Fresno, these annexed areas contribute significantly less
revenue to the City’s general fund than land developed within the city limits. Meanwhile,
Fresno has vacant and undervalued parcels located in its urban core, particularly along key
transit corridors. In established neighborhoods, infrastructure and services are already
provided, and tax benefits are much greater for the City than those generated by newly
annexed land. Ultimately, the amount of land available to the City for future growth is finite,
as further expansion of the City’s SOI is blocked in certain directions by the Madera/Fresno
county line and the City of Clovis, is contingent on County of Fresno plans, and may
consume valuable farmland. Infill development is also important to other aims of the
General Plan, including ensuring that the cost of doing business goes down, revenues are
maximized, and scarce financial resources are used efficiently.
The City’s Urban Use and Land Use Element of the General Plan outlines 25 urban form
and land use objectives, which are implemented by several specific supporting policies.
These draft policies are designed to direct growth, to the extent possible, towards infill and
revitalization.
UF–1: Emphasize the opportunity for a diversity of districts, neighborhoods, and
housing types.
UF-2: Enhance the unique sense of character and identity of the different subareas of
the Downtown neighborhoods.
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UF-3: Revitalize the Downtown to be the economic and cultural heart of Fresno and the
region.
UF-4: Support and encourage arts and culture in the Downtown neighborhoods.
UF-5: Promote a greater concentration of buildings and people in the Downtown.
UF-6: Support new development in the Downtown through investment in public
infrastructure.
UF-7: Promote a diverse mix of uses in the Downtown in order to create a community
with a 24 hour entertainment district.
UF-8: Develop each of Downtown’s neighborhoods and districts, according to its unique
character.
UF-9: Capitalize on the High Speed Train system to help revitalize the Downtown
neighborhoods.
UF-10: Calibrate parking according to the Downtown’s parking needs and make it
efficient and easy to find.
UF-11: Revitalize the Fulton Corridor consistent with the reconstruction project.
UF-12: Locate roughly one-half of future residential development in infill areas—
defined as being within the City on December 31, 2012— including the Downtown core
area and surrounding neighborhoods, mixed-use centers and transit-oriented development
along major BRT corridors, and other non-corridor infill areas, and vacant land.
UF-13: Locate roughly one-half of future residential development in the Growth
Areas—defined as unincorporated land as of December 31, 2012 SOI—which are to be
developed with Complete Neighborhoods that include housing, services, and recreation;
mixed-use centers; or along future BRT corridors.
UF-14: Create an urban form that facilitates multi-modal connectivity.
LU-1: Establish a comprehensive citywide land use planning strategy to meet economic
development objectives, achieve efficient and equitable use of resources and infrastructure,
and create an attractive living environment.
LU-2: Plan for infill development that includes a range of housing types, building forms,
and land uses to meet the needs of both current and future residents.
LU-3: Support the successful fulfillment of plans when adopted for the Downtown
Planning Area.
LU-4: Enhance existing residential neighborhoods through regulations, code
enforcement, and compatible infill development.
LU-5: Plan for a diverse housing stock that will support balanced urban growth, and
make efficient use of resources and public facilities.
LU-6: Retain and enhance existing commercial areas to strengthen Fresno’s economic
base and site new office, retail, and lodging use districts to serve neighborhoods and
regional visitors.
LU-7: Plan and support industrial development to promote job growth.
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LU-8: Provide for the development of civic and institutional land uses to meet the
educational, medical, social, economic, cultural, and religious needs of the community.
LU-9: Plan land uses, design, and development intensities to supplement and support,
and not compete with, the Downtown.
LU-10: Promote regional cooperation and coordination on land use and planning issues
among local jurisdictions.
LU-11: Encourage coordination with adjacent jurisdictions in providing public services,
infrastructure and cooperative economic development.
Agricultural Policies
Direct and indirect employment in production agriculture and finished food products
remains the economic base of the San Joaquin Valley—the most productive food and
beverage producing region in the country and a critical area for the nation and world’s food
supply. Fresno County is at the heart of the Valley and still sees a significant number of its
jobs in the agricultural sector.
The conversion of farmland to urban uses is not the only threat to agriculture. When
“leapfrog” development (development that is not contiguous to the existing urbanized
area) occurs in the midst of agriculture uses, optimal crop production is precluded due to
urban/agriculture conflicts.
Policies in the General Plan were designed to preserve farmland by incentivizing new
development within and adjacent to already-urbanized land, only extending public utilities
to new development that adheres to the Plan, and not expanding the City’s SOI. Additional
objectives and policies in this element address the broader planning issues of farmland
preservation.
General Plan Objective RC-9 is to preserve agricultural lands outside of the area planned
for urbanization under the General Plan. Implementing policies of this objective include the
following:
RC-9-a Regional Cooperation. Work to establish a cooperative research and planning
program with the Counties of Fresno and Madera, City of Clovis, and other public agencies
to conserve agricultural land resources.
RC-9-b Unincorporated Land in the Planning Area. Express opposition to residential
and commercial development proposals in unincorporated areas within or adjacent to the
Planning Area when these proposals would do any of the following:
• Make it difficult or infeasible to implement the General Plan;
• Contribute to the premature conversion of agricultural, open space, or grazing
lands; or
• Constitute a detriment to the management of resources and/or facilities
important to the region (such as air quality, water quantity and quality, traffic
circulation, and riparian habitat).
RC-9-c Farmland Preservation Program. In coordination with regional partners or
independently, establish a Farmland Preservation Program. When Prime Farmland,
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Unique Farmland, or Farmland of State Importance is converted to urban uses, this
program would require that the developer of such a project permanently protect an equal
amount of similar farmland elsewhere through easement.
Annexation Policies
Fresno LAFCo adopted a policy encouraging annexation of unincorporated islands
within city limits and requiring cities in Fresno County to develop plans to annex these
areas. In contrast to the City’s Urban Unification Team that existed in the 1980s and 1990s
to process annexation applications that reduced the City’s many unincorporated islands,
the City of Fresno does not have a program in place to actively annex these islands.
The City has determined that it is fiscally unsustainable to annex land without first
conducting appropriate fiscal analysis. All annexations will be initiated by the City and will
require supporting financial mechanisms to pay for ongoing maintenance of new
infrastructure.
The City intends to adopt a method to ensure strategic sequencing of development, in
order to promote infill development within city limits. City annexations will comply with
the City-County Memorandum of Understanding. The City plans to use strategic phasing to
achieve the overall goals of the plan, as opposed to annual limits of some sort that place
unrealistic controls on the local market.
At present, the City’s policies regarding timing and standards for annexation are limited
to the following:
LU-1-e Annexation Requirements. Adopt implementing policies and requirements that
achieve annexations to the City that conform to the General Plan Land Use Designations and
open space and park system, and are revenue neutral and cover all costs for public
infrastructure, public facilities, and public services on an ongoing basis consistent with the
requirements of ED-5-b.
Regional Planning
Fresno is part of an eight-county region, each with its own Metropolitan Planning
Organization. Collectively, they have approved the San Joaquin Valley Blueprint along with
the smart growth principles listed below, which have been integrated into the General Plan.
1. Create a range of housing opportunities and choices;
2. Create walkable neighborhoods;
3. Encourage community and stakeholder collaboration;
4. Foster distinctive, attractive communities with a strong sense of place;
5. Make development decisions predictable, fair, and cost-effective;
6. Mix land uses;
7. Preserve open space, farmland, natural beauty, and critical environmental areas;
8. Provide a variety of transportation choices;
9. Strengthen and direct development towards existing communities;
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10. Take advantage of compact building design;
11. Enhance the economic vitality of the region; and
12. Support actions that encourage environmental resource management.
The City of Fresno has partnered with 13 of the other 15 federally-defined Urbanized
Areas in the San Joaquin Valley as part of the Smart Valley Places network, to plan and
implement smart growth, livability, and sustainability through revised land use and
transportation systems in the respective cities within all the Urbanized Areas in the eight-
county Valley region. The City of Fresno also seeks to develop a regional cooperative
planning and development strategy with all the city, county, and special district
jurisdictions in Fresno, Madera, Tulare, and Kings counties in order to better achieve
increased air quality, lower greenhouse gas emissions, farmland preservation, water and
energy conservation, increased regional transportation infrastructure and economic
development, and sustainable fiscal resource and mutual quality-of-life goals in the region.
Neighboring Agencies
The City of Fresno is immediately adjacent to the City of Clovis to the east. Given the
proximity of the two cities, the two agencies must work cooperatively more effectively plan
for growth and mutual service needs. The City has adopted several policies in its General
Plan to ensure coordinated development of certain infrastructure common between the
City of Fresno and the City of Clovis, such as the path and trail system, transportation
needs, and wastewater collection infrastructure, as well as regional planning for issues of
mutual interest, such as resource conservation.
The cities of Fresno and Sanger (southeast of Fresno), at their closest points are
approximately four miles apart and their respective SOIs are approximately 2.25 miles
apart. The cities of Fresno and Fowler (south of Fresno), at their closest points are
approximately 3.5 miles apart and their respective SOIs are approximately 0.85 miles apart
along the SR 99 corridor. The 2007 Municipal Service Review recommended that Fresno,
Fowler and Sanger establish greenbelt buffers between Fresno and Sanger and Fresno and
Fowler to maintain each of the cities’ respective identities and to avoid the appearance of
urban sprawl. The suggested greenbelt areas have not been established to date.
While the City has made efforts to meet with the City of Clovis regarding planning in
areas of mutual interest, and has made plans to continue this practice, there is still
opportunity for enhanced regional planning on the part of the City with the City of Clovis,
Fresno County, Madera County, and other neighboring cities, as well as greater
collaboration with LAFCo. The City has adopted the following policies in its General Plan to
promote regional planning efforts.
LU-10 Promote regional cooperation and coordination on land use and planning
issues among local jurisdictions.
LU-10-a Regional Land Use and Transportation Planning Program. Continue
participation efforts in a coordinated Regional Land Use and Transportation
Planning Program with the City of Clovis, Fresno and Madera counties, and other
cities in the region.
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LU-11 Encourage coordination with adjacent jurisdictions in providing public
services, infrastructure and cooperative economic development.
LU-11-a Regional Programs. Coordinate with the County of Fresno, County of
Madera, the City of Clovis and other cities or special districts to:
• Promote resource management programs to avoid overlap and duplication of
effort;
• Promote the development of a regional justice system program to meet
future needs of the justice system, both adult and juvenile, including the
judicial system and law enforcement;
• Promote the development of a regional public health program to meet future
needs including community, environmental and mental health services; and
• Promote the development of a regional program to meet future library,
recreational and social service needs of the region.
Southeast Development Area
The original Southeast Growth Area Specific Plan, or SEGA, contains approximately
9,000 acres and was formally designated as a Growth Area in the 2025 Fresno General Plan.
While originally called SEGA, this area is now referred to by the City as the Southeast
Development Area (SEDA).
In 2006, the Fresno Local Agency Formation Commission (LAFCo) amended the Fresno
SOI to include the SEGA territory, with a number of conditions to be completed before any
annexations of land to the City could be approved, consisting of the following:
Prepare and adopt a Community or Specific Plan for the Southeast Growth Area,
including the preparation, public review, and certification of environmental
documents and findings pursuant to CEQA. This plan shall include, but not be
limited to, policies to address the requirements of §56426.5 of the California
Government Code for lands subject to Williamson Act contracts.
Prepare and adopt a Master Service Delivery Plan for the Southeast Growth Area.
Prepare, adopt and begin to implement a program for annexing the designated open
space areas in the approach corridor of the Fresno Air Terminal (areas designated
with an "R" on the 2025 General Plan map), and for rural residential neighborhoods
within the City's existing Sphere of Influence in the vicinity of the Southeast Growth
Area. This program shall provide for logical and reasonable development,
discourage urban sprawl, preserve open-space and prime agricultural lands,
efficiently provide for government services, and encourage orderly development.
In addition to the LAFCo requirements outlined in the resolution approving the SOI
amendment, the City must also meet conditions identified in a Memorandum of
Understanding (MOU) with the County prior to developing the area. The City has met all
the conditions identified in Article VI of the MOU with the exception of the preparation and
approval of Southeast Industrial Growth Area Business Park Specific Plan and attainment
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of 60 percent residential development buildout in Roosevelt, McLane, Central, Edison,
Fresno High, and West community plan areas.33 The MOU expires on December 31, 2017.
The City started the process of preparing a specific plan for SEGA, but due to delays the
planning for SEGA was rolled into the City’s General Plan, and specific plan-level
environmental analysis was not performed in favor of general plan-level EIR. The planning
concepts for SEGA were used to guide the broad policy planning for SEDA.
Specific plan-level analysis of urban land uses, circulation, intensities, and urban design
for SEDA will be necessary to achieve SEDA’s policy objectives to preserve land and protect
the surrounding agriculture and rural areas. The development area also has an eastern
border designated as a permanent buffer, which was envisioned to separate and preserve
long-term agriculture to the east.
In SEDA, each of the three subareas was proposed to be developed with a master plan,
and potentially, property owner agreements to achieve the scale and intensity required to
support independent district-type financing structures for necessary public infrastructure,
and ongoing maintenance and public service costs. The General Plan Development Areas
generally follow SEGA subarea descriptions. These areas will require additional planning in
conformance with the LAFCo annexation requirements and the City-County MOU for
development of this area.
According to the City’s General Plan, land within the SEDA boundary will require master
public facility plans for areas that are designed for annexation and development approvals
of a sufficient scale and intensity to make these areas capable of providing complete and
independent financing districts for all public facilities, including on-going operations and
maintenance, and needed public services.
Before The Fresno Metropolitan Flood Control District (FMFCD) is responsible for flood
control and storm water planning and management. The District encompasses almost the
entirety of the Fresno-Clovis Metropolitan Area, with the exception of 6.5 square miles of
SEDA, which has yet to be annexed to the District. As land in SEDA is annexed, FMFCD will
develop and implement its storm water master plan for SEDA.
Portions of SEDA are anticipated by the General Plan to develop by 2035, with full
General Plan buildout not occurring until 2050 or beyond. The General Plan policies
specific to SEDA are broad in nature and appear to defer policy development to such time
as a specific plan for SEDA is developed. Policies that are applicable to SEDA include the
following:
UF-13: Locate roughly one-half of future residential development in the Growth
Areas—defined as unincorporated land as of December 31, 2012 SOI—which are to
be developed with Complete Neighborhoods that include housing services, and
recreation; mixed use centers; or along future BRT corridors.
UF-13-a: Future Planning to Require Design Principles. Require future planning,
such as specific plans, neighborhood plans or concept plans, for development areas
33LAFCo Resolution USOI-144.
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and BRT corridors designated by the General Plan to include design principles and
standards consistent with the Urban Form, Land Use, and Design Element.
Overall, the policy guidance in the General Plan that describes how SEDA fits into the
City’s growth strategy is broad in nature. Fresno LAFCo’s SEGA SOI conditions complement
this scope and require, among other things, that specific planning, service delivery, and
environmental assessment must be complete before any annexation can occur in this area.
However, recent action by the City, County, and LAFCo in support of a 20-acre
annexation east of Locan Avenue and south of Gould Canal in SEDA may indicate changing
market pressure to begin developing portions of SEDA in the absence of the clear and
consistent development policy that was expected to be created through the specific
planning process for SEDA.
Sphere of Influence
As specified by Policy LU-1-g in the General Plan, the City is not interested in further
expanding its SOI at this time. The General Plan promotes the principle that the SOI not be
expanded for residential or retail commercial uses before the City achieves buildout of the
SOI planning boundary existing on December 31, 2012. The residential densities and non-
residential intensities set by the General Plan are expected to allow all projected population
and job growth through 2035 and beyond to be accommodated within the current SOI. The
one exception to SOI expansion is to allow for the siting of a maintenance yard proximate to
and south of the SOI boundary associated with the California High Speed Rail project.
Separately, the developer of the Copper River Ranch has submitted a pre-application
proposal to LAFCo to amend the City’s SOI by including land owned by the County of
Fresno and annexing said territory to the City of Fresno. The parcels total 37 acres and are
located on the west side of Friant Road at its intersection with Copper Avenue. The
territory is designated open space in the County and will remain open space area in the City
that includes parks and trails.
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88. A IRRP ORRT SEE RVII C ES
SERVICEE OVERVVIEW
The AAirports Department iss charged wwith the fundding, financiing, planninng, developmment,
managemment, prommotion, mainntenance annd operatioon of two aairports ownned by the City.
There arre no unserrved areas wwithin the CCity’s bounnds; servicess are providded to bothh city
residentts and custoomers outside of the inncorporatedd boundariees, includingg State, nattional
and international trravelers andd airlines.
Fresno Yosemmite Inteernationnal Airpport
Fresnno Yosemitee Internatioonal Airportt (FAT) is Saan Joaquin VValley’s primmary airporrt for
commercial passengger and carrgo service. It is classifiied by the FFAA as a Smmall Hub Airrport.
FAT has nearly 80 domestic aand internattional arrivvals and deppartures daaily. In addition,
charter fflights and rrentals are aavailable.
FAT is a joint ccivilian-military public airport in eastern Frresno. The airfield, initially
only useed for militaary aircraft and knownn as Hammeer Field, oppened in 1942. In 19477, the
airport aadded commmercial trafffic promptinng the namee change to Fresno Air Terminal. AAnew
airport tterminal waas built in 19962 and thee airport’s nname was changed to FFresno Yoseemite
International Airpoort in 1995 to bring reecognition tto the areaa’s national parks and help
promotee eventual internationaal flights. Thhe official FFederal Aviaation Adminnistration (FAA)
identifier has remained FAT. FFAT is withiin 60 miles of Yosemitte National Park, as weell as
Kings Caanyon and Sequoia Naational Parkks. While FAAT is the cllosest airfieeld to the pparks
with schheduled commmercial aair service, it was repported thatt about 50 percent of the
airport’ss traffic wass business-related.
The 144th Fighter Wing of the Califoornia Air Naational Guaard is basedd at FAT, wwhich
supportss the west coast air superiority mission. In addition, the Army National GGuard
maintainns an aviatioon classificaation repairr activity deepot (AVCRRAD) at FATT. The missioon of
this unitt is to perform high-levvel maintennance and reepair on Arrmy aircraftt. Its jurisdiction
covers aa 15-state reegion in thee western UUnited States. The U.S. Forest Servvice operatees an
air attack base at thhe airport foor fighting foorest fires wwith aerial taankers.
Additional serviices availabble at the aairport throough tenantt service prroviders incclude
airfreighht, avionics, cargo handdling, charteer flights, fliight instructtion, aircrafft rental, airrcraft
sales, coorporate andd general avviation airccraft managgement and servicing, aand the aviation
bases of City, Countty and State law enforceement agenncies.
FAT Finaancing
Fresnno Yosemite Internatioonal’s primaary fundingg sources foor operatingg are comprised
of rents and both fixxed and variable user feees and conncession feees.
Airlinne revenuee representts around 225 percent of FAT’s ttotal incomme and inclludes
landing fees and terminal rentts. The balance of revvenue comees from nonn-airline souurces
such as parking feees, rental car concession fees, ffood, beverrage and reetail concesssion
agreemeents, and aeeronautical and non-aeronauticall land leasees. The airrline/non-aiirline
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revenue ratio is healthy for a small hub airport as it helps insulate the airport from shifting
service priorities by the airlines and economic downturns.
The airport has been able to steadily grow its reserve fund over the last three years. At
the end of FY 2015 the reserve fund has a balance of $15 million, or about equal to one year
of operating expenses. FAT is continuing to seek ways to grow its reserve fund because
Bond rating agencies have advised that at least 500 days of operating cash on hand is
necessary for favorable ratings results.
Additional examples of revenue sources include concessions such as terminal gift and
news shops, food and beverage sales, advertising sales, and ground and hangar leases like
the U.S. Forest Service and SkyWest’s maintenance base. The California Air National
Guard’s 144th Fighter Wing, while not paying rent, does provide some financial support for
a portion of its wear and tear on the airfield facilities.
FAT has approximately $50.3 million in outstanding debt and completed refinancing its
2000 Bonds in 2013. The refinancing succeeded in reducing annual debt service payments
$200,000 (cash basis) over the remaining 17-year life of the bonds.
Demand
The number of passengers utilizing FAT has increased steadily since 2010. Passengers
using FAT during 2014 totaled a record 1,443,026, a 2.8 percent increase over the previous
calendar year’s total of 1,401,582 passengers. The City believes that growth has been
attributed to the increased level of air service being provided out of FAT. The airlines have
been increasing available seats, including an industry transition from 30-seat turbo prop
aircraft to larger all-jet service on LAX and SFO routes, an upgauging from 50-seat regional
jets to 70- and 90- seat regional jets, and an added daily flight by Alaska Airlines to Seattle.
The increased level of demand is also attributed to an improving economy.
FATs international traffic to/from Mexico has steadily increased since its inception in
2006. In 2014, 147,704 passengers traveled to/from Guadalajara and ridership through
the first half of 2015 is 6% above the same period in 2014.
Overall, the airport’s management anticipates that the passenger count will grow as
airlines continue to evaluate their broader service strategy on a national and international
level.
Currently, there are 174 aircraft based at FAT, with 81 single-engine airplanes, 37
multi-engine airplanes, eight jet airplanes, 22 helicopters, and 26 military aircraft. Aircraft
operations averaged 371 departures a day for a 12-month period ending in February 2012
and consisted of 40 percent of transient general aviation, 27 percent local general aviation,
19 percent air taxi, eight percent commercial aviation, and seven percent military aviation.
Fresno Chandler Executive Airport
Fresno Chandler Executive Airport (FCH) is a general aviation airport located two miles
west of downtown Fresno. FCH was first dedicated for public use as an airfield in
November 1929, and is located on a one hundred-acre site donated to the City of Fresno by
Senator and Mrs. Wilber F. Chandler. Even prior to 1929, the Chandler property was used
informally as an airfield. Following World War I there were no real facilities for aviation in
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the Fresno area so tthe Chandleers allowed pilots to taake off and lland in their fields oncce the
crops weere harvesteed.
In 19947, variouss commerciial airlines aannounced that they wwould no longer allow their
airlinerss to use thhe field, as it was deeemed too ssmall and too inadeqquate for newer
commercial aircraftt. Thereforee, in 1947 tthe Fresno Air Terminnal (now FAAT) becamee the
new munnicipal airport.
A porrtion of Fresno Chandleer Executivee Airport is designatedd as a historic district on the
Fresno LLocal Regisster of Histooric Resourrces.34 The airport cammpus includdes buildings of
three disstinct archittectural stylles—Art Deco, Streamline Modernne and Spanish Revival..
Fresnno Chandler Executivee airport is currently ssupported bby FAT witth an inter--fund
transfer to break evven. In FY 22016, FAT’s contributioon to FCH iss projected to be $1599,600,
providinng FCH withh total approopriations oof $553,800..
FCH operations are fundedd by rental revenues annd fuel flowwage fees. Constitutingg the
primary revenue soource for FFCH, the airrport leasess 12 commeercial hangaars, 86 monnthly
rentals oof individuaal hangars, and groundd leases ann additionall 81 hangarrs. There arre 17
businessses and five not-for-proofit organizations curreently basedd on the airpport. During the
2015 fisccal year, five of these coompanies signed multii-year lease extensions.
Demand
Therre are 197 aircraft locatted on the FFCH field. TThe T-hangaar occupanccy is currenttly at
100 perccent with a waiting listt that averagges about one year. Acccording to the FAA Airrport
Master RRecords andd Reports, aaircraft operations aveeraged 72 departures pper day durring a
12-montth period eending in MMarch 20144, which coonsisted off 76 percennt local genneral
aviation flights and 24 percent transient general aviattion flights.
STTAFFING
The DDirector of AAviation is in charge of the Airporrts Departmment and repports to thee City
Managerr. The Airpports Deparrtment is bbroken dowwn into muultiple divisions, incluuding
Administration, Finance and Innformation TTechnologyy, Propertiess, Public Saffety, Operattions,
and Capiital Developpment.
In late FY 20144/early FY 22015, the DDepartmentt successfullly transitiooned the airrport
public saafety officerrs from a contract model with Frresno Policee Departmeent back to their
own POSST-certifiedd law enforccement ageency. This cchange is coonsistent wwith how airrport
public saafety functions are maanaged at aiirports throoughout thee country. Staffing of FATs
Aircraft Rescue andd Fire Fighting function, commonlyy referred too ARFF, is pprovided under a
contractt with the Frresno Fire DDepartment.
In FYY 2016, the Airport Department hhas a total oof 87.0 authhorized full--time equivvalent
(FTE) poositions, of wwhich 10.2 aare sworn ssafety positiions and 766.8 are civiliaan.
34The City (DARM) maintaains a Local Reegister of Historic Resources, which includess buildings, struuctures, objectss, sites
and districcts that have suufficient integrity and are siggnificant in Freesno’s history. As of January 2014, there arre 271
individual pproperties on thhe Register.
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FACCILITIESS AND CAPACITYY
Fresno Yosemmite Inteernationnal Airpport
The aairport coveers 1,700 accres and hass two runwaays, with a ppassenger ccapacity of aabout
two million travelerrs a year.
The pprincipal ruunway (11L--29R) is 9,5539 feet longg and 150 ffeeet wide. A parallel runnway
(11R-29L) is 8,008 feet long aand 150 feeet wide. Botth runways are asphalt paved andd are
considerred to be inn good condition by thhe FAA. Thhe elevationn of the airpport is 3366 feet
above mmean sea level (MSL).
Aircrraft storage available at the airporrt includes ttie downs aand 33 civiliian hangars. The
oldest faacility on the FAT airrfield is thee P-3 Hanggar, which wwas originaally construucted
during WWorld War II. The hanngar is currrently leaseed to one of the airlines servicingg the
Fresno mmarket, which uses it ass a regional repair facillity for its aiircraft.
For ccommerciall passengerrs driving tto the airpoort, FAT offfers three parking lotts—a
short-terrm lot, a loong-term paarking areaa, and a celll phone lott. Wi-Fi acccess is avaiilable
throughoout airportt. Flight innformation displays arre availablee throughouut the termminal,
concoursse and bagggage claim bbuildings.
FAT houses a 2..4-megawattt solar powwer system, which was completedd in March 22008.
The airpport purchases solar--generated electricity from the system, wwhich is owwned,
operatedd, and mainntained by SSolar Powerr Partners aand its inveestors. The solar electrricity
system wwas financed through aa solar poweer purchasee agreementt, which reqquired no caapital
outlay frrom the airpport. The syystem runs automaticaally, providinng electricitty directly tto the
airport. If the airporrt ever needds less powwer than the system prooduces, the excess is seent to
the local utility commpany, which credits the airportt against fuuture purchhases. The solar
power ssystem noww provides 74 percent of the annnual electriccal power rrequired byy the
facility. It is estimaated that thhe solar power systemm will save FAT aboutt $19 millioon in
electricitty purchasees over the nnext 25 yearrs.
The California AAir Nationaal Guard (CCANG) occuupies a 58-aacre area in the southheast
portion oof the FAT pproperty. A helicopter rrepair and mmaintenancce unit of the Army Nattional
Guard, thhe Californiia Division of Forestryy, and a nummber of corrporate aviaation busineesses
occupy ffacilities norrth of the ruunways.
Overrall, FATs annd FCHs faccilities are ssufficient too meet the demand off Fresno andd the
surroundding seven County Reggion into thhe foreseeabble future. The airport is planninng on
embarkiing on an aiirport mastter plan upddate in FY 22017, to upddate the 20005 master plan.
This effoort will look at how thhe airport can best acccommodatte long termm growth inn the
Central VValley of California couupled with aaviation induustry trendss.
Fresno Chanddler Exeecutive AAirport
FCH covers 2000 acres andd has one asphalt runwway that is 3,626 feett by 75 feett and
considerred to be inn good conddition by thhe FAA. FCHH encompaasses five buuildings, four of
which wwere constrructed in 11936-1937 as part off the Workss Progress Administraation
Project #2236. Thhe fifth buiilding, whicch houses the Fresnoo Airports Company, was
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construccted in 1955. The airpport campuss also incluudes landsccaping, seveeral Beaux Arts-
style lammpposts andd surface paarking. Aircrraft parkingg includes tiee-downs annd hangars.
INFFRASTRUCTUREE NEEDSS
The AAirport Deppartment’s FFY 2016 cappital programm totals $155.6 million.
Fresno Yosemmite Inteernationnal Airpport
As ppart of the FAA’s natiionwide immplementatiion of the congressionally manddated
Runway Safety Areaa Program, FAT was directed to mmodify its prrimary runwway’s (29R//11L)
safety arreas, whichh are clear zzones locatted at the eends of the runway. Inn order to bbring
FAT’s ruunway safeety areas into compliiance, the areas needded to be remodeled and
extendedd. Work on runway saafety area coompliance, repaving, aand extendiing the runwways
was commpleted in FY 2014. TThe cost foor design aand construuction assocciated withh this
project wwas approxximately $339 million. A majorityy of the funnding for tthis projectt was
providedd by federal grants from the FAA and the U.SS. Departmeent of Transportation, with
the remaaining five tto 10 percennt coming frrom a combbination of MMeasure C ((Fresno Couunty’s
half-centt transportaation sales ttax) and airpport revenuues.
Undeer federal laaw, the airpport undertoook a long-tterm progrram of provviding mitigation
of aircraaft noise imppacting privvate residennces (not inncluding apaartment buiildings), schhools,
and certtain businessses within the airport’’s noise conntour. To deetermine the noise conntour,
a study is conducteed, which mmeasures thhe sound leevel aroundd the airporrt and definnes a
“contourr” of decibell levels arouund the airpport that aree directly atttributable tto aircraft nnoise.
If a residdence or a sschool expeeriences deccibel levels of 65 or grreater due tto aircraft nnoise,
they are eligible to receivee sound prroofing meeasures. Thhe Departmment has been
soundprroofing hommes and schools, and inn those casees where sooundproofinng measurees are
not suffiicient to redduce the souund below the 65 deciibel level, purchasing aand demolisshing
the homes, for abouut 25 years. The Departtment approopriated appproximately $4.6 million in
the FY 22014 budget to continuue these effforts. A majority of thee funding foor this projeect is
providedd by the fedderal governnment, withh the remainning 10 perrcent cominng from Meaasure
C revenuue. There wiill be no onggoing expennse to the Deepartment ffrom this prroject.
Anotther identified infrastruucture needd is the “aprron,” which is the concrrete and aspphalt
areas thaat surroundds FAT’s terminal and cconcourse. AAircraft aree parked on the apron wwhen
passengeers enplanee and deplanne. Becausee of the heaavy aircraft weight thatt is displaceed on
the rampp for a period of time, in addition to the highher level of usage the rramp receivves, it
tends to wear down faster thaan runway or taxiway areas. Suchh is the casse with bothh the
west-sidde and east--side of FATT’s terminal facility, wwhich has deeteriorated in the pastt few
years haaving been exposed to both heaviier aircraft and a greatter numberr of aircraft. The
east-sidee apron wwas reconstructed eaarly FY 20013. The west-side ramp willl be
reconstrructed in FYY 2016 at a cost of $$11.0 millioon. A majorrity of the ffunding forr this
project wwas provided by the ffederal goveernment, wwith the remmaining 10 percent coming
from Meeasure C revvenue.
The California AAir National Guard’s ppresence at FAT resultts in the neecessity of ssome
safety aand securityy features specific too military ooperations. One of thhose features is
arrestingg cables streetched acrooss the runwway that “caatches” milittary aircraftt that are haaving
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difficultyy stopping due to mecchanical faillure. The caables are raaised and loowered intoo the
runway so that it does not ddisrupt the departure and arrivall of civiliann aircraft. FFAT’s
primary runway alrready had ann arresting cable installled at one eend of the ruunway. Witth the
runway safety areaa work preeviously meentioned, ann additionaal arresting cable unitt was
installedd at the oother end of the priimary runwway. The Departmennt appropriated
approximmately $2.99 million in the FY 20114 budget to install thee new arresting cable unit,
and thatt work is noww completee.
The Department also budggets funds ((grant fundds and Airpport Departmment fundss) for
various ssmaller reppair and enhhancement pprojects thaat are to be completed during the next
five yearrs.
Fresno Chanddler Exeecutive AAirport
The DDepartmentt designatedd $0.7 million in its FYY 2016 budgget for the rrehabilitation of
the taxi lanes around the Ciity-owned hangars annd other smaller proojects at Frresno
Chandler Executive Airport. Thhese taxi lannes providee safe access between tthe hangarss and
the airfiield, meetinng all FAA design standards. Thhe project, wwhich is feederally funnded,
includes demolitionn, repaving, and repaintting of the taaxi lanes.
Other planned Capital worrk include a federally funded project to repplace the toower
beacon, removal of the shutttered contrrol tower, installationn of various infrastruccture
enhanceements, and rehabilitatiion of facilitties for ADAA purposes.
CHAALLENGEES
Like most depaartments inn the City, the Airportts Departmment experiiences finanncing
challengges. Howeveer, it has suucceeded inn cutting coosts, increasing operatting efficienncies,
and increasing revvenues. WWhile the Departmennt’s primaryy mission is to facillitate
commercial air servvice, the maajority of itss revenue is derived frrom non-airrline servicces to
air passeengers. Thhese revenuues have helped keep tthe costs too airlines operating att FAT
below leevels at otheer airports. Over the laast decade, tthe Departmment has alsso found waays to
cut and ccontrol costts, in particuular with Caapital funding strategiees, Bond reffinancing, ppublic
safety trransition baack to FAT,, and negottiating neww concessionn and leasee agreemennts as
opportunnities arise..
One major finanncial challennge is the laack of a Portt of Entry ddesignation by Customss and
Border PProtection ((CBP), whicch means FAT pays for CBP stafffing costs evven thoughh CBP
still colleects the samme passenger arrival feees as with other interrnational gaateways. FAAT is
one of just two airrports in thhe United SStates with regularly sscheduled internationaal air
service tthat has thiss challenge. Efforts to overcome tthis challengge by receivving designaation
as a Portt of Entry arre ongoing.
FAT is a noise--sensitive airport, and noise abattement proocedures arre in effect.. The
airport pprohibits flight trainingg activities MMonday thrrough Saturrday from 10 p.m. till 77 a.m.
and on SSunday fromm 6 p.m. till 110 a.m.
Finallly, FAT haas submitteed and recceived FAA approval to implement its Wildlife
Managemment Plan. This plan establishess protocols, practices aand proceddures to adddress
wildlife hhazards to aaircraft on aand near FAAT for the ennhancementt of safety.
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SERVICEE ADEQUACY
This section revviews indicators of serrvice adequuacy, includding facilityy condition, FAA
violationns, and aircrraft accidennts that occurred due tto human eerror, airporrt infrastruccture
malfuncttion or airport hazardss.
FAT was last innspected onn June 26, 22015 by thee FAA, and FCH was laast inspecteed by
Caltrans Division off Aeronauticcs on June 330, 2015. OOverall, bothh airports wwere found to be
in safe ooperating coondition. Itt was requeested that FFAT removee two airfielld signs thaat the
FAA preeviously hadd approvedd. The signns have sinnce been reemoved. AAt FCH, Calttrans
recommended that runway ennd lighting bbe reconfiguured. The aairport is wworking withh the
FAA on tthis project..
According to the FAA repoorts, the conndition of tthe runways at both of the airporrts is
good. Maarkings on FFAT and FCHH runways are consideered to be inn good conddition.
Therre have beeen eight acccidents at FFAT since thhe beginninng of its opperation, four of
which wwere classifiied as nonffatal and thhe remaindeer as incideents. One person sustaained
minor innjuries. Fivee of the acccidents werre attributedd to aircrafft malfunctiion, two to pilot
error, annd one to airrport towerr controller’s error.35
Therre have beenn 20 accidennts at FCH ssince the beeginning of its operatioon, two of wwhich
were claassified as faatal, 17 as nnonfatal, annd one as ann incident. TThere weree three fatallities,
four seriious injuries, and six mminor injuriies. Sixteen of the acciddents occurrred due to pilot
error, thhree due to aaircraft malfunction, annd one for aa yet undeteermined reason.36
Out oof the 28 acccidents thaat took place at both aiirports, onee occurred ddue to FAA staff
error annd none duee to airport infrastructture malfunnction or airrport hazards. The inciident
involvingg airport toower controoller error ooccurred in 2009. The nnear collisioon that invoolved
three airrcraft and 52 people (alll uninjuredd) occurred due to the ttower contrroller’s failuure to
ensure the runway wwas clear before allowing one of thhe airplanes to land.
35 National Transportationn Safety Board, AAccident Databaase.
36Ibid.
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9 . FFR ESSN O CCO N VV E N TT I O N &
EN T ERRTA IN M E N T CC E N T ER
SEERVI CC ES
SERVICEE OVERVVIEW
The CCity of Fresno owns annd subsidizees the Fresnno Conventiion & Enterttainment Ceenter
Complexx located in downtown Fresno. Thee complex sspans over ffive city blocks and connsists
of four sseparate faccilities and a parking sstructure. TThe facilitiees are used for a varieety of
events iincluding cooncerts, weeddings, larrge convenntions, Broaadway showws, professional
sports, aand communnity events.
STTAFFING
The CCity managged the Fressno Convention & Enteertainment Center opeerations fromm its
inceptionn in 1966 tthrough 20003. In 20044, the operaations and mmanagemennt of the Frresno
Conventtion & Entertainment CCenter were outsourceed to SMG. The contraact was a thhree-
year agrreement witth an optionn for a two-year extenssion exercissed by the CCity. The Coouncil
approved a new coontract withh a 10-yearr extension for the period from JJanuary 1, 2009
through June 30, 20019. A new management agreemeent betweenn the City annd SMG has been
negotiated, effective January 11, 2014, wiith a five-yeear term. On Februarry 1, 2004 SMG
hired Frresno Convvention Vissitors Bureaau (FCVB)337 as a subbcontractorr to assist SMG
promotee, solicit andd advertise all events aat the Fresnno Convention & Enterttainment Ceenter
Complexx and provide opportunities for local businnesses to bbe associatted with Frresno
Conventtion & Enttertainmentt Center activities. The term of the suubcontract was
coterminnous with SSMG's management conntract with the City. In 2008, withh the approvval of
the City Manager, SSMG relinquuished overrsight of FCCVB. Overssight and mmanagementt was
returnedd to the FCVVB Board oof Directors at that timme. FCVB chhanged its name to Frresno
Clovis Coonvention aand Visitors Bureau (FCCCVB) in 2011.
FCCVVB is fundedd by a new one percennt hotel tax collected bby the local hoteliers aand is
used by the organizzation for itts annual opperational eexpenses. AAnnual fundding amounnts to
approximmately $1 mmillion per yyear.
The Fresno Connvention & Entertainmment Center complex ggeneral mannager reporrts to
both its employer (SMG) and the Fresnoo City Manaager. As off Decemberr 31, 2013, SMG
employss 20 full-timme personnel directlyy involved in the managementt of the Frresno
Conventtion & Entertainment CCenter Commplex and aapproximateely 200 parrt-time worrkers.
The Assiistant City MManager noo longer sitss on the Booard of Direectors of FCCVB. The CCity’s
Economiic Developmment Coorddinator noww representss the City MManager’s ooffice and sttands
in for thee Mayor’s office on the FCCVB Boaard of Directtors.
37 The Convvention Visitorss Bureau is a Callifornia non-proofit with an inddependent Boarrd of Directors aand staff.
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FACCILITIESS AND CAPACITYY
The FFresno Convvention & EEntertainmeent Center hhas three exxhibit halls tthat can be used
separateely or combined into onne large halll. The venuue offers moore than 66,,000 squaree feet
of flexible space annd a full-serrvice kitcheen. The secoond floor feeatures 20 meeting roooms,
including an exhibitor lounge with skylight and an aadditional 116,000 squaare feet of sspace
availablee in the first and second floor lobbies. TThe facility also houses the Cennter's
administtration and operation ddivisions.
The Saroyan Thheatre, a 2,353-seat pperforming arts theatrre, recentlyy underwennt an
extensivve renovatioon, includinng front-of-hhouse enhaancements tto the mainn lobby andd VIP
lounge, aas well as back-of-housse upgradess with five ddressing roooms and staar rooms, chhorus
rooms, pproduction ooffices, and a green rooom with built-in bar and leather fuurniture.
The Selland Areena was recently remoodeled andd outfitted wwith 7,000 new seats.. The
general aadmission ffloor accommmodates moore than 3,0000 fans.
The VValdez Hall is a multi-ppurpose, 32,,000 squaree-foot hall wwith an attacched full-service
kitchen, a built-in performancce stage, annd two greeen rooms. Valdez Hall was the CCity’s
original convention center.
All buildings are Americanns with Disaabilities Actt (ADA) acccessible. Asssistive listeening
devices aare availablle in the Sarroyan Theattre for each show.
The Fresno Connvention & Entertainmment Center parking strructure feattures five levels
and 1,565 parkingg spaces. TThe facility was built in 2004 aand supports the Fedderal
Courthouuse, the Sarroyan Theaater, Sellandd Arena, thee Fresno Coonvention && Entertainmment
Center , and variouss downtownn businessess in the areaa.
The FY 2013 budget forr Fresno Convention & Entertaiinment Cennter operaations
includedd requests ffor capital immprovemennts and reppairs that exxceeded $7 million. Duue to
the overall financiall condition oof the City oof Fresno, thhose requessts have beeen deferred until
a later ddate. The ovverall condition of the facilities iss good, but the older faacilities (Selland
Arena, VValdez Hall and Saroyaan Theater)), due to thheir age, aree becomingg more costtly to
maintainn each year.
INFFRASTRUCTUREE NEEDSS
The Fresno Coonvention && Entertainnment Centter Compleex has unddergone sevveral
expansioons and remmodeling thhroughout tthe years. TTheses cappital projectts have addded a
substanttial debt buurden on thhe City’s Geeneral Fundd. Originallyy the complex consisteed of
three separate builddings that wwere constrructed undeer one rooflline and weere separateed by
90-foot mmall ways. The three bbuildings inncluded the Saroyan Thheatre, the VValdez Halll, and
the Sellaand Arena. SSelland Arenna had an ooriginal seatting capacitty of 6,500, which was then
expandeed to 11,3000 in 1981 in order to accommodaate Fresno State baskeetball and oother
large eveents. Financcing for the expansion wwas fundedd through thhe issuance of debt. In 11999,
the City issued $322.6 million in debt forr the complletion of thhe new 77,0000 squaree foot
Exhibit Hall. In 2004, the City issued approximmately $400 million inn debt forr the
construcction of thee Fresno Coonvention && Entertainnment Centter parking garage dirrectly
behind tthe Saroyan Theater annd other cappital improvvements.
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Capittal improveement planss for the Freesno Convenntion & Enttertainmentt Center in 2014
include tthe wind-doown of projects fundedd with previiously issueed bonds. Prrojects budggeted
for FY 20014 consisted of minorr capital reppairs at the SSelland Arena; in FY 155, approximmately
$1 millioon in energgy efficiencyy upgrades were madee to lights aand controlllers. Addittional
capital immprovemennts are planned in FY 16.
CHAALLENGEES
The DDepartmentt reported tthe following significannt challengess:
TThe manageement fee hhas been reeduced by $$50,000 unnder the terrms of the new
agreement ddated Januarry 1, 2014 aand no longeer includes automatic CCPI adjustmments.
AAnnual increeases in Freesno Convenntion & Entertainmentt Center eveent activity must
be demonstrrated in ordder for the aannual manaagement fee to be adjuusted by anyy CPI
inncrease. IIn recent yyears, evenn with thee lower nuumber of pplanned evvents,
mmanagementt fee increaases were hhigher thann in previouus years wwhen there wwere
mmore event ddays.
AAt present, FFCCVB fundding is assessed directtly from meember hotell/motel owwners,
and reporteddly approximately $1000,000 fromm the City. UUp until about 5 yearss ago,
thhe City provvided approoximately $6600,000 to tthe FCCVB aannually.
TThe Fresno Conventioon & Enterrtainment Center Commplex does not geneerate
suufficient proofit to fully finance operations. Thhe City repoorted howeever, that Frresno
Convention && Entertainnment Centeer facilities generally ddo not geneerate profitss, but
act as econnomic geneerators for local busiiness commmunities. TThe shortfaall is
suubsidized by the City's General Fuund. It is estiimated thatt over the paast 14 yearss, the
tootal cost too the City GGeneral Funnd, includinng debt serrvice, has bbeen over $100
mmillion.38 FFor this reaason, durinng the couuncil budgeet hearings a motion was
approved to hold Fresnoo Conventioon & Entertaainment Center fundinng for FY 2014 in
coontingency except thosse operating expenses and debt sservice paymments necesssary
too continue nnormal operrations.
Overr the coursee of the lasst two yearrs, SMG hass been worrking closelly with thee City
Managerr to developp various prrograms or solutions tthat focusedd on increassing revenuues or
reducingg expenses. One of thhese solutions is a co-ppromotion strategy in which bothh the
promoteer and the FCEC sharee in the rissk and rewward of hossting variouus events. This
strategy has been vvery effectivve in increaasing the ammount of revenue andd the numbber of
events bbeing held at the facilitiies. In addiition, the Citty is providding $100,0000 to the FCCCVB
to promoote events aand expandd marketing efforts. Savvings derivved from varrious changges to
operatioons and eneergy relatedd improvemments have resulted inn a reductiion in the CCity’s
annual ssubsidy as wwell as provvided the rresources needed to fuund a Capitaal Improvemment
Reserve Fund.
38 Councilmmember Lee Braand, Review andd Evaluation of tthe Convention Center Complexx (Supplemental Information PPacket),
July 22, 20113.
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SERVICEE ADEQUACY
Indiccators of seervice adeqquacy discuussed in thiis section iinclude 1) ability to meet
budget aand performmance benchmarks, 22) ability too meet net operating profit andd loss
benchmaark, and 3) presence of a positive nexus betwween eventss and commmunity econnomic
activity.
The ooriginal conntract betweeen the Cityy and SMG included budget net opperating exppense
and revenue benchhmarks, as well as beenchmarks for the nuumber of rooom nightss and
number of conventiions broughht to Fresno. A preliminnary examinnation of budget benchmmark
data commpared to aactual budgget data discclosed that SMG appeaared to nott be meetingg the
benchmaarks established in the contract.39
Undeer Section 110.2 of the nnew contract extensionn with SMGG effective JJanuary 1, 22009,
the City has a right to terminatte the contrract, if SMG is not meetting its net operating pprofit
and loss benchmarkk. SMG has ffailed to meeet the aforeementionedd benchmarrk in the passt six
years acccording to the investigation connducted by the Fresnoo City Counncil Financee and
Audit Coommittee. TThe Committee’s findings were presented to the Cityy Council aas an
agenda iitem on Octtober 23, 22013.40 The City Council decided tto renegotiaate the conntract
with SMG to make ssubstantive changes thhat would prrovide the CCity more control of Frresno
Conventtion & Enteertainment Center opeerations annd a signifiicant reducction in thee net
general ffund subsiddy. The new contract waas approvedd in Januaryy 2014.
While it appears that SMG has not meet its contraactual bencchmarks, the City of Frresno
reportedd that the early mannagement aagreement allowed foor City Maanager-apprroved
adjustmeents to the benchmarkks based onn decisions by the Cityy that negaatively impaacted
Fresno CConvention & Entertainment Centter revenuee generationn and/or caaused increeased
and unbbudgeted exxpenses. Coonsequentlyy, accordingg to the Cityy, the contrract benchmmarks
were meet by SMG.
One iindicator off service adeequacy of thhe Fresno Coonvention && Entertainment Centeer is a
positive nexus betwween plannned events and commmunity economic activiity. The Genneral
Manger of the Fressno Convenntion & Enttertainmentt Center emmailed out a report too the
Fresno ccity council members oon June 3, 20013, in an eeffort to establish a nexxus betweenn the
events hheld at facillities of the Fresno Convention && Entertainmment Centeer and econnomic
activity iin the commmunity. The report coveers actual evvents that wwere booked between 2008
and 20112. The ecoonomic imppact model used by SMG presummed that 755 percent oof all
transient occupancyy taxes (TOTT) generateed citywide wwas a direcct result of eevents bookked at
the Fresno Conventtion & Enterrtainment Center compplex.41 Basedd on SMG’s calculationss, the
report estimates thaat the Fresnno Conventiion & Enterttainment Ceenter’s operrations betwween
2008 annd 2012 hhave proviided the loocal busineess commuunity with approximmately
39 Councilmmember Lee Braand, Review andd Evaluation of tthe Convention Center Complexx (Supplemental Information PPacket),
July 22, 20113. Comparing BBudget and Perrformance Contract Benchmarkks with Actual DData:2004 to 20008.
40Council AAgenda Item, Freesno City Counccil Finance and AAudit Committeee Findings Regaarding the Future Managementt of the
Convention Center, October 23, 2013.
41 Fresno CCity Council Suppplemental Infoormation Packeet, Economic Immpact in Commuunity from Convvention Center EEvents,
July 22, 20113, http://wwww.fresno.gov/NRR/rdonlyres/2333E54CC-DAEFF-4124-B5FF-74406FA8542BA//0/3a1suppl.pddf
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$26,000,000 in economic impact through visitor spending, generated over 100,000 hotel
room nights for the local hotel business community, and generated an estimated $1.2
million in transient occupancy tax revenues.42
42 Fresno City Council Supplemental Information Packet, Economic Impact in Community from Convention Center Events,
July 22, 2013, http://www.fresno.gov/NR/rdonlyres/7F12CEC5-7340-428F-9A7B-69F1E7CB97AF/0/3a2suppl.pdf
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1 0 . FIRRE PRROT EECT IOO N A NN D
EMME RGGENCCY ME D I CC AL SSE RV I C ES
SERVICEE OVERVVIEW
Fresnno Fire Deppartment (FFFD) was eestablished in 1877 annd is one of the oldestt fire
departmments in thhe United States. FFFD providees fire preevention, suuppression and
investigaation servicces, airportt fire and rescue, urbban searchh and rescuue, responsse to
medical emergencies (EMS), aand responnse to hazaardous materials inciddents. The FFD
service aarea consistts of more than 336 squuare miles aand is compprised of the City of Freesno,
and alsoo includes eextra-territoorial servicces via conttracts to prrovide servvices to twoo fire
districts (Fig Gardeen Fire Prottection Disttrict and North Centraal Fire Prottection Disttrict),
Fresno YYosemite Innternationaal Airport, aand surrouunding areaas through mutual aidd and
automattic aid requuests. The region serveed by FFD (including the two coontract distrricts)
consists of 111 squaare miles wwithin the City of Fresnoo, 0.69 squaare miles in Fig Gardenn Fire
Protectioon District, 217 squarre miles in North Cenntral Fire PProtection DDistrict, andd 7.3
square mmiles in the Fresno Couunty contract area.43 The Departmment’s service area inclludes
a populaation of appproximatelly 525,000 residents and encommpasses coollege/univeersity
campusees, an internnational airpport, farm laand, and rurral communnities.
As previously mmentioned, FFD providdes staffingg and operaational servvices to twoo fire
protectioon districts,, each under a 30-year agreementt for servicees. The agreeements incclude
FFD servvices for firee protectionn, emergenccy medical, rescue, hazzardous matterials respoonse,
fire prevvention andd education,, and mainttenance of fire hydrannts where thhey exist wwithin
the conttract-area boundaries. Fig Gardenn Fire Proteection Distrrict (FGFPD) entered innto a
contractt with the Ciity of Fresnoo on Januaryy 1, 2006, aat a cost of $$980,000 annnually.44 FGGFPD
was origginally formmed in 19422 to serve thhe needs off a residenttial developpment knowwn as
the Forkkner Tract. The Districtt has one firre station (FFFD Stationn 20), whichh houses a ssingle
fire engiine. On Jully 1, 2007, FFD also bbegan serviing the Norrth Central Fire Protection
District (NCFPD) unnder contraact at a cost of $5.3 mmillion annuually, which improved daily
staffing llevels within the District and reduuced redunddant servicees.45 NCFPD is located tto the
west of the City off Fresno annd is immeddiately adjaacent to thee city bounndaries. NCCFPD
facilitiess include three stationss located inn Kerman, BBiola, and FFresno. Disstrict equipmment
includes one aeriaal ladder trruck, three fire engines, and twwo water teenders. NCCFPD
currentlyy has two emmployees wwith remainiing staffing provided bby FFD.
43Denise Duuffy & Associatees, Inc., 2012; paage 4.11-2.
44City of FFresno, City ooff Fresno Repoort to Council,, 2005. Retrieeved Februaryy 27, 2014, frrom City of FFresno:
http://wwww.fresno.gov/NNR/rdonlyres/885AC795B-C2177-4192-A741-
E5AEA1F1AA9CE/0/FigGarrdenFireProtecttionDistfireprottservices.pdf
45 Fresno LAFCo, Exeecutive Officerr's Report,20007. Retrievedd February 227, 2014, froom Fresno LLAFCo:
http://wwww.fresnolafco.org/documents//staff-reports/AApproved%20MMSR's/North%220Central%20FFire.pdf
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Figure 10-1: Fig Garden Fire Protection District
Figure 10-2: North Central Fire Protection District
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The merging of operational services has provided an enhanced level of service for the
residents of the City of Fresno, and Fig Garden and North Central Fire Protection Districts.
The combined forces results in 292 authorized personnel.46
The Department’s specialized teams serve a larger community beyond the FFD’s
boundaries and immediate service area. FFD’s hazardous materials response team (HMRT)
partners with the State Office of Emergency Services (OES) to deploy both regionally and
statewide to support any jurisdiction through the State Master Mutual Aid System. The
Department’s Urban Search and Rescue (USAR) Team provides special rescue operations
for the City of Fresno and throughout Region 5 of the California Emergency Management
Agency (CalEMA).47
FFD also provides services outside of its boundaries through several auto-aid and
mutual aid agreements with other surrounding fire districts, including the City of Clovis,
Fresno County FPD and NCFPD. Additionally, FFD responds to wildland fires and gets
reimbursed from the State for strike team assignments and incidents outside its
jurisdiction.
Figure 10-3: Fire Protection Areas In and Around City of Fresno
46 FFD, Fire Department Responses to MSR Review Data Collection Request, February 18, 2014.
47 FFD, Hazardous Materials Team. Retrieved February 27, 2014, from Fresno Fire Department:
http://www.fresno.gov/Government/DepartmentDirectory/Fire/FireSuppression/Hazardous+Materials+Team.htm
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STTAFFING
Fresnno Fire Deppartment’s 224 stations aare dividedd into three battalions——two withinn the
City andd one that covers NCFPPD. The Deppartment iss staffed by 359 authorrized persoonnel,
including 314 sworn safety meembers and45 sworn nnon-safety aand civilian personnel.. The
current ddaily staffinng throughoout the service area is aas follows: CCity of Fresnno-73; Airpports-
2; Fig Gaarden Fire PProtection DDistrict-3; NNorth Centraal Fire Proteection Distrrict-9; for a toral
of 87 firefighters. Specialized tteams withiin FFD incluude Urban SSearch and Rescue (USSAR),
Aircraft Rescue andd Fire Fightting (ARFF)), Hazardouus Materialss Responsee Team (HMMRT),
and a Coommunicatioon Team.
The FFD USAR Team provvides speciaal rescue ooperations ffor the Cityy of Fresnoo and
within RRegion 5 of tthe Californnia Emergenncy Manageement Agency (CalEMAA). Certifiedd as a
Type-1 HHeavy Rescue and Typpe-1 Water//Flood resccue resourcee, the Distrrict’s USAR team
memberrs hold the ffollowing ceertificationss: Rescue Syystems 1, Reescue Systemms 2, Low AAngle
Rescue, Confined Sppace Operaations, Trench Rescue, Swiftwaterr Rescue Unnit-1, Swiftwwater
Rescue AAdvanced, SSwiftwater Rescue Boat Operator, Basic SCUUBA, Publicc Safety SCCUBA,
and Supplied Air DDiving Operaations.48 Seearch and rrescue vehiccles, equipmment, and UUSAR
teams arre housed att Stations 4 and 13.
Nineteen members of FFD hold Fire Control 5 cerrtifications and comprise the Disttrict’s
ARFF teaam, which iis located att the Departtment’s Stattion No. 24. The ARFFF Team provvides
services for airportt emergenccy responsee, hazardous materialss incidents, first respoonder
calls, andd all structuure fires witthin the Fressno’s Yosemmite Internaational Airport boundarries.
A number of traansportationn routes ruun through FFFD’s service area thaat have poteential
for largee chemical releases to occur, inclluding two railroad linnes and fouur freewayss. In
responsee to the presence of tthese transpportation corridors for hazardouus materialss, the
City hass developedd its HMRTT and a coomprehensivve approacch to hazarrdous mateerials
emergenncies. FFD’ss HMRT connsists of appproximatelyy 58 membeers of the DDepartmentt who
are trainned as hazardous mateerials techniicians and/oor specialissts. On any given day tthere
are 14 HHMRT persoonnel on staaff, with a mminimum oof nine of thhose personns trained too the
techniciaan/specialisst level. Thhe HMRT iss also partnnered with the State OES to proovide
mutual aaid on a regiional and sttatewide levvel.49
Statioon 8 staff are memberrs of the Department’s Communiccation Teamm. This speccialty
unit provides suppoort to FFD’ss centralized dispatch, apparatus mobile dataa terminalss, and
other projects that aare essentiaal for intra-and inter-ddepartmentaal communiications.
FACCILITIESS AND CAPACITYY
Fresnno Fire Deppartment operates outt of 24 stations (incluuding a speecialized airrport
station), a fire appparatus shoop, and heaadquarters. Additionaally, FFD haas an extennsive
inventorry of fire andd emergenccy response equipmentt.
48FFD. Urbban Search and Rescue Team. Retrievved Februaryy 27, 2014, from Fresnoo Fire Deparrtment:
http://wwww.fresno.gov/GGovernment/DepartmentDirecttory/Fire/FireSSuppression/USSRTeam.htm
49FFD. Haazardous Materials Teamm. Retrieved February 227, 2014, frrom Fresno Fire Deparrtment:
http://wwww.fresno.gov/GGovernment/DepartmentDirecttory/Fire/FireSSuppression/Haazardous+Mateerials+Team.htmm
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Other fire station sites have been purchased or planned to ensure that the established
level of protection is maintained as growth occurs. Under the requirements of the City’s
Urban Growth Management (UGM) Ordinance, the primary service area of fire stations has
been set at a 2.0-mile running distance for commercial development and 3.0 miles for
residential development. The UGM ordinance established an extended service area for
each fire station that permits commercial development up to a three miles running distance
from a fire station when buildings are equipped with fire sprinklers. In lieu of the 3.0 mile
running distance the Chief is authorized to use a four-minute response time as an
equivalent to the specified response distance. Additionally, up to 5000 residential units
may be developed between a three and five-mile response distance from a fire station
when provided with fire sprinklers and with additional mitigations as may be determined
by the Chief.
The Department has long term contracts for service with the Fig Garden Fire Protection
District and the North Central Fire Protection District and has automatic aid agreements
with the Clovis Fire Department and the Fresno County Fire Protection District. The
contracts and agreements enable their fire station locations to be a factor in determining
adequate response distance for new development proposed within the City of Fresno
sphere of influence for urban growth.
FGFPD is served by Station 20. NCFPD’s three stations are Stations 21, 22, and 23.
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Figure 10-4: FFD Facilities, Equipment and Staffing 2013/2014
Fire Service
Facilities
Date
Constructed/ Daily
Fire station Location Condition Staffing Vehicles
Station 1 1264 N. Jackson 1981/Good 4 (1 Captain, 2 Engineers, 1 Engine, 1 Relief Engine, 1 Battalion Chief, 1
HAZMAT, Battalion Chief 1 Firefighter) HAZMAT
office/quarters
Station 2 7114 N. West 1981/Good 3 (1 Captain, 1 Engineer, 1 1 Engine, 1 Water Tender
Firefighter)
Station 3 1406 Fresno 1938/Good 4 (1 Captain, 1 Engineer, 1 1 Engine, 1 Water Tender, 1 Relief Truck, 1
Street Firefighter) Relief Engine, 1 Large Mobile Ventilation Unit
Station 4 3065 E. Iowa 1948/Good 7 (2Captain, 3Engineers, 1 Truck, I Rescue Truck, 1 Relief Engine
Urban Search and Rescue 2 Firefighter)
Team (URST)
Station 5 3131 N. Fresno 1950/Good 4 (1 Captain, 1 Engineer, 2 1 Engine
firefighters)
Station 6 4343 E. 1967/Good 3 (1 Captain, 1 Engineer, 1 1 Engine
Gettysburg Firefighter)
Station 7 2571 S. Cherry 1981/Good 3 (1 Captain, 1 Engineer, 1 1 Engine, 1 Patrol, 1 HAZMAT, 1
Firefighter) Decontamination Trailer
Station 8 1428 S. Cedar 1959/Good 4 (1 Captain, 1 Engineer, 2 1 Engine, 1 Communications Unit
Communication Team Firefighters)
Station 9 2340 N. Vagedes 1982/Good 7 (2Captain, 2Engineer, 3 1 Engine, 1 Relief Engine, 1 truck
Community Emergency Firefighters)
Response Team (CERT)
Station 10 5545 Aircorp Way 1983/Good 3 (1 Captain, 1 Engineer, 1 1 Truck, 1 Relief Truck
Reserve Aircraft Firefighter)
Firefighting (RAFF)
Station 11 5544 N. Fresno 1969/Good 4 (1 Captain, 1 Engineer, 2 1 Truck, 1 Battalion Chief, 1 Relief Engine, 1
Battalion Chief Firefighters) Fire Prevention Educational Trailer
Office/Quarters
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Fire Service
Facilities
Date
Constructed/ Daily
Fire station Location Condition Staffing Vehicles
Station 12 2874 W. Acacia 1977/Good 3 (1 Captain, 1 Engineer, 1 1 Engine, 1 Relief Engine
Firefighter)
Station 13 815 E. Nees 1980/Good 3 (1 Captain, 1 Engineer, 1 1 Engine, 1 Relief engine
Urban Search and Rescue Firefighter)
Water Rescue (USAR)
Station 14 6239 N. Polk 1992/Good 3 (1 Captain, 1Engineer, 1 1 Engine, 1 Water Tender, 1 Relief Engine
Firefighter)
Station 15 5630 E. Park 2005/ 3 (1 Captain, 1 Engineer, 1 1 Engine, 1 Brush Engine, 1 OES Engine, 1
Circle Excellent Firefighter) Support Bus
Station 16 2510 N. Polk 2009/ 3 (1 Captain, 2 Engineers) 1 Engine, 1 HAZMAT
HAZMAT Excellent
Station 17 10512 N. Maple 2005/ 3 (1 Captain, 1 Engineer, 1 1 Engine, 1 Patrol, 1 Relief Truck
Excellent Firefighter)
Station 18 5938 N. La 2005/Good 3 (1 Captain, 1 Engineer, 1 1 Engine
Ventana Firefighter)
Station 19 3187 W. Belmont 2009/ 3 (1 Captain, 1 Engineer, 1 1 Truck, 1 Battalion Chief, 1 Relief Truck, 1
Battalion Chief Office Excellent Firefighter) Relief Battalion Chief Vehicle
Station 20 (FGFPD) 4537 N. Wishon 1942/Fair 3 (1 Captain, 1 Engineer, 1 1 Engine
Firefighter)
Station 21 (NCFPD) 15850 W. Kearney 1984/Good 6 (2 Captains, 1 1 Engine, 1 Truck, 1 Water Tender, 1 Relief
American Ambulance Post Blvd. Engineers, 2 Firefighters) Engine, 1 Relief Battalion Chief Vehicle
Station 22 (NCFPD) 806 S. Garfield 1988/Good 3 (1 Captain, 1 Engineer, 1 1 Engine, 1 Relief Engine
Firefighter)
Station 23 (NCFPD) 4555 N. Biola Ave 1986/Good 3 (1 Captain, 1 Engineer, 1 1 Engine, 1 Water Tender
Firefighter)
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Fire Service
Facilities
Date
Constructed/ Daily
Fire station Location Condition Staffing Vehicles
Station 24 911 H Street 1904/Good 1 Fire Chief, 2 Deputy 35 Staff vehicles to support Prevention,
Fire Headquarters (Remodeled as Chiefs, 2 Administrative Investigations, Training, Support Services
office space in Battalion Chiefs, 5 and Administration
2006. FFD Captains, 1 Firefighter PIO,
lease began 1 Investigations Unit
2007) Supervisor, 1 Supervising
Fire Prevention Inspector,
1 Fire Prevention
Engineer, 3 Senior Fire
Prevention Inspectors, 10
Fire Prevention
Inspectors, 1 Training
Officer, 13 Administrative
and Facility Support Staff
AARF (FAT function / Fresno Yosemite Not provided 2 Firefighters 2 apparatus(FAT equipment)
under contract to provide International (FAT facility)
staffing) Airport/Fresno
Air Terminal
(FAT)
Fire Shop 1420 Fresno 1923/Poor 1 Shop Supervisor, 1 Lead 3 Light Duty Pickups, 1 Heavy Service Truck
Fire apparatus and light Fire Equipment Mechanic,
vehicle maintenance; self- 5 Fire Equipment
contained breathing Mechanics
apparatus maintenance and
bottle filling station
Supply (NCFPD) 7285 W. Shields 1953/Fair 1 Senior Stores Keeper, 1 2 Delivery Pick-ups
Storage and distribution of Volunteer Delivery Person
consumable and non-
consumable items
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Facility Sharing
FFD rents two of NCFPD's vacated fire stations (separate from staffed NCFPD fire stations): one to house an antique fire apparatus and other
equipment, and the other as a supply facility. FFD's Station 10 is shared with reserve aircraft firefighting personnel. Station 21 is also used as a
post for American Ambulance, which includes two ambulance personnel.
Future opportunities: No opportunities for future facility sharing were identified.
Infrastructure Needs and Deficiencies
FFD is in need of replacement of the Fire Apparatus Repair Facility as well as upgrades to the Fire Training Facility; both of which are in the
downtown area. Repair and or replacement of these facilities have been hampered by the economic downturn of recent years.
District Resource Statistics Service Configuration Service Demand
Staffing Base Year 2014 Configuration Base Year 2014 Statistical Base Year 2013
Fire Stations in District 24 Fire Suppression Direct Total Service Calls 37,460
Stations Serving District 24 EMS Direct EMS 49%
American Fire/Hazardous
Sq. Miles Served per Station1 14 Ambulance Transport Ambulance Materials 10%
Total Staff2 359 Hazardous Materials Direct False Alarms 8%
Total Full-time Firefighters 314 Air Rescue/Ambulance Aircraft Direct Misc. emergency 22%
Total On-Call Firefighters 0 Fire Suppression Aircraft Direct Non-emergency 4%
Total Sworn Staff per Station3 12.17 Public Safety Answering Point Direct Mutual Aid Calls 1%
Total Sworn Staff per 1,000 0.43 Fire/EMS Dispatch Direct Calls per 1,000 people 71.35
Service Adequacy Training
Response Time Base Year 2013 Several members of the USAR team hold instructor certifications for all
required disciplines and ensure that all USAR team members stay current on
Median Response Time (min) 4:42 minutes best practices. Sixty FFD personnel comprise the HMRT and have met
90th Percentile Response training requirements for hazardous materials technicians and/or specialists.
Time (min) 7:55 minutes The HMRT participates in regularly scheduled cross-training to maintain
familiarity and competency with each agency's personnel, equipment, and
ISO Rating Class 3 response capabilities.
Mutual & Automatic Aid Agreements
FFD maintains mutual aid agreements with each of the surrounding districts. Automatic aid exists between FFD and the City of Clovis. FFD also
honors the automatic aid agreement between FCFPD and NCFPD. There is currently no automatic agreement between FFD and FCFPD; all
requests are mutual aid in nature.
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Notes
1) Average primary service area (square miles) per station.
2) Total staff includes sworn and non-sworn personnel.
3) Based on ratio of sworn full-time and call staff to the number of stations. Actual staffing levels of each station vary.
4) Facility condition definitions: Excellent - relatively new (less than 10 years old) and requires minimal maintenance. Good - provides reliable
operation in accordance with design parameters and requires only routine maintenance. Fair - operating at or near design levels; however, non-
routine renovation, upgrading and repairs are needed to ensure continued reliable operation. Poor - cannot be operated within design
parameters; major renovations are required to restore the facility and ensure reliable operation.
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INFFRASTRUCTUREE NEEDSS
Existting facilitiees may not be adequaate to mainntain a suffficient levell of servicees for
future ggrowth in FFresno. Inncreased poopulation ddensities mmay require commensuurate
increasees in firefigghter staffinng, facilitiess, and equiipment to mmaintain cuurrent leveels of
service rregardless oof where this growth ooccurs with the differennce being thhat the locaation
and desiign of fire sstations maay become mmore depenndent on deensity and aavailability than
running distances bbetween firee stations.
Infill development may require reoppening of the formerr Broadwayy/Elizabethh fire
station, cconstruction of a new sstation in thhe Downtowwn Planningg Area, and//or restorinng the
number of fire appaaratus and ffirefighters aat the existiing stationss. Where inffill developmment
substanttially increeases densiity or buillding heighht, the exiisting publlic water main
infrastruucture may require upgrading due to increassed domesttic water deemand reduucing
availablee water voluume and prressure for firefightingg and potenntial damagee to aging wwater
pipes wwhen fire aapparatus mmust pumpp large volumes of wwater for ffiire suppresssion
purposes. Conversely, new growth areeas will reequire signiificant inveestment in new
infrastruucture (e.g. rroads, wateer, sewer).
For eexample, new developpment in thhe Northweest will neeed new and relocatedd fire
stations.. The City oowns land nnear Shaw and Bryan AAvenues andd is currentlly in the proocess
of finalizzing details for the consstruction offpermanentt Fire Statioon 18.
Five future sitess have beenn identified to build thhree future fire stationns in establiished
neighborrhoods norrth of Shaww Avenue. Also, neeeded facilitiies are a nnew Traininng &
Learningg Center, Reepair and MMaintenancee Facility, aand possiblyy a Joint Poolice/Fire PPublic
Safety Coomplexes annd Communnications Ceenter; all possibly locatted in the Doowntown arrea.
In pllanning for new facilitty locationss, consideraation will bbe given not only to vvalue-
engineerring to loweer costs, buut also co-loocating suchh facilities wwith other public propperty
such as schools, pparks, playggrounds, coommunity centers, ettc. to creatte a synerggy of
participaation in thhe neighboorhood withh the poteential result of less vandalism and
promotion of a better sense of security forr the citizenns using thesse facilities.
CHALLENGGES
Challlenges facedd by the Cityy include iddentifying ssufficient reesources neeeded to incrrease
and susttain staffing levels in high fire aareas and expanding installationn of traffic pre-
emptionn technologyy.
Cell pphone use ffor 911 callls has madee it difficultt for the Deepartment tto meet nattional
benchmaark standarrds (see Serrvice Adequuacy sectionn below). HHowever, thhis benchmaark is
under naational revieew at this tiime as it is aan issue for all emergenncy dispatchh centers.
The CCity of Fressno Fire Deppartment’s (FFD) targeet responsee time for its service arrea is
five minnutes and 20 seconds for 90 perccent of emeergency inccident respoonse. This time
standardd measures unit respoonse from tthe time thhe unit wass alerted to the emerggency
incident to the timee the first uunit arrivedd at the emergency inccident. This response time
standardd is critical to saving liives before flashover ooccurs at firre incidentss and arriving in
time to provide baasic life suppport in sittuations such as suddden cardiac arrest, traauma,
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impaired breathing and other severe medical emergencies. In 2013, the FFD response time
was six minutes and 26 seconds to 90 percent of fire and medical emergencies.
The Department has struggled to meet target response times due to cuts in the number
of units available to respond. In 2009, the FFD had 25 operational apparatus available to
respond to, however, due to the economic downturn in 2010, the Department had to
reduce the number of responding apparatus to 19 (a 24 percent reduction in available
work force) though the service level demands remained the same or higher. Industry
standard defines an effective firefighting force as having 15 firefighters on a residential fire
ground within 8 minutes 90 percent of the time.
In each of the last two budget years (FY15 and FY16) one additional engine/truck
company has been added; improving the Department’s service level. These improvements
reflect an investment of $4 million annually from the City’s General Fund. Today, the
Department provides service with 21 responding apparatus providing an effective
firefighting force on-scene only 64 percent of the time in 8 minutes.
Although there are currently 19 fire stations in the city, staffing levels are a key issue
that must be addressed. The national standard for firefighter staffing is 1 to 1.5 per 1,000
residents and the State average (and the City adopted 2035 General Plan) calls for 0.81
firefighters per 1,000 residents. The National Fire Protection Association Standard (NFPA)
1710 provides recommendations of minimum workforce standards to accomplish
provisions of fire suppression and emergency medical services. The FFD uses NFPA 1710
as a guidance document to establish its own minimum staffing standards to ensure
sufficient workforce is present in the event of emergency situations.
In 2008, the Department had 82 firefighters on duty each day (minimum daily staffing
in the City and Fig Garden) or 0.52 firefighters per 1,000 residents. In 2010, the minimum
daily staffing dropped to 63 firefighters on duty each day or 0.39 firefighters per 1,000
residents, which was equivalent to the staffing levels held in 1958. Today, due to budgeted
investments, the current minimum daily staffing level (in the City and Fig Garden) is a total
of 73 firefighters on duty each day which equates to 0.43 firefighters per 1,000 residents.
The Staffing for Adequate Fire and Emergency Response (SAFER) Grants have been utilized
to increase the minimum daily staffing.
During the time of reduction in resources, the Department needed to change its
operating model in an effort to keep apparatus available to respond within the desired
response criteria for emergencies. More specifically, the FFD:
• Stopped responding to approximately 10,000 annual serious medical emergency
calls;
• Moved all fire and life safety inspections to the FFD’s Prevention Division; and
• Reduced availability for all public education outreach.
Since that time, and with economic recovery and investment by City leaders, two
additional apparatus (increased staffing) has been added back to the deployment model,
some fire inspections have returned to field personnel, and fire inspectors have been added
back to assist in the preventative fire loss efforts by reinstituting fire inspections in
commercial businesses. The Department’s long-term planning target is to match daily
staffing levels to service level demands.
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The CCity is curreently rated by the Insuurance Serviices Office ((ISO) as a PPublic Protection
Class 3 ((scale 1 to 110, with 1 bbeing the beest). An uppdated City of Fresno FFire Departmment
Strategicc Plan shouuld include objectives that will identify straategies to iimprove annd/or
enhancee emergenccy operatioons, commmunity riskk reductionn (to incllude educaation,
engineerring and ennforcement)), training rrequirementts, and support service functionss that
improvee service dellivery and ppotentially mmove the Deepartment into a Class 2 rating.
Figure 10-5: FFD Total Call Voluumes 2007-22014
FFD TTotal Call VVolumes 22007-20144
50,000
45,000
40,000
35,000
30,000
25,000
20,000
2007 2008 2009 2010 2011 20112 20133 2014
Figuure 10-6: FFDD Breakdowwn of 2014 ccalls
FFD Brreakdownn of 2014 CCalls
3,417 2,594
2,9991
1,190
1,005
5,934
21,6445
Fire EEMS Arrivals EMSS Downgradees HazMatt (Non-fire)
Service Caall FFalse Alarm Otheer Calls
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FFD is a full service fire department and provides services including, but not limited to,
fire protection, emergency medical services, hazardous material response, and public
assistance. There has been a general increasing trend in the number of calls for service
since 2007, with some spikes and declines in the intervening years, as shown in figure 10-5.
Call volumes within the City tend to vary less by volume than type during each season.
Figure 10-6 is a breakdown of 2014 calls by category. Typical of most fire providers, the
City responds to a large proportion of emergency medical calls.
The three performance areas tracked by FFD are the 911-dispatch alarm process time,
turnout time and travel time. These performance areas have been identified in both the
Commission on Fire Accreditation International (CFAI) process and National Fire
Protection Association (NFPA) 1710. The benchmark for the 911 dispatch alarm process
time is 60 seconds, as defined by the time between answering the call at the Fire/EMS
dispatch center and activation of the station and/or company alerting devices by the
computer-aided (CAD) operator. The benchmarks for the turnout time are 60 seconds
between 7:00 am and 9:59 pm and 90 seconds between 10 pm and 6:59 am. The interval
between the activation of station and /or company alerting devices and the time when the
responding crew begins rolling toward the call defines the turnout time. Travel time is
defined as the time between the responding crew/apparatus signaling the dispatch center
they are responding to the alarm and when the team arrives on scene.
While the 911 dispatch processing time benchmark is 60 seconds, 90 percent of the
time, the Department’s processing time is somewhat longer at 57 seconds 50 percent of the
time and greater than 90 seconds at 90 percent of the time. The greater processing times
are in large part due to the use of cell phones for 911 calls. When a 911 call is received
from a cell phone, the address information is not captured by the emergency call system,
thereby requiring the dispatch staff to ask a series of questions to determine location. In
response to the increase in cell phone use for 911 calls, a discussion of the relativity and
appropriateness of the 60-second benchmark is underway at the national level.
Figure 10-7: FFD Response Times Within City Boundaries (2014)
2014 (mins) Chute Travel Response
Median 00:57 03:31 04:29
Mean 00:57 03:48 04:44
Standard
Deviation 00:29 01:39 01:57
10% 00:16 02:02 02:45
20% 00:35 02:31 03:22
30% 00:44 02:53 03:46
40% 00:50 03:12 04:08
50% 00:57 03:31 04:29
60% 01:03 03:53 04:52
70% 01:11 04:17 05:19
80% 01:20 04:51 05:55
90% 01:34 05:49 06:56
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1 1 . HOOM ELLESSS SE RRV I C EES
SERVICEE OVERVVIEW
The CCity of Fresno works inn collaborattion with seervice agencies dedicatted to providing
shelter, hhousing andd case manaagement serrvices to thoose in need..
According to thhe Fresno-MMadera Conntinuum off Care andd Point-in-TTime (PIT) data
reportedd to HUD, thhere was a 34 percent decrease inn overall hoomelessnesss (shelteredd and
unshelteered) in the Fresno-Maddera Countyy area betwween Januaryy 2014 (2,597) and Jannuary
2015 (11,722). Thee 2015 PITT count also shows a 40 percennt decrease in unshelttered
homelesss persons wwithin the ccity of Fresno. Recognnizing that much workk remains, tthese
encouragging numbeers come oon the heels of a 27 ppercent droop in homeelessness inn the
Fresno aarea in 20133, thanks too a concentrrated effortt to connectt homeless iindividuals with
the rightt services, thhe first timee.
In 20008, the Cityy of Fresnoo and Fresnoo County joointly adoptted the 10 YYear Plan too End
Homelesssness, a strrategic guidde to plan aand coordinnate the effforts of nonnprofits, service
providerrs and funding partnerrs. The Plann outlines foour major aareas of worrk that conttinue
to be advvanced simuultaneouslyy to address chronic homelessnesss:
1. Housing First: Incrrease housing throughh the “housiing first” mmodel, and wwrap
supportivve services around thee individuaal once a sttable living environmeent is
established;
2. Opportunnity: Expandd and increease employyment oppoortunities, aand increasee and
improve access to asssistance annd case mannagement;
3. Preventioon: End hommelessness through mmanaged servvices and exxpand the rrange
and availlability of prrevention sttrategies; annd
4. Establishh Collaboraation: Immprove datta collectioon methodds through the
Homelesssness Manaagement Infformation SSystem, an aagency poinnt of contacct for
homelesss-related isssues.
Sincee the adopttion of the Plan, the ccommunity has achievved significcant progress in
reducingg homelessness. In FFresno Couunty as a wwhole theree was a deecrease in total
homelesssness of 30.3 percent from 20112 to 20133. Fresno CCounty expeerienced a 29.8
percent decrease inn unsheltered persons.50 A majorrity of the uunshelteredd populationn (56
percent)), prior to thheir currentt episode off homelessnness lived inn Fresno Couunty, 16 perrcent
somewhhere else, annd five perceent in other parts of California. 51
The City of Freesno continnues to colllaborate wwith servicee agencies throughoutt the
Fresno-MMadera Couunty area seeking long-tterm solutioons to homeelessness. WWhile the City of
Fresno ddoes not prrovide direcct services, street outrreach or casse managemment servicces, it
has established parrtnerships wwith local, sstate and feederal agencies that coontinue to ggrow.
50 The Fresno Madera Continuum of Care, ‘Point in Time Count 2013‘, p. 17.
51Ibid., p. 244.
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The City of Fresno participates in the Fresno-Madera Continuum of Care, a comprehensive
coordinated homeless housing and services delivery system that assists homeless
individuals with making the critical transition from homelessness to independent or
supportive permanent housing, accessing education, health and mental health services,
employment training, and life skills development. The collaboration of agencies is
dedicated to increasing community awareness of homeless people and their problems and
the development and implementation of strategies to create permanent solutions to
homelessness in the Fresno community.
Through the Mayor’s Office, the City of Fresno is engaged with several agencies and
policy level efforts to prevent and end homelessness, including:
U.S. Interagency Council on Homelessness: Coordinates the federal response to
homelessness and creates a national partnership at every level of government and
with the private sector to reduce and end homelessness in the nation while
maximizing the effectiveness of the Federal Government in contributing to the end
of homelessness;
Opening Doors: A federal plan to prevent and end homelessness, launched in 2010;
The Mayors Challenge: As part of the strategies laid out in the Opening Doors
initiative, this effort coordinates the leadership and support from mayors and local
elected officials, publicly committing to ending Veteran homelessness.
Dedicating Opportunities to End Homelessness: Fresno is one of ten cities
throughout the country participating in the leadership of this initiative that focuses
community efforts and resources, launched in 2013;
California Policy Academy to Reduce Chronic Homelessness: A collaborative effort
to coordinate state resources with local communities and expand use of resources,
increase access to housing, and increase state leadership and interagency
coordination; and
25 City Initiative: Led by the Department of Veterans Affairs, Fresno was invited in
February, 2014 to be one of 25 communities to participate in an effort to integrate,
create and utilize systems to end veteran and chronic homelessness by 2015.
The City Manager’s Office oversees the coordination of programs, funding, policy
recommendations and other efforts associated with homelessness. Through the City
Manager’s Office, a task force lead by the Fresno Police Department was established in
2013 to concentrate on public safety concerns and illegal structures associated with
homeless encampments. Individuals from various divisions throughout the City of Fresno
have been collaborating on this task force.
The Development and Resource Management Department, Housing and Community
Development Division, utilizes entitlement funding from the U.S. Department of Housing
and Urban Development (HUD) to implement programs related to homelessness, including:
Emergency Solutions Grants: The City works with the Fresno County to jointly issue
a Request for Proposals (RFPs). Priority for funding is placed on applications that
serve the unsheltered population.
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HOME Investment Partnerships (HOME) Program:52 The City has contracted with the
Fresno Housing Authority to implement a $1 million tenant-based rental assistance
program for persons that are homeless, threatened with homelessness, or in need of
housing assistance after completing a transitional living program.
Community Housing Development Organization (CHDO): The City makes available
CHDO funds for affordable housing projects, which may include the creation of
single room occupancy housing.
As was previously mentioned, the City of Fresno participates in the Fresno Madera
Continuum of Care Program (FMCoC). This consortium of partners includes homeless
service providers, advocacy groups, and government agencies working together to address
the needs of homeless people in the two-county region. FMCoC produces annual reports
with data collection in order to meet the requirements of HUD and attain ($6.5 million
annually) Homeless Assistance Program funding to provide a comprehensive coordinated
homeless housing and services delivery system. Services and housing are provided by
approximately 20 agencies in both counties.
The programs covered by the FMCoC range from emergency solutions, transitional
housing, permanent supportive housing, case management, peer counseling, parenting
classes, medical and dental clinics, career development, financial management assistance,
mental health, drug abuse prevention and daily living skills training. Collectively, the
FMCoC coordinates the Point in Time Surveys, participates in the 100,000 Homes Campaign,
uses the Homeless Management Information System and the Vulnerability Index, applies
for grant funding, and reviews the RFPs issued by the City and the County related to
specific funding programs.
The Fresno Housing Authority,53 also a member of the FMCoC, administers diverse
affordable housing and homeless programs funded by HUD, the U.S. Department of
Agriculture and the State of California. It is the agency point of contact for the Homeless
Management Information System. As a government agency created and authorized by
State law, it owns, maintains, and manages more than 2,000 units of government
subsidized housing throughout the City and the County of Fresno, providing rental housing
for eligible low-income families, including the elderly and persons with disabilities. The
majority of these units are designed for families, with some specifically designated for farm
laborers, migrant workers and for households facing emergency needs. Housing units
range from one-bedroom to five-bedrooms, and include apartments, townhomes, and
single-family houses.
The Fresno Housing Authority also provides Housing Choice Vouchers (formerly
Section 8), Shelter Plus Care (housing assistance for homeless persons with disabilities),
52 The HOME Investment Partnerships (HOME) Program is the largest federal block grant to State and local governments
designed exclusively for the creation of affordable housing for low-income households.
53 The public housing authority for the City of Fresno was established in 1941, five years later Fresno County created its
own housing agency. Through a unique arrangement, the two housing authorities, although separate public agencies, have
functioned with a single executive director and staff. Each has its own board of governors, but the two meet together. For
a while they used two different names. In 2012, the agency began to use a single name, Fresno Housing Authority (or
Fresno Housing and sometimes FH), to encompass all of its operations in both, the City and County of Fresno.
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and nummerous programs and activities for residennts. The Hoousing Authhority generates
income ffrom its prooperties annd can applyy for a variety of grannts as well aas federal, SState,
and locaal funds too supplement its coree funding. In partnerrship with Fresno Coounty
Departmment of Behhavioral Heaalth, the Frresno Housing Authority recentlyy completedd the
$12 million Renaisssance at Sannta Clara prooject, a fullyy-furnished 70-unit commplex for peeople
experienncing chroniic homelesssness.
Leadding the Fressno effort foor the national 100,0000 Homes Cammpaign, the Fresno Houusing
Authoritty performeed a registry week uttilizing the Vulnerabillity Index. Together with
partner agencies, a rapid resullts boot cammp was heldd in 2013. DDuring the ffirst 100 daays of
the 1000,000 Homees Campaiggn, housingg solutionss for the chronically homeless and
vulnerabble were improved by 6667 percentt.
The CCity also woorks cooperratively withh Fresno Firrst Steps Hoome, a charittable non-pprofit,
dedicateed to raisinng private ffunds that are used tto support the housinng-first straategy,
considerred a nationnwide best practice. TThe City of FFresno Mayyor currently serves onn the
Board off Fresno Firrst Steps Home. The Citty of Fresnoo initially suupported Frresno First SSteps
Home byy acting as the organiizations fisccal agent. Now a stannd-alone noonprofit agency,
Fresno FFirst Steps HHome has raised nearly $1 million, with the mmajority beinng contracted to
service aagencies prooviding houusing and suupportive seervices for tthe homelesss. As a resuult of
a collabooration amoong service agencies, FFresno Firstt Steps Homme has proviided fundinng for
housing and wrap--around serrvices to ovver 100 inddividuals wwho had been living inn the
homelesss encampmments that ssurroundedd the Povereello House (a nonproffit organizaation)
and the FFresno Resccue Missionn.
The CCity, along wwith multipple service oorganizationns, includingg FMCoC, Ceentral Califoornia
Legal Seervices, the County of Fresno Deppartments oof Social Seervices, Hommeless Servvices,
Behaviorral Health, Public Heealth, and Economic Opportuniities Commmission, proovide
services and resourrces to a searchable daatabase andd an information line ((2-1-1) operrated
by the United Way oof Fresno Coounty. The eefforts are ooften coordiinated across organizations
using thee Homeless Managemeent Informattion Systemm.
In Feebruary, 20115 the Multii-agency Acccess Prograam (MAP) PPoint at the PPoverello HHouse
(Pov) waas launchedd. The MAPP Point at thhe Pov is ann integratedd intake proocess conneecting
individuals facing housing, subbstance abusse, and/or mmental illneess challenges to suppoortive
services. MAP Poinnt “navigatoors” help inndividuals ffind the serrvices they need. The MAP
Point att the Pov iss a collaborration of seeveral agenncies particcipating in the Commuunity
Conversation—leadders meetinng quarterly with a sshared inteerest in immproving mental
health annd homelessness relateed issues in the region.
Homelessness seervices are provided thhroughout FFresno and Madera couunties accorrding
to collabborative agreements deescribed in pprevious paaragraphs.
STTAFFING
The City of Freesno does nnot employy staff for sstreet outreeach or case managemment
services. However,, the City does employy a Project MManager foor the Emerrgency Solutions
Grant (EESG), Tenant-Based RRental Assisstance (TBRA), and HHousing Oppportunitiess for
Persons With AIDDS (and HHOPWA) prrograms wwithin the Housing aand Commuunity
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Development Division in tthe Develoopment annd Resourcce Manageement (DAARM)
Departmment.
The Housing annd Commuunity Develoopment Divvision admministers federal and state
funding related to the variouus grants aand contraccts includinng ESG, HOOME Investmment
Partnersships Progrram (HOMME), Commuunity Deveelopment BBlock Grannt (CDBG), and
CalHomee funds. Beeginning in 2015 the Division willl also begin administerring the HOPWA
programm. This inccludes managing contrract and grrant awarddees regardding compliance,
monitoring, scopes of work, and any necesssary traininng or reportt compliancce measuress.
A crooss-departmmental taskk force wass establisheed during tthe summerr of 2013 for a
neighborrhood revittalization pproject thatt resulted in the cleaaring of seeveral hommeless
encampmments near service ageencies and rresidential pproperties. The task foorce is led by the
Fresno PPolice Deparrtment and the City Maanager’s Offfice. It is suupported byy the Commuunity
Revitalizzation Divission, Commmunity Sanittation, Riskk Management, City Attorney’s OOffice,
and the Mayor’s OOffice. Thiis task forcce continuees to meett and focuss its effortts on
maintainning and reccommendinng improvedd policies. TThe Police OOfficers assiggned to thiss task
force conntinue to wwork daily wwith the hommeless popuulation and in close colllaboration with
the serviice partnerss.
In reesponse to tthe communnity’s volunnteer interessts, the Cityy of Fresno is supportiive of
the Poverello Housse’s efforts to coordinnate commmunity volunnteers, servving mealss and
donationns of materrials and otther goods.. The City also partnners with HHandsOn Ceentral
Californiia, an onlinne databasse of volunnteer opportunities, tthrough thee Serve Frresno
Initiativee.
FACCILITIESS AND CAPACITYY
The City of Fresno does nnot own anyy homelesss program ffacilities, buut does proovide
some funding for sservices thrrough varioous fundingg programs and grantss. Facilitiess are
primarily owned annd operated by non-proofit agenciess.
Durinng the seasonal freezee periods, wwhen extra oovernight hhousing is ccritical for tthose
living onn the streetts, the Cityy of Fresno coordinatees the openning of speccific commuunity
centers, security annd overnight storage foor personal belongingss for those iin need withh the
Parks, Afterschool, RRecreation and Commuunity Servicces Departmment and the Fresno Reescue
Mission. The Povereello House aalso providees some sheelter optionss.
INFFRASTRUCTUREE NEEDSS
The mmajority of the homeleess programm agencies tthe City is iinvolved with reportedd the
condition of their faacilities to bbe good or ffair. The onees in fair coondition inddicated thatt they
could use some upddates for norrmal wear aand tear succh as paint, carpets, andd new beddding.
As mmentioned ppreviously, there is a ccontinued nneed to devvelop planss for permaanent
housing opportunities. It is esttimated thatt several huundred unitss are still neeeded.
Additionally, thee City of Freesno does noot have a puublicly-fundded shelter tthat can proovide
emergenncy assistannce and connect homeless individuuals to the mmost approopriate and cost-
effectivee housing aand/or servvices intervention(s). There is oopportunity for commuunity
leaders tto develop pplans for thee creation oof an approppriate emerggency shelter.
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CHAALLENGEES
The ffollowing chhallenges hhave been iddentified inn regard to the goal off preventingg and
ending hhomelessnesss in the Citty of Fresno:
TThere is a shortage of housing opportunitiies coupledd with supportive or case
mmanagementt services.
TThere are scaarce resourrces to mainntain an adequate level of services..
TThere are vvery few inncentives ffor landlorrds to provvide housinng to hommeless
inndividuals wwith credit problems, little or noo income, aand/or precarious houusing
histories.
TThere are limmited shelteer options foor unshelterred males, wwithout chilldren.
TThe unintennded conseequences off the commmunity prooviding mooney directlly to
inndividuals on the street-corner often resuults in enabbling or perpetuatingg the
homeless liffestyle insttead of acccepting thee housing-ffirst assistaance offered by
seervice providers.
AA segment of individuuals focuseed on propperty crimee and illeggal recyclinng or
sccavenging aare concentrrated in neigghborhoodss around reecycling centers.
The CCity of Fressno and other service aagencies aree attemptinng to solve tthese challeenges
through rehabilitatiion of the exxisting houssing stock, nnew construuction alterrnatives, and the
building of public annd private ppartnerships to supporrt programmming. 54 Addditionally, duuring
the 20155-16 City off Fresno Buddget, resourrces were aallocated to provide additional pollicing
focused on recyclinng issues annd a Blight TTeam will ssupport Codde Enforcemment to adddress
blightedexterior staandards thrroughout the city, addreessing attraactive nuisances. 55
SERVICEE ADEQUACY
Indiccators of homeless servvice adequaacy discusseed in this seection includde: the abiliity to
meet housing needs, the abilitty to meet tthe need foor support sservices, cost benefits from
the homelessness program, andd provision of homelesss preventioon services.
The counties off Fresno andd Madera aare in need of hundredds of additional permaanent
supportiive housingg units in orrder to movve more indiividuals froom the streeets into houusing.
Althoughh the commmunity has aadded permmanent suppportive houssing beds ovver the pastt two
years, it is still shorrt of the optimum goall.56 In 20133, there werre 752 availlable permaanent
supportiive housing beds in thee two countiies.57
Menttal health pproblems, pproblematicc drug and alcohol usse, or a lack of suppoort in
maximizzing and maanaging avaailable income represeent risks too housing suustainment. The
capacityy to manage a home and ensure reent is paid, aas well as liiving successsfully alonggside
54City and CCounty of Fresnno, 10 Year Plan to End Chronic Homelessness-Year Three 20111 Report.
55City and CCounty of Fresnno, 10 Year Plan to End Chronic Homelessness-Year Three 20111 Report.
56 The Fressno Madera Conntinuum of Caree, ‘Point in Time Count 2013‘, p.. 36.
57 Ibid., 20113 Permanent SSupportive Houusing Table.
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neighboring households within a community, can be undermined by unmet support needs
that can range from lack of housing-related daily living skills to untreated severe mental
illness.
The City implemented the Homeless Prevention and Rapid Re-Housing grant in fiscal
years 2010 through 2012. The grant provided funding to eight nonprofits to offer rental
assistance, security deposits, utility payments, housing search and placement, and case
management to 1,033 persons that were homeless or threatened with homelessness.
The cost benefits of homelessness services and strategies can be explored through the
cost offset analysis, which tests whether homelessness services and strategies can reduce
the financial costs that arise from homelessness for other services and for society as whole.
Housing one homeless person a year can save the City of Fresno taxpayers $11,872 per
person a year in medical and public safety costs. An economic impact study determined
that the total annual cost to the City of Fresno, if the 10-year plan is not implemented,
would be $34.5 million as opposed to $17.2 million if the goals of the Plan are met.58
Finally, the best approach to ending homelessness and obtaining sustainable long-term
results is to prevent homelessness at its inception. Prevention of homelessness, according
to the National Alliance to End Homelessness, is one sixth of the cost in financial and
human terms than finding and establishing housing for someone after becoming
homeless.59 Programs such as rental assistance, utility assistance and legal advocacy
increase housing stability and attempt to prevent chronic homelessness. Fresno County
Economic Opportunities Commission (EOC) offers a Low Income Energy Assistance
Program for households receiving shut-off notices from their utility company.
58Fresno First Step Home website.http://www.fresnofirststepshome.org/activities-results/
59 The City and County of Fresno, 10 Year Plan to End Chronic Homelessness, September 9, 2008, p. 36.
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112 . PA RK S AAN D RR ECRR E AT II O N
SERRV I C EES
SERVICEE OVERVVIEW
City of Fresno Parks, After School, RRecreation aand Commuunity Services Departmment
(PARCS)) owns andd operates numerous parks inclluding regiional parkss, neighborhood
parks, trrails, dog paarks, commmunity centeers, action ssports faciliities, play sttructures, ppools,
splash pparks, and golf coursses. PARCS offers recrreation oppportunities through spports
activitiess for youth aand adults aat a minimuum or no cosst.
Recreeational proograms rannge from fun activities and summmer camps tto action spports,
urban fisshing and oorganized spports, incluuding bitty bbaseball, kaarate, youthh basketballl, flag
football, soccer, andd aquatics. The Adult Sport Proggram includdes a year-rround fee-bbased
men’s aand womenn’s organizzed sports league off softball, flag footbaall, and sooccer.
Recreational activitties at community andd neighborhhood centers include crafts and after
school pprograms feeaturing hommework labboratories, communityy science workshops, aand a
healthy llifestyle fitnness camp.
PARCCS providess a variety of recreatioon services in collaborration with other agenncies.
The Deppartment is contractedd by the Freesno Countyy Office of EEducation aand local scchool
districts,, including FFresno Uniffied School District (FUUSD) and Cllovis Unifiedd School Disstrict
(CUSD), to provide after schoool programss to schoolss receiving AAfter Schoool Educationn and
Safety (AASES) grannt funds thhat are usedd to reimbburse PARCCS for its sservices. PAARCS
providess the SPAARK prograam, offerinng structurred non-fee based pphysical fittness
programmming at 29 FUSD annd CUSD eelementary school sitees, and Freesno Youthh Job
Preparattion Prograam (YJPP) aat nine higgh school siites. YJPP is a program designeed to
prepare students wwith job soft skill traininng and resuume’ buildinng, which wiill assist theem in
acquiring a job. Thee Communitty Science Prrogram opeerates at thee newly re-oopened Highhway
City Commmunity Sciience Centeer through ggrant fundinng and operates after school activvities
daily, Moonday throuugh Friday. Schools proovide the accademic commponents reequired forafter
school programs, wwhile PARCS focuses on physical fittness and reecreation services.
PARCCS also partners with Fresno Maadera Area AAgency on Aging (FMAAA) to deeliver
healthy mmeals to thee senior poppulation in Fresno. Thee Senior Hott Meals Program provides a
nutritionnal lunch aat a suggestted donatioon of $1.500 for adultss 62 and oolder in sixx City
communnity centerss. The Depaartment parrtners withh outside grroups incluuding AARPP and
Senior EEmploymentt Resourcess, and obtainns grants too operate thhe senior exxercise proggram
and monnthly dancess.
In orrder to funnd its progrrams and eexpand its grant and partnershipp opportunnities,
PARCS eestablished Fresno Unitted Neighboorhoods (FUUN) nonproofit agency in June of 22005.
In the fiirst three yyears of opeeration, FUN raised mmore than $$1,000,000 to help suppport
renovatiions at Cammp Fresno, MMovies in thhe Park, Sennior Garden at Ted C. WWills Commuunity
Center, Romain annd Holmes Neighborhhood Centeers, Life annd Environnmental Sciience
Programm, Fresno JYYPP, FUN sponsored Yoouth Summeer Camps, aaquatics proogram and mmany
other cauuses administered by tthe PARCS DDepartmentt.
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PARCS utilizes partnerships with local organizations including local area schools,
businesses, churches, and nonprofits to preserve, improve and maintain Fresno's
neighborhood parks through the Adopt-A-Park and Go Green & Clean programs. Adopt-A-
Park, which is a component of the Serve Fresno initiative,60 also recruits volunteer leaders
amongst its residents to coordinate bimonthly volunteer activities at the park sites.
PARCS also takes part in one of the City’s homeless service programs, by collaborating
with the Homeless Services Division of the City and the Fresno Rescue Mission and making
some of the City’s community centers available as warming centers for those in need
during seasonal freeze periods when extra overnight housing is necessary.
PARCS maintains 1,500 acres of open space. Daily or annual park entry passes are
required to access three of Fresno's regional parks.
Non-residents may use City of Fresno parks and facilities. There are currently no
additional fees being charged for program or facility use by non-residents.
Location
Although all city and county residents are allowed to use park and recreation facilities
operated by the City, Fresno reported that southeastern portion of the City lacks green
space. According to a Trust for Public Land (TPL) study, the City of Fresno ranks last among
the largest 50 cities. The PARCS Department concludes from the study that there are
multiple areas within the City with a lack of access to park and recreation facilities. Per the
General Plan Update, city neighborhoods south of Shaw have a deficit of 984 acres of park
space per 1,000 residents compared to areas north of Shaw. Further detailed studies
concluded that this information was inaccurate. When regional parks are removed from
the equation and Community Facilities Districts (CFD) maintained park properties are
added there are 151.82 overall park acres North of Shaw, and 355.94 acres South of Shaw.
This does not include golf courses or trails.
PARCS provides limited services outside of the City’s boundaries. The Department
owns Camp Fresno and Camp Fresno Junior located 62 miles east of the City of Fresno
along Dinkey Creek in the Sierra Nevada Mountains and contracts with Jerrod & Jennifer
Deaver for their operation and maintenance. The camps are operated under a special use
permit granted by the Sierra National Forest - U.S. Forest Service. As is the case with the
other regional parks, Camp Fresno does not generate sufficient revenue to adequately fund
the cost of operations and deferred capital. A recent assessment conducted by an outside
firm showed that the ongoing cost of capital improvements was approximately $300,000
annually. As such, the City is in the process of revising the reservation rates in order to
generate the additional revenues needed to fund the cost of these improvements.
PARCS does not own or operate any other facilities outside of the City’s boundaries, but
it provides extra-territorial after school services to the Clovis Unified School District,
located 8.2 miles north of the City of Fresno. Additionally, PARCS contracts with rural
communities to provide community science workshops, and offers a Diabetes Retreat at
Dinkey Creek, which is a grant-funded program targeting families that have a high risk of
60Serve Fresno is an initiative aimed at strengthening the City of Fresno through volunteering and service.
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diabetes. Historically these families have been from several central valley communities
including Kingsburg, Parlier, Mendota, and Madera.
Overlapping Providers
As previously pointed out in the 2007 Municipal Service Review, the City substantially
overlaps with Calwa Recreation and Park District. The District includes about 4,437 acres
(6.9 square miles) and encompasses the community of Calwa. The majority of the District is
located within the City of Fresno, while the rest of the District lies in the unincorporated
area.
Malaga County Water District, which similarly provides park and recreation among
other services, also has overlapping areas with the City; however the District does not own
any infrastructure or recreational facilities located within the City’s boundaries.
Demand
Three major factors influencing service demand for the City of Fresno PARCS
Department are population growth, range of recreational activities offered by the
Department, and constituent outreach. The wider the range of recreational opportunities,
the greater the chance that a resident will find a preferred option, therefore potentially
more people would be using services offered by the City. Similarly, the more constituents
are aware of the recreational opportunities the more likely a greater number of people will
be making use of the PARCS facilities.
The PARCS Department tracks average daily attendance for the use of any staffed
neighborhood park as well as all fee-based activities such as adult sports, youth sports,
summer camps, and action sports.
The Department does not track resident versus non-resident participation. The City’s
estimate is that 95 percent of neighborhood park visitors61 are residents from immediate
surrounding areas. Geographical statistics could be pulled from any fee-based activity the
Department is responsible for by utilizing the recreation tracking system. All user
addresses are stored in a database.
The programs and facilities that might attract out-of-town residents include the
regional parks, in particular Roeding Park and the Chaffee Zoo, swim lessons, special
events, skate parks, BMX parks, fee based youth sports programs, fee based summer camps,
and adult sports.
The City reported that recreation program attendance has largely stayed the same over
the last several years. There is a slight fluctuation, but not significant enough to determine
a cause. The only PARCS program that has shown a significant increase over the past few
years is the fee-based youth sports program. This increase is primarily attributed to the
addition of more frequent sports classes for youth.
61 The term “neighborhood parks” does not include regionally-serving facilities such as Roeding Park, Woodward Park,
SW Regional Sports Complex Park, Riverside Golf Course, or Camp Fresno.
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STTAFFING
Fresnno PARCS DDepartmentt has 71.0 fuull time equuivalent (FTTE) employyees. The PAARCS
director supervisess the Adminnistration DDivision (122.0 FTEs), PParks Divisiion (36.0 FTEs),
and the Communitty Services and Recreation Divissions (23.0 FTEs. The Administraation
Division contains aaccounting and payrooll, budget and personnel manaagement, sppecial
events, grants andd contract managemennt units. TThe Parks Division inncludes planned
maintenance, custoodial mainttenance, cappital improovements, aand Riversiide Golf Coourse
units. Thhe Communnity Servicees Division includes Seenior Hot MMeals, Commmunity Science,
Life andd Environmeental Sciencce, Aquaticss, Adopt a PPark, SPARRK Elementaary After Scchool
Programm, Volunteerr Services and Youth Joob Preparattion. The Recreation DDivision inclludes
youth and adult ssports, action sports, neighborhood organiized recreaation progrrams,
fitness, aand summerr camps.
The llatest staffinng trend nooted in the FFY 16 City bbudget is the addition oof five Irrigaation
Specialisst positionss in FY 15. PARCS recceived thesee positions when the Parks Irrigation
programm was movedd from the PPublic Workks Department to the PPARCS Depaartment.
Somee of the emmployees off the Commmunity Serviices Divisioon assist the FUN Boarrd of
Directorrs with variious projectts and proggrams, to wwhich they dedicate abbout 16 houurs a
month.
The City also relies on volunteers for park maintenannce and thhe operatioon of
communnity centerss. As a parrt of the Seerve Fresnoo initiative mentionedd in the Service
Overvieww section, vvolunteers ggather two Saturdays aa month annd are dispaatched to a park
location to assist wwith basic cleeanup and maintenancce. PARCS sstaff works closely withh the
volunteeer leaders to ensuree that beaautification efforts arre consistently schedduled,
equipmeent is availaable and voolunteer houurs are prooperly and aaccurately reported. Inn the
period frrom July 1, 2012, to Juune 30, 20113, approximmately 4,9774 volunteerrs contributted a
total of 117, 376 hours.
PARCCS currentlyy utilizes coontractors inn several caapacities. Fiitness educaation classees are
taught bby contracteed instructoors four hoours per weeek. Commmunity-baseed organizations
provide programmiing at varioous community centerrs 140 hourrs per weekk. SER Nattional
and Ameerican Assoociation of RRetired Perrsons proviide adminisstrative suppport 120 hhours
per weekk.
Landdscaping maaintenance iin city parkss is conductted by the SStreet Mainttenance Divvision
of the Puublic Workss Departmennt. Crews prrovide mowwing, trimmiing, and weeding servicce on
a weeklyy basis at 880 parks thhroughout the City. TTree servicces are alsoo provided on a
differentt schedule.
FACCILITIESS AND CAPACITYY
The Cityy maintains approximattely 1,617 aacres of opeen space, neearly 230,0000 square feeet of
building space deddicated to rrecreationaal/educationnal purposees distributted among 104
sites. Other facilitiees include nnine commuunity pools,, four splassh parks, 5118 picnic taables,
153 barbeque grills, three ammphitheaters, 54 basebball/softball fields, 53 football/sooccer
fields, 400 basketballl courts, 111 volleyball courts, 40 tennis courts, seven sskate parks, and
five dog parks. The park systemm also provvides and mmaintains 1115 acres of paths and ttrails
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for pedestrians and bicyclists. The details of each facility are reported in Figure 12-1. The
City has not provided the condition of its PARCS facilities.
Community and neighborhood centers, gymnasiums, courts, playfields, pools,
amphitheaters and various other structures are available for rent. Rental fees for semi-
public and nonprofit organizations are lower than those for private groups and
organizations. City residents pay the same fees as non-residents. Private or nonprofit
groups requesting to schedule special events at the neighborhood center, park, or
playground facilities may be required to provide security guards from a certified security
agency, police officers from the Police Department or additional recreation leaders.62 The
number of security guards, police officers, or recreation leaders required is determined by
the type of event and the estimated number of attendees. The PARCS director is authorized
to waive the user fee for special events that are determined to be beneficial to the City of
Fresno.
The City Of Fresno presently operates three regional parks.
The Regional Sports Complex is located at Jensen and West Avenues and is an 114.3-
acre sports center. This park contains six softball and nine soccer fields. In addition, it also
has an 8.68-acre paintball shooting complex. The PARCS Department offers softball
leagues and tournaments for approximately 1,380 teams each year. The sports complex
also conducts a number of major music concerts throughout the year.
Roeding Park has evolved into a regional park since its inception in 1903. Although
originally intended as a large community park that would provide picnicking and
recreation space for Fresno residents, the addition of Storyland, Playland and the Fresno
Chaffee Zoo have turned this into a major regional park site. This park now services a
significant number of guests who live outside of Fresno and visit the park for the major
attractions located at the facility.
Woodward Park is a 300-acre site that contains the Rotary Amphitheater, the Shinzen
Japanese Garden, numerous walking trails, picnic shelters and serves as a gateway to the
San Joaquin River. Because of its size and mature trees, this facility draws thousands of
visitors for exercise and major cultural arts functions.
The City of Fresno also owns Camp Fresno and Camp Fresno Junior in the Sierra Nevada
Mountains. Camp Fresno is a family oriented facility open from late May through October.
The facility is comprised of 51 rental cabins, consisting of 22 two-bedroom cabins with
indoor toilets and 29 one-bedroom cabins with central toilets located 200 feet away.
Although rates are lower for city residents, they all include a City of Fresno Capital
Improvement Surcharge to pay for needed repairs and upgrades. All cabins are equipped
with electricity and running water and have unscreened porches, an outdoor three-burner
propane stove, barbeque pit, picnic table, and campfire ring. Inside each cabin are a wood-
burning stove, table and stools. Each cabin has an assigned 12-inch by 12-inch by eight-
inch cold locker in a walk-in refrigerator located behind the camp office. Washing machines
and showers are centrally located throughout the camp. A large social hall is available for
62City of Fresno, Parks, Recreation and Community Services Master Fee Schedule, 2013.
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meetings and recreational activities. Camp Fresno programs include nature activities,
crafts, campfire programs, movies, and family games.
Adjacent to Camp Fresno is Camp Fresno Junior, a group facility that houses up to 90
people and is made available for organized groups and large families. It includes two
dorms, three counselor cabins, dining pavilion, fully equipped kitchen, and shower house
with washing machines.
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Figure 12-1: City of Fresno Park and Recreation Facilities
Facility Location Size Owner Maintained Hours Open Purpose/Amenities
18 hole, driving range, practice
5440 E. Shields,
Airways Municipal 96 City of Dawn to putting green, Coffee Shop and
Fresno CA City of Fresno
Golf Course acres Fresno dusk pro shop. Fees charged per
93727
round of golf.
Olympic size pool, wader pool,
BBQ, picnic table, volleyball
5440 E. Shields, Summer:
Airways City of court, diving boards, changing
Fresno CA NP City of Fresno 1pm - 5pm
Swimming Pool Fresno rooms, tetherball courts, shuffle
93727 daily
board, shaded area and
benches.
1515 E.
Alfonso Hernandez Divisadero St. City of
City of Fresno Dawn-10PM Recreation room, computer lab
Youth Center Fresno, CA Fresno
93721
Turf areas, playground, baseball
5897 E. & softball fields, football &
Belmont, 15 City of soccer fields, field lights, picnic
Al Radka Park City of Fresno Dawn - 10PM
Fresno, CA Acres Fresno
tables & BBQ, shade structures,
93727
restrooms, community garden.
Belcher 2158 E. Alluvial,
5.86 City of Mon - Sun Turf areas, playground, picnic
Neighborhood Fresno, CA City of Fresno
acres Fresno 7am - 10 pm tables & BBQs, restrooms.
Park 93720
1329 E.
Florence, 1.75 City of Pocket park with turf areas,
Bigby Villa City of Fresno Dawn-Dusk
Avenue, Fresno, acres Fresno playground.
CA 93706
California/Mayor/ .13 City of Pocket park with a picnic table
City of Fresno Dawn-Dusk
A acres Fresno & BBQ.
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Facility Location Size Owner Maintained Hours Open Purpose/Amenities
California/Tupma California Ave & .95 City of Pocket park with 3 picnic table
City of Fresno Dawn-Dusk
n Tupman Ave acres Fresno & a BBQ.
California/Elm 1802 E. 2.12 City of Mon - Fri Gymnasium, meeting rooms,
City of Fresno
Gym California Ave. acres Fresno 9am - 8 pm kitchen.
51 rental cabins with wood
burning stove, table and stools.
53849 Dinkey BBQ pit, picnic table and
Creek Rd., 40 City of Late May - campfire ring. Cold lockers in a
Camp Fresno J & J Deaver
Shaver Lake, acres Fresno Late Oct walk-in refrigerator, washing
93664 machines and showers located
throughout camp. Recreation
hall.
53849 Dinkey Two dorms, three counselor
Camp Fresno Creek Rd., City of Late May - cabins, dining pavilion, fully
J & J Deaver
Junior Shaver Lake, Fresno Late Oct equipped kitchen and shower
93664 house with washing machines.
Fresno Fresno Flood
Carozza 4921 E. Olive,
Flood Control Turf areas, playground, baseball
Neighborhood Fresno, CA 6 acres Dawn - 10PM
Control District & City & softball fields, restrooms
Park 93727
District of Fresno
Turf areas, playground, baseball
Cary 4750 N. Fresno & softball fields, football &
8.8 City of
Neighborhood Street, Fresno, City of Fresno Dawn - Dusk soccer fields, in-line hockey
acres Fresno
Park CA 93721 court, tennis courts, picnic
tables & BBQs, restrooms.
.98 City of Pocket Park. Turf area, picnic
Centex Park 5626 E. Burns City of Fresno Dawn-Dusk
acres Fresno tables.
1225 S Crystal, Turf areas, playground,
2.33 City of
Chandler Fresno, CA City of Fresno Dawn - Dusk basketball courts, picnic tables
acres Fresno
93706 & BBQs.
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Facility Location Size Owner Maintained Hours Open Purpose/Amenities
Turf areas, playground, baseball
& softball fields, football &
50 N. Calaveras,
2.33 City of soccer fields, basketball court,
Dickey Playground Fresno, CA City of Fresno Dawn - 10PM
acres Fresno tennis courts, splash park,
93721
picnic shelter, picnic tables &
BBQs, restrooms.
Fresno Fresno Flood May -
4257 W.
Dog Park (Basin 1.5 Flood Control November:
Alamos, Fresno, Turf areas, picnic tables.
AH1) acres Control District & City 7am - 10pm
CA 93722
District of Fresno daily
Turf areas, baseball & softball
1621 S. Cedar, East Fresno
East Fresno Boys 4.63 City of fields, football & soccer fields,
Fresno, CA Boys & Girls M-F
& Girls Club acres Fresno basketball court, gymnasium,
93702 Club
social hall, kitchen, restrooms.
2330 Fresno St.,
4.2 City of Turf areas, amphitheater.
Eaton Plaza Fresno, CA City of Fresno Dawn - Dusk
acres Fresno Movies in the Park program
93721
Turf areas, playground, baseball
& softball fields, football &
soccer fields, basketball court,
Einstein 3566 E. Dakota, Park Dawn -
15.02 City of tennis courts, volleyball courts,
Neighborhood Fresno, CA City of Fresno 10PM Center
acres Fresno learner pool, picnic shelter,
Center 93726 3PM - 7PM
picnic tables & BBQs, social hall,
computer lab, kitchen,
restrooms.
1343 E. Turf areas, basketball courts,
El Dorado Mini Barstow, 2.5 City of Center 3PM - picnic tables, computer lab,
City of Fresno
Park Fresno, CA acres Fresno 7PM restrooms. Recreational
93710 activities.
Wathen Ave & 1.43 City of
Emerald Park City of Fresno Dawn - Dusk Pocket Park. Turf area.
Dewey Ave acres Fresno
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Facility Location Size Owner Maintained Hours Open Purpose/Amenities
Turf areas, playground, baseball
4265 W.
fields, splash park, picnic
Figarden Loop Figarden Dr., City of
5 acres City of Fresno Dawn - 10PM shelter, picnic tables & BBQs,
Park Fresno, CA Fresno
shade structures, restrooms,
93722
and concession building.
Turf areas, playground, baseball
& softball fields, football &
Park Dawn -
soccer fields, basketball court,
Fink-White 535 S.Trinity, 10PM Center
8.62 City of learner pool, wading pool,
Neighborhood Fresno, CA City of Fresno 3PM - 7PM
acres Fresno picnic shelter, picnic tables &
Center 93706 Summer Pool
BBQs, picnic shelter, social hall,
Hours 1-5pm
computer lab, kitchen,
restrooms.
First Ave. & .08 City of
First & Nevada City of Fresno Dawn - Dusk Pocket Park. Turf area
Nevada Ave. acre Fresno
Turf areas, playground, baseball
Pool:
& softball fields, football &
Seasonal
Frank H. Ball 760 Mayor soccer fields, basketball courts,
3.31 City of Park: Dawn -
Neighborhood Street, Fresno, City of Fresno gymnasium, swimming pool,
acres Fresno 10PM Center:
Center CA 93706 wading pool, picnic tables &
3PM - 8PM
BBQs, social hall, computer lab,
Sat. 12-5PM
kitchen, restrooms.
2024 E. Pontiac Turf areas, basketball courts,
1.15 City of Park Dawn -
Granny's Park Way, Fresno, CA City of Fresno picnic tables & BBQs.
acres Fresno 10PM
93726 Recreational facility.
1.05 City of
Habitat Park 300 W. Garrett City of Fresno Dawn - Dusk Pocket Park. Turf area
acres Fresno
Highway City 5140 N. State Science
2.0 City of
Neighborhood Street, Fresno, City of Fresno Workshop 3-
acres Fresno
Center CA 93722 7 pm Mon-Fri
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CITY OF FRESNO MUNICIPAL SERVICE REVIEW
Facility Location Size Owner Maintained Hours Open Purpose/Amenities
Hinton Turf area, baseball/softball
2385 S. 6.23 City of
Neighborhood City of Fresno Dawn -Dusk fields, soccer/football field,
Fairview acres Fresno
Park tennis courts, picnic table, BBQ.
Turf areas, playground, baseball
& softball fields, football &
soccer fields, basketball courts,
tennis courts, lawn bowling
Holmes 212 S. First Park Dawn - court, outdoor stage,
9.75 City of
Neighborhood Street, Fresno, City of Fresno 10PM Center gymnasium, wading pool, picnic
acres Fresno
Center CA 93702 3PM - 7PM tables & BBQs, social hall,
computer lab, kitchen,
restrooms. Full service center
offering many recreational
programs.
Turf areas, playground, baseball
Holman 6522 N. West & softball fields, football &
4.8 City of
Neighborhood Avenue, Fresno, City of Fresno Dawn - Dusk soccer fields, volleyball courts,
acres Fresno
Park CA 93711 picnic tables & BBQs, picnic
shelter, restrooms
319 W.
Hyde
Florence, 16.03 City of
Neighborhood City of Fresno Dawn-Dusk Turf areas
Fresno, CA acres Fresno
Park
93706
Turf areas, playground,
Kaiser 425 E. Alluvial, baseball/ softball fields, football
4.66 City of
Neighborhood Fresno, CA City of Fresno Dawn - Dusk & soccer fields, basketball court,
acres Fresno
Park 93720 court lights, skate park, picnic
tables & BBQs, restrooms.
Kearney/Fresno Kearney Blvd. & 1.0 City of Pocket Park. Turf area,
City of Fresno Dawn - Dusk
Park Fresno St. acres Fresno Playground.
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CITY OF FRESNO MUNICIPAL SERVICE REVIEW
Facility Location Size Owner Maintained Hours Open Purpose/Amenities
Keith Tice 8695 N.
Turf areas, playground,
Memorial Millbrook, 5.0 City of
City of Fresno Dawn - Dusk par/fitness course, picnic tables
Neighborhood Fresno, CA acres Fresno
& BBQs, restrooms.
Park 93720
Turf areas, playground, football
Koligian 5165 W.
7.06 City of & soccer fields, basketball court,
Neighborhood Alluvial, Fresno, City of Fresno Dawn - Dusk
acres Fresno picnic tables & BBQs,
Park CA 93722
restrooms.
Turf areas, playground, baseball
& softball fields, football &
Park Dawn -
soccer fields, basketball courts,
1516 E. 10PM Center
Lafayette handball courts tennis courts,
Princeton, 4.5 City of 3PM - 7PM
Neighborhood City of Fresno volleyball courts, wading pool,
Fresno, CA acres Fresno Summer
Center picnic tables, social hall,
93704 Wader Pool
computer lab, kitchen,
1-5pm
restrooms. Recreational
programs.
4424 N
Large
Millbrook, 6.91 City of Turf areas, football & soccer
Neighborhood City of Fresno Dawn - Dusk
Fresno, CA acres Fresno field
Park
93726
Northwest
Lewis S. Eaton corner of City of
4 miles City of Fresno Dawn - Dusk Benches, bridges, trees
Trail Woodward Fresno
Park
Turf areas, playground, baseball
& softball fields, football &
Lions 4650 N. Marks, Park Dawn -
9.02 City of soccer fields, tennis courts,
Neighborhood Fresno, CA City of Fresno 10PM Skate
acres Fresno volleyball courts, court lights,
Park 93705 3PM - 7PM
picnic tables & BBQs,
restrooms, skate park.
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CITY OF FRESNO MUNICIPAL SERVICE REVIEW
Facility Location Size Owner Maintained Hours Open Purpose/Amenities
Turf areas, playground, baseball
& softball fields, football &
Logan 5450 N. Santa
9.0 City of soccer fields, basketball court,
Neighborhood Fe, Fresno, CA City of Fresno Dawn - Dusk
acres Fresno tennis courts, court lights,
Park 93722
picnic tables & BBQs,
restrooms.
Turf areas, playground, baseball
Fresno Fresno Flood Dawn - Dusk
Manchester 3414 N. Fresno & softball fields, football &
9.40 Flood Control Summer
Neighborhood Street, Fresno, soccer fields, basketball court,
acres Control District & City Wader Pool
Park CA 93726 wading pool, picnic tables &
District of Fresno 1-5pm
BBQs, restrooms.
Maple/Huntington Maple Ave. & .03 City of
City of Fresno Dawn - Dusk Pocket park. Turf area.
Park Huntington Ave. acre Fresno
Maple/McKinley Maple Ave. & .11 City of Pocket park. Turf area with
City of Fresno Dawn - Dusk
Park University Ave. acre Fresno picnic table.
Turf areas, playground, football
Martin Ray Reilly 3.38 City of & soccer fields, basketball court,
770 N. Chestnut City of Fresno Dawn-Dusk
Park acres Fresno picnic tables & BBQs, splash
pad, restrooms.
Turf areas, playground,
Pool:
1350 E. swimming pool, social hall,
Seasonal
Mary Ella Brown Annadale, 8.67 City of community center, computer
City of Fresno Park: Dawn -
Community Center Fresno, CA acres Fresno lab, kitchen, restrooms,. Open
10PM Center:
93706 recreation activities and Fresno
3PM - 7PM
Connect Computer Lab.
Mayor & Ventura Mayor Ave. & .11 City of
City of Fresno Dawn – Dusk Pocket park. Turf area
Park Ventura Ave. acre Fresno
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FRESNO LAFCO
CITY OF FRESNO MUNICIPAL SERVICE REVIEW
Facility Location Size Owner Maintained Hours Open Purpose/Amenities
Turf areas, playground, baseball
& softball fields, football &
soccer fields, basketball courts,
Melody 5935 E. Shields, Park Dawn -
City of tennis courts, court lights, skate
Neighborhood Fresno, CA 5 acres City of Fresno 10PM Center
Fresno park, picnic tables & BBQs,
Center 93727 3PM - 7PM
social hall, computer lab,
kitchen, restrooms. Crafts
programs.
Turf areas, playground, baseball
& softball fields, football &
soccer fields, basketball courts,
bike park, swimming pool,
Pool:
picnic tables & BBQ, community
4670 E. Butler, Seasonal
Mosqueda 17.35 City of center, social hall, computer lab,
Fresno, CA City of Fresno Park: Dawn -
Community Center acres Fresno library, auditorium with stage,
93702 10PM Center:
meeting & conference rooms,
3PM - 7PM
kitchen, restrooms. Senior hot
meals & recreation, dance
classes, martial arts, Fresno
Connect Computer Lab.
Turf areas, playground, baseball
Nielsen 1730 S. Fruit,
4.44 City of & softball fields, basketball
Neighborhood Fresno, CA City of Fresno Dawn – Dusk
acres Fresno courts, picnic tables & BBQs,
Park 93706
restrooms.
Ninth & Tulare .15 City of
City of Fresno Dawn – Dusk Pocket park. Turf area
Park acre Fresno
Turf areas, playground, baseball
Orchid 3420 W. Fir, & softball fields, football &
5.63 City of
Neighborhood Fresno, CA City of Fresno Dawn – Dusk soccer fields, tennis courts,
acres Fresno
Park 93711 picnic tables & BBQs,
restrooms.
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CITY OF FRESNO MUNICIPAL SERVICE REVIEW
Facility Location Size Owner Maintained Hours Open Purpose/Amenities
5550 N. Fresno Turf areas, playground,
Oso de Oro Lake Fresno Flood
Forkner, 9.6 Flood basketball courts, lake, picnic
Neighborhood Control
Fresno, CA acres Control tables & BBQs, covered
Park District
93711 District pavillion, restrooms.
Pilibos 4945 E. Lane, Turf areas, playground, football
13.29 City of
Neighborhood Willow, Fresno, City of Fresno Dawn - 10PM & soccer fields, picnic tables &
acres Fresno
Park CA 93730 BBQs, picnic shelter, restrooms.
Turf areas, playground,
basketball courts, learner pool,
Mon-Fri: social hall with a stage,
7170 N. San
Pinedale .50 City of 8am-8:30pm computer lab, kitchen,
Pablo, Fresno, City of Fresno
Community Center acre Fresno Pool: restrooms, parking lot. Senior
CA 93650
Seasonal nutrition program, open
recreation activities, youth club,
special summer activities.
Fresno Ave. & .75 City of Pocket park. Turf area, picnic
Pride Park City of Fresno Dawn – Dusk
California Ave. acre Fresno table, BBQ.
Turf areas, playground, baseball
Pool: & softball fields, football &
Quigley 808 W. Dakota, Seasonal soccer fields, basketball courts,
8.6 City of
Neighborhood Fresno, CA City of Fresno Park: Dawn - tennis courts, volleyball courts,
acres Fresno
Center 93705 10PM Center: court lights, learner pool, picnic
3PM - 7PM tables & BBQs, computer lab,
kitchen, restrooms.
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FRESNO LAFCO
CITY OF FRESNO MUNICIPAL SERVICE REVIEW
Facility Location Size Owner Maintained Hours Open Purpose/Amenities
Turf areas, playground, baseball
& softball field, football &
soccer field, picnic tables,
Radio 2233 N First
8.6 City of restrooms, parking lot. Home to
Neighborhood Street, Fresno, City of Fresno Dawn – Dusk
acres Fresno the Fresno Arts Center which
Park CA 93703
displays art exhibits, provides
classes, workshops, concerts,
festivals.
Tues- Sun
Home to the Garden of the Sun
10AM-4PM
Demonstration Garden,
1944 N. Winery 5.0 City of Discovery Garden of the
Reedy Park Discovery Center science
Ave acres Fresno Center/ UCCE Sun Mon,
education center and Deutsch
Wed Fri, Sat
Cactus Garden
9AM-1PM
Turf areas, playgrounds,
baseball & softball fields,
1707 W. Jensen football & soccer fields, field
Regional Sports 114.3 City of
Avenue, Fresno, City of Fresno Dawn - 10PM lights, vert ramp, paintball zone,
Complex acres Fresno
CA 93706 concession booth, picnic tables
& BBQs, picnic shelter,
restrooms.
18 hole, driving range, practice
7672 N. putting green, coffee shop, pro
Riverside
Josephine, 110 City of Dawn to shop, restrooms, parking. New
Municipal Golf Ebit Inc.
Fresno, CA acres Fresno dusk cart paths, greens and water
Course
93722 hazard. Fees charged per round
of golf.
401 E.
Robinson
Browning, 4.97 City of Turf areas, playground, football
Neighborhood City of Fresno Dawn – Dusk
Fresno, CA acres Fresno & soccer field, picnic tables.
Park
93710
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FRESNO LAFCO
CITY OF FRESNO MUNICIPAL SERVICE REVIEW
Facility Location Size Owner Maintained Hours Open Purpose/Amenities
Turf areas, playgrounds,
football & soccer fields,
April -
handball courts, tennis courts,
October:
890 W. Belmont volleyball court, court lights,
Roeding Regional 157 City of 6am - 10pm
Ave., Fresno, CA City of Fresno par/fitness course, dog park,
Park acres Fresno November -
93728 lake, picnic shelter, picnic tables
March: 6am -
& BBQs, restrooms. Home to the
7pm
Fresno Chaffee Zoo and Rotary
Storyland and Playland.
Turf areas, playground, baseball
& softball field, football &
soccer field, basketball courts,
Romain 745 N. First skate park, gymnasium, learner
8.02 City of
Neighborhood Street, Fresno, City of Fresno pool, picnic tables & BBQs,
acres Fresno
Center CA 93702 social hall, computer lab,
kitchen, restrooms. Full service
center providing swim lessons,
youth leagues, day camps.
Turf areas, playground, baseball
Rotary East 6464 N. Cedar, & softball field, football &
City of
Neighborhood Fresno, CA 5 acres City of Fresno Dawn – Dusk soccer field, tennis courts,
Fresno
Park 93710 picnic tables & BBQs,
restrooms.
Turf areas, playground, baseball
3202 E. Fresno Fresno Flood
Rotary West & softball fields, football &
Gettysburg, 14.5 Flood Control
Neighborhood Dawn – Dusk soccer field, basketball court,
Fresno, CA acres Control District & City
Park picnic tables & BBQs,
93726 District of Fresno
restrooms.
.89 City of
Safety Park 6350 N. Rafael City of Fresno Dawn – Dusk Pocket park. Turf area
acre Fresno
PARKS AND RECREATION cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 137
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CITY OF FRESNO MUNICIPAL SERVICE REVIEW
Facility Location Size Owner Maintained Hours Open Purpose/Amenities
511 N. San
San Pablo Family City of
Pablo, Fresno, 2 acres City of Fresno Dawn – Dusk Playground
Park Fresno
CA 93701
Turf areas, playground, baseball
2065 E.
Selma Layne & softball field, football &
Shepherd, 9.6 City of
Neighborhood City of Fresno Dawn – Dusk soccer field, basketball court,
Fresno, CA acres Fresno
Park picnic shelter, picnic tables &
93720
BBQs, restrooms.
8090 N. Palm,
1.0 City of
Spano Park Fresno, CA City of Fresno Dawn – Dusk Turf areas, picnic tables
acres Fresno
93710
Turf areas, playground, baseball
Stallion 6245 N. Polk, & softball field, football &
5.65 City of
Neighborhood Fresno, CA City of Fresno Dawn – Dusk soccer field, basketball court,
acres Fresno
Park 93722 picnic tables & BBQs,
restrooms.
Fresno Street
City of Paved trail, benches, large
Sugar Pine Trail and Nees City of Fresno Dawn – Dusk
Fresno variety of trees
Avenue
Turf areas, playground, baseball
Sunnyside 5279 E. Butler,
City of & softball field, football &
Neighborhood Fresno, CA 5 acres City of Fresno Dawn – Dusk
Fresno soccer field, picnic tables &
Park 93702
BBQs, restrooms.
Turf areas, playground, wading
M-F 3PM -
Sunset 1345 W. Eden, pool, picnic tables & BBQ, social
.97 City of 7PM Wader
Neighborhood Fresno, CA City of Fresno hall, community center,
acres Fresno Pool:
Center 93706 computer lab, kitchen,
Seasonal
restrooms.
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FRESNO LAFCO
CITY OF FRESNO MUNICIPAL SERVICE REVIEW
Facility Location Size Owner Maintained Hours Open Purpose/Amenities
Turf areas, playground, baseball
& softball fields, basketball
courts, volleyball courts, field
lights, picnic tables & BBQ,
gymnasium, social hall,
770 N. San community center, meeting &
Ted C. Wills 6.3 City of M-F 7AM -
Pablo, Fresno, City of Fresno conference rooms, computer
Community Center acres Fresno 8PM
CA 93728 lab, library, kitchen, restrooms,
parking lot. Senior nutrition
program, EOC Headstart
program, and the Valley Art and
Science Academy (VASA)
Charter School.
Turf areas, playgrounds,
1890 E. football & soccer field,
Todd Beamer
Plymouth Way, 6.4 City of 6am - 10 pm basketball courts, par & fitness
Neighborhood City of Fresno
Fresno, CA acres Fresno daily course, skate park, splash park,
Park
93720 dog park, picnic tables & BBQs,
restrooms.
Fresno
Fresno Flood Turf areas, playgrounds,
5100 E. 3.0 Flood
Trolley Creek Park Control amphitheater, picnic shelters &
Huntington acres Control
District BBQs, restrooms
District
4085 N. Angus
University
Str. & , Joaquin 2.63 City of
Neighborhood City of Fresno Dawn- Dusk Turf areas, picnic tables & BBQs
Pl., Fresno, CA acres Fresno
Park
93726
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CITY OF FRESNO MUNICIPAL SERVICE REVIEW
Facility Location Size Owner Maintained Hours Open Purpose/Amenities
Turf areas, playgrounds,
baseball & softball field, football
3861 West
Victoria West & soccer fields, basketball
Clinton Avenue, 20 City of 6am - 10 pm
Neighborhood City of Fresno courts, court lights, dog park,
Fresno, CA acres Fresno daily
Community Park shade structures & picnic
93722
shelter, picnic tables & BBQs,
restrooms.
Turf areas, playgrounds,
4695 E.
Vinland baseball & softball field, football
Gettysburg, 7.5 City of
Neighborhood City of Fresno Dawn - 10PM & soccer fields, tennis courts,
Fresno, CA acres Fresno
Park court lights, picnic tables &
93726
BBQs, restrooms.
4963 E. Balch,
Willow/Balch 1.15 City of Turf areas, playground, picnic
Fresno, CA City of Fresno Dawn- Dusk
Pocket Park acres Fresno tables & BBQs
93727
Turf areas, playgrounds, lake,
Spring & Shinzen Japanese Garden with
Summer: tea house, par & fitness course,
7775 N. Friant
Woodward 300 City of 6am -10pm dog park, shade structures &
Road, Fresno, City of Fresno
Regional Park acres Fresno Fall & picnic shelters, picnic tables &
CA 93720
Winter: BBQs, amphitheater, restrooms.
6am - 7pm BMX track, Disc Golf Course,
Art of Life Garden .
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FRESNO LAAFCO
CITYY OF FRESNO MUNICIPAL SERVICE REVIEW
INFFRASTRUCTUREE NEEDSS
PARCCS capital immprovemennt project buudget totaleed $5.8 milliion for FY 2016. The largest
projects included ann 8.3-acre uuniversally aaccessible park for childdren and yooung adults with
various disabilities and a cultuural arts disstrict park. TThe projectts are fundeed through State
of Califoornia Deparrtment of RRecreation, Propositionn 84 Statewwide Park PProgram grrants.
Additionnally, $2,707,400 was budgeted ffor improveements at HHolmes Parrk, Pilibos Park,
Radio PPark, Vinlannd Park, MMosqueda CCenter, Frank H. Balll, and Califfornia and Elm
Gymnasiium. The pprojects aree funded thrrough Statee of Californnia, Housinng Related PParks
Programm, Prop 1C grants.
An 8.3-acre parccel for a uniiversally-acccessible park was purcchased in 1990. This fuuture
park, hass been identified as thee City of Fresno's first uuniversally aaccessible ppark for chilldren
and young adults wwith variouss disabilitiess. The basebball field, sooccer field, splash padd, and
play struuctures willl be designed so that children annd young addults of all abilities wiill be
able to innteract and play togethher. The Cityy budgeted $80,400 in FY 2013 annd $6,289,000 in
FY 20144 for the connstruction oof the park.. The park will be commpleted in the fall of 22015.
The Cityy is still searrching for fuunding sourrces to ensuure continueed care andd maintenannce of
the parkk after consttruction.
In Maarch 2012, PARCS wass awarded aa $2.5 millioon grant froom Proposittion 84 Rouund II
for a parrk in the Cuultural Arts District. Baased on commmunity connsensus, thee proposed park
features will include playgrounnd equipmeent, an outddoor workouut station, aa multi-use field,
a small stage, picniic tables, annd art. Projject costs aare budgeteed at $982,6600 in FY 22013,
$335,800 in FY 2014, $30,600 iin FY 2015, and $1,1855,300 in FY 22016.
In Maarch 2012, PARCS wass also successfully awaarded $3,165,365 from the Propossition
84 Rounnd II fundinng, for the cconstructionn of the neww 3.38-acree Martin Raay Reilly Paark at
750 N. CChestnut AAve. The neew park waas dedicated on Januaary 31, 20115 and conntains
basketbaall and voolleyball coourts, shadded playgroound, multi-use fieldd, splash ppark,
restroomms, and a walking path. The City bbudgeted $44,800 in FY 2013 and $$3,159,600 iin FY
2014 forr the construuction of the park.
Other capital immprovementt projects pllanned for tthe next fivee years incluude extension of
the Lewwis Eaton TTrail, imprrovements to the ammphitheater in Woodwward Park, and
concretee/asphalt reepair.
CHAALLENGEES
The Departmennt is still eexperiencingg negative consequennces causedd by the reecent
economiic recessionn. Due to buudget constrraints, varioous PARCS’ structural needs couldd not
be fundeed in FY 2014. Additionally, the DDepartment has experieenced a 68 percent staaffing
reductioon since FY 22008, preseenting a challlenge for mmaintenancee and adequuate operation of
the parkks and recreation facilitties.
Additionally, deccreased funnding availabbility causeed a reductioon of Seniorr Hot Meals sites
in the City from 15 to six. Five of these remmaining six sites must now continnue providinng 80
percent of the mealss previouslyy supplied bby the originnal 15 locattions.
The ggreatest chaallenge, howwever, is too identify fuunding to coonstruct annd maintain new
neighborrhood parkss.
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FRESNO LAAFCO
CITYY OF FRESNO MUNICIPAL SERVICE REVIEW
SERVICEE ADEQUACY
This section revviews indiccators of service adequuacy of parrk and recrreation servvices,
specificaally developped parklannd per 1,0000 residents,, the abilityy to meet thhe City’s Genneral
Plan poliicies, operating expendditures per aacre, and otther capacitty constraints.
The nnational paark acreage standard pper the Natiional Recreaation and PPark Associaation
(NRPA) is four acrees per 1,000 residentss. NRPA is ccurrently leeading a cammpaign to mmove
towards a goal of ffive acres pper 1,000 reesidents. Thhe City prevviously hadd a General Plan
standardd to providde three accres of parrkland per 1,000 resiidents, withh 0.75 acrees of
neighborrhood parkks per 1,0000 residents, 0.25 accres of commmunity parks per 11,000
residentts, and two aacres of reggional parkss per 1,000 residents. The City’s GGeneral Plann has
a newly adopted immplementattion policy wwith a stanndard of at least threee acres of ppublic
parklandd per 1,000 residents ffor pocket, neighborhoood, and commmunity paarks througghout
the City, while strivving for fivee acres per 1,000 residdents for all parks throoughout the City,
subject tto identifyinng additional funding ffor regionall parks andd trails.63 TTo comparee, the
countywwide parklannd ratio is aabout sevenn acres perr 1,000 residents with the countyywide
goal beinng 13.7 acrees per 1,0000 residents.
The CCity of Fressno owns 1,,617 acres oof all categoories of parrkland that equates to 3.18
acres peer 1,000 ressidents, whhich is slighhtly higher than the 20025 Generaal Plan targget of
three acrres per 1,0000 residentss. The City hhas about 2298 acres644 of neighboorhood parkkland
(0.59 acrres per 1,0000 residentts), 141 acrees65 of commmunity parkkland (0.27 acres per 11,000
residentts), and 8777 acres of reegional parkkland (1.7 aacres per 1,000 resideents).66 Thee City
does not meet its service levvel goals ass outlined in the 20225 General Plan regarrding
neighborrhood and regional paark acreagee per 1,000 residents. With the adoption oof the
General Plan, the Ciity will requuire an addiitional 3,8555 acres of pparks from all categoriies to
meet thee goal of fivee acres of ussable parklaand per 1,0000 residentss.
Althoough overaall the Cityy exceeds tthe minimuum standarrd of 3.0 aacres per 11,000
residentts, the provision of parkkland is uneeven across the city. Thhe inclusion of open cammpus
schools aas parklandd increases tthe disparitty of park sppace in the establishedd neighborhhoods
north annd south of Shaw Avennue. Newer neighborhooods with larger amouunts of parkkland
(due to evolving paarkland reqquirements for new ddevelopments and enhanced finanncing
through communityy facilities ddistricts andd homeowneers associattions) increase the cityywide
average and obscuure the paarkland deeficiencies of many FFresno neighborhoods. In
particulaar, many of the central neighborhooods in Fressno lack connvenient acccess to parkkland
and fall wwell below the 3.0-acrre standard.. The City iis reportedlly identifyinng opportunnities
to add ppark space tto establishhed neighboorhoods thrrough mechhanisms succh as co-locaation
with othher facilities and joint use agreemeents.
63POSS-1-a..
64Excludingg ponding basinns.
65 Excludingg ponding basinns.
66 City of Frresno, General PPlan, Parks and Open Space, 20014, p. 5-10.
PARK ANDD RECREATIOON cÉÄ|vç VÉÇáââÄÄà|Çz TááÉv|tàxxá? __V 142
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CITY OF FRESNO MUNICIPAL SERVICE REVIEW
In FY 13-14, PARCS spent about $7,447 in operating expenditures per acre.67 The
National Recreation and Park Association (NRPA) Special Report indicates that among the
agencies throughout the country that operated between 1,001 and 3,500 acres of parkland
and responded to the NRPA survey in 2012, the median agency spent about $4,513 per
acre. It should be noted that the cost of operation of parkland is greatly dependent on the
type of facilities made available at the park. For example, a facility with restrooms,
recreation centers and recreation programs may be more costly to maintain and operate
than a park that only requires occasional landscaping.
PARCS generally has minimally adequate capacity to provide services to its residents.
Limited financing is the most significant capacity constraint for the Department. Capital
improvements have been deferred in recent budget years leading to aged infrastructure
that is continually more costly to maintain the older it becomes. Additionally, the
Department has to rely heavily on volunteers for maintenance work, which although
efficient as indicated by low operational cost per acre is an unreliable and unsustainable
practice in the long-term. Capacity to provide adequate services is further limited by an
uneven distribution of parkland in the City, where southern portions of Fresno appear to
be underserved.
67 General Fund expenditures for PARCS in FY 13-14.
PARK AND RECREATION cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 143
FRESNO LAAFCO
CITYY OF FRESNO MUNICIPAL SERVICE REVIEW
1 3 . LAAW ENNFORRC E MM E N TT SE RRV I CEES
SERVICEE OVERVVIEW
Fresnno Police DDepartment (PD) is ressponsible foor enforcemment of statte and city laws,
investigaation of crimmes, apprehhension of ccriminals, reeducing traaffic collisionns, maintennance
of ongoiing crime pprevention pprograms, aand buildinng ties withh the community and oother
local laww enforcemment agencies. Althouggh patrol iss the most visible servvice, Fresno PD
providess a host of other public safeety servicees includinng dispatchh, crime sscene
investigaation, bombb squad, Sppecial Weappons and TTactics (SWWAT), Careerr Criminal Auto
Theft teeam (CCAT), canine, temporary prisoner hholding, traaining, andd unique ppatrol
operatioons among oother services.
The PPatrol Divission covers an area of 104.8 squarre miles proovided by oofficers travveling
by vehiccle, bicycle, horse (mouunted patrol), helicopteer (Skywatcch), and on foot. Fresnno PD
officers, staff and vvolunteers work in partnership with Fresnno communnities underr the
communnity policingg model. Soome of theese partnership prograams include Crime WWatch,
Crime SStoppers, Bringing Broken Neighhborhoods Back to LLife, Neighbborhood WWatch,
V.O.I.C.E. (Violators of Innocentt Children EEradicated) Task Forcee, Citizens onn Patrol, and the
Mayor's Gang Preveention Initiaative (MGPI)).
Dispaatch services include receiving 9911 calls aand notifyinng responsee units thrrough
emergenncy communnication sysstems. For fire and meedical emerrgencies, Frresno PD rooutes
calls to tthe Fresno County EMMS dispatch center whiich providees dispatch services for the
Fresno FFire Departmment and foor Americann Ambulancee for medicaal emergenccies.
Fresnno PD Crimme Scene Innvestigationns Bureau (CSIB) techhnicians provide evideence-
processing servicess for possibble DNA ressults, physioological fluiids, latent ffinger and palm
prints, serial numbber restorattions, and conduct prinnt comparissons to ideentified subjjects.
CSIB tecchnicians allso respondd to a wide array of ccrime scenees with a gooal of providing
photograaphic documentation, evidence pprocessing, and evideence collecttion servicees. In
additionn, the technicians provide narcotic,, arson, andd gang registtrations forr residents lliving
within thhe City of Frresno.
Bombb squad serrvices are pprovided byy the Fresno Police Exxplosive Orddnance Dispposal
(EOD) unit. The uniit’s explosivve ordnancee experts iddentify and defuse expplosives withh the
assistancce of bomb--sniffing doogs trained tto detect annd locate diifferent typees of explossives.
They prrovide SWAAT support for explossive entriess, booby-trrapped locaations, techhnical
assistancce, and use of robots foor searchingg purposes.
The SSWAT teamm handles coomplex, highh-risk searchh warrants and violentt confrontattions.
Fresno PPD’s SWAT team provides traditioonal counter-sniper serrvices, respponse to hosstage
situationns, barricadded suspeccts, armed subjects, wwarrant seervices, andd protectioon of
dignitariies. SWAT tteam membbers are traiined in speccial weaponns, as well aas verbal tactics.
Fresno SSWAT teamm also trainss with the ccrisis negotiiators from Fresno Pollice Departmment
and SWAAT teams froom allied aggencies.
Fresnno PD creatted the Careeer Criminall Auto Theftt (CCAT) teaam to condduct surveilllance
in high aauto theft aareas, serve outstandinng felony arrrest warrannts for susppects wanteed for
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vehicle theft and related crimes, seek out possible “chop shop” operations, and identify
crews of career criminals who are responsible for auto thefts in Fresno.
Fresno PD Canine Unit assists patrol and other specialized units with warrant arrests,
crimes in progress, building searches, suspect tracking, evidence location, high-risk vehicle
stops, and narcotics searches.
The Patrol Division and Missing Persons detectives coordinate finding people who may
be missing or lost. Fresno PD coordinates search teams with their Volunteer Services
Bureau including the Community Emergency Rescue Team, Citizens on Patrol, and with the
Fresno PD Chaplaincy.
City temporary PD holding services involves the prisoner processing and interviewing
of suspects taken into custody by Fresno PD. Once identified at Fresno PD, all adult
prisoners are transported to the Fresno County Jail for booking. Juvenile prisoners are
transported to the Fresno County Juvenile Justice Center for booking. The Fresno County
Jail and Juvenile Justice Center are operated and staffed by the County of Fresno.
The State Center Regional Training Center at Fresno City College provides the initial
academy for law enforcement officer as prescribed by state law. In-service training
including Advanced Officer Training and Perishable Skills Training for Fresno PD sworn
officers and all law enforcement agencies and personnel throughout the state is offered at
the Fresno Police Department Regional Training Center. Training classes are certified by
the State of California Commission on Peace Officer Standards and Training (POST).
Dispatch and Communications
The Fresno Police Department Communications Center is the first point of contact for a
majority of Fresno residents needing public safety services. Dispatchers answer both
emergency and non-emergency calls 24 hours a day, seven days a week. Members of the
unit are required to attend a basic dispatcher’s academy and then complete a 12-month “in-
house” training program as part of the selection and training process. Dispatchers also
complete a Communications Academy offered by the State Commission on Peace Officer
Standards and Training.
Over the past few years the number of “911 Emergency” calls received by the
communications center has steadily increased. During 2014, Fresno Police Department
received 409,784 emergency “911” calls and 540,315 non-emergency calls to the dispatch
center. After being entered into the computer-aided dispatch system (CAD), each call is
assigned a priority and then sent out to the field to be handled by officers.
The Real Time Crime Center (RTCC) was brought on line by the Fresno Police
Department in May 2015 to improve officer safety by providing officers responding to
critical incidents in the field, all available information while in route to the call. The RTCC,
which was established using private funding from contributors, integrates social media, the
Department’s Video Policing Unit, and several databases, to provide the most up-to-date
information available to officers. As of 2014, there were over 170 video policing cameras
within the City of Fresno. These cameras are placed in high crime areas in an effort to assist
in the identification and arrest of those involved in criminal activity. Additionally, they
serve as a visible policing presence to deter criminal activity in areas frequented by city
residents and visitors.
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In 2014, Fresno PD began field testing body worn cameras for sworn officers. These
cameras were being tested as a means of maintaining public trust while improving law
enforcement accountability. By mid-2015, nearly 130 body worn cameras were assigned
to sworn officers with plans to provide this equipment to 400 sworn members of Fresno
PD.
The Department’s Duty Office is staffed 24 hours per day and is tasked with monitoring
and making adjustments in patrol staffing to ensure the appropriate number of officers are
working during a given day and time. The Duty Office also reviews and approves all “on-
line” police reports received by the police department. As the Department was required to
downsize after 2010 due to budget challenges, the City has become more reliant on self-
reporting via the “E-reporting” program. In 2014, the Fresno Police Department reviewed
12,436 online reports.
Collaboration
Fresno PD holds membership in and/or collaborates with the following associations
and organizations:
International Association of Police Bureau of Alcohol, Tobacco, Firearms
Chiefs and Explosives
California Police Chief’s Association Board of State and Community
Corrections
Fresno Madera Police Chief’s
Association. California Emergency Management
Agency (Anti Human Trafficking Task
Major Cities Chiefs Association,
Force)
FBI Leadership Association
Central California Financial Crimes
Commission on Accreditation for Law Task Force, Central Valley Financial
Enforcement Association Crimes Task Force
High-Intensity Drug Traffic Areas California Highway Patrol
Association
Clovis Police Department
California Identification Remote
Fresno County Coroner’s Office
Access Network System
Superior Court of California
Chief Advisory Board
County of Fresno and Participating
Youth Advisory Committee
Agencies in the Electronic Probable
Care Fresno Cause Declaration
International Security Auditors District Fugitive Task Force
Control Association
California Intelligence Center
Society of Information Managers
Central California Internet Crimes
COPLINK Against Children Task Force
Air National Guard Financial Crimes Enforcement
Network 2009
CA Army National Guard
US Department of Treasury
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Family Healing Center Regional Public Safety Training Site
Fresno Methamphetamine Task Force Fresno County Probation Department
Federal OT Reimbursement Share net System Database
Joint Terrorism Task Force California Counter Drug Procurement
Program
Multi-Agency Gang Enforcement
Consortium California Law Enforcement Agencies
Public Health Institute Department of Veterans Affairs
Fresno PD maintains automatic and mutual aid agreements with the Department of
Transportation, Marjaree Mason Center, Inc., Central Unified School District, California
County Sheriffs and California Multi-Jurisdictional Methamphetamine Enforcement Teams
2008, Fresno State Police Mutual Assistance, and Fresno City College.
The Multi-Agency Gang Consortium is a collaboration of municipal, county and state
criminal justice professionals that focus and coordinate law enforcement efforts on
reducing violent gang activity in both rural and urban areas of Fresno County. The Fresno
PD officers and supervisors assigned to MAGEC share space with the Fresno County
Sheriff’s Department, the Fresno County District Attorney and the California Highway
Patrol. In addition to this shared facility, the Fresno Police Department has entered into an
agreement with the Fresno County Sheriff’s Department to co-locate in a location that
registers convicted sex offenders and houses a Fresno PD 290 Investigative Unit. The
Department continues to explore a joint dispatch center with Fresno County Sheriff’s
Department.
Location
The City reported that while there were no areas within the City of Fresno where law
enforcement services were not provided by Fresno PD, low staffing levels pose a challenge
to providing services throughout the City’s incorporated area. It was also reported that
Fresno PD does not serve areas outside of the City’s boundaries.
Calls for police service are largely concentrated in the northeast and northwest sections
of the City, though violent crime is concentrated in the Northwest and Southwest Policing
Districts within the City. The calls that occur in the northern part of Fresno are generally
along corridors surrounding SR99 and SR 41 and major arterials such as Blackstone
Avenue and Herndon Avenue.
Service Demand
City of Fresno has experienced a 38.9 percent decrease in violent crime and an 18.2
percent decrease in property crimes when comparing 2005 reported crimes to those
reported in 2014. During that same time period overall crime rates have fallen by 20.3
percent, equating to 5,960 fewer crimes per year.68 Fresno PD attributes the results to its
focused policies, gang eradication efforts and the amount of involvement and support from
the community.
68Fresno Police Department, http://www.fresno.gov/NR/rdonlyres/A9D853FB-EBA4-4900-8435-
B880D98AE480/31204/122014.pdf
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In 20014, increased safety onn the Fresnoo roadwayss resulted inn fewer colliisions within the
City. In 2005 theree were 3,8338 collisionns in Fresnoo. For commparison puurposes, in 2014
there weere 2,885 tootal collisioons in the City representing a 24.99 percent ddecrease in total
collisionns over that 10 year period. Similaarly, injury collisions wwere reduceed from 1,5448 in
2005 to 1,183 injurry collisionss for 2014 rrepresentingg a 23.6% rreduction ovver that 10 year
span. Inn 2014, Fressno PD Trafffic Departmment investiigated 35 trraffic collisiion fatalities. Of
these 355 fatalities, 17 were peedestrian deaths. Inveestigations revealed thhat 10 of thhe 17
pedestrians, 58 perrcent, had eeither drugss or alcohool in their systems at tthe time of they
were strruck by a mootor vehiclee.69
STTAFFING
As oof Decembeer 31, 20155 the Fresnno Police DDepartment employs 996.0 full--time
equivaleent (FTE) auuthorized ppersonnel, iincluding 748.0 FTE ssworn safetty memberss and
248.0 FTTE civilians. Thirty-onne sworn ppositions aand four noon-sworn ppositions (tthree
emergenncy service dispatch positions and one senioor accountaant/auditorr position) were
defunded in FY 2013 to meet bbudget goalss. Prior to 20014, the Citty of Fresnoo had reduceed its
police sttaffing levells by almostt 12 percennt and has bbeen relyingg on voluntteers for varrious
functions within thee police deppartment.
The Chief of Poolice reports to the Citty Managerr and reliess on the Cittizens’ Advisory
Board (CAB) and the Youth Advisory Council (YAAC) as commmunity reesources inn the
formatioon of strateegies, deveelopment off community policingg concepts, and increaasing
public aawareness. The CAB is composeed of 25 mmembers, including sseven memmbers
appointeed by City CCouncil, twoo appointedd by the Humman Relatioons Commisssion, and 116 at-
large positions filledd by City reesidents. Thhe YAC is comprised of 18 young mmen and woomen
who represent the vvarious geoggraphic areas of Fresnoo, to providde meaningfful dialogue with
the Chieff of Police frrom the Youuth of Fresnno’s perspecctive.
The CChief of Poliice supervisses the Policce Departmment’s four ddivisions. Eaach of the Paatrol,
Investigaations, Admministrative Services, aand Supporrt divisionss has its owwn bureauss and
units.
The Patrol Diviision includdes four districts withh individuaal needs annd responsees to
crime. TThe districtss employ coommunity ooriented pollicing strateegies to resppond to callls for
service, provide prroactive criime reductiion strateggies and adddress disorrder withinn the
districts. There are 415 staff inn the patrol ddivision as of the changge of detail in January 22015
with 85 personnel dedicated tto the Southhwest distriict, 82 in thhe Northwest district, 777 in
the Souttheast distriict, and 82 iin the Northheast districct. In addition, there aare 44 persoonnel
assignedd to the Viiolent Crimme Impact TTeams to pprovide foccused and pproactive ccrime
suppresssion as a cittywide resouurce for thee patrol diviision.
The Investigatioons Divisionn investigattes violent crimes agaainst personns and propperty
and proovides lonng-term caase manageement forr prosecutoorial purposes, narccotics
investigaation and iinterdictionn, and crime scene annd evidencee processing. This divvision
includes the Familyy Justice Bureau, Speciaal Investigaations Bureaau, Street VViolence Secction,
69Fresno Poolice Departmennt, 2014 Annuall Report, page 40.
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Multi-Agency Gang Enforcement Consortium, and the Crime Scene Investigations Bureaus.
The entire Division is staffed by a total combination of 164 full- and part-time employees.
Further descriptions of theses bureaus are discussed below.
The Family Justice Bureau consists of the Domestic Violence, Child Abuse/Missing
Persons, Sex Crimes, and Financial Crimes units. This Bureau has a combined total of 37
sworn employees consisting of one lieutenant, five sergeants, 30 sworn detectives, and one
non-sworn computer systems specialist in the Financial Crimes unit. Additionally, the
Bureau has 12 non-sworn positions—two non-sworn Domestic Violence unit advocates
and nine non-sworn employees assigned to the Court and Prosecution Liaison Offices.
The Street Violence Section (SVS) consists of the Homicide, Robbery, and the Night
Detective, and Gun Crimes units along with a SVS tactical team. This section has a total of
38 sworn full-time employees—one lieutenant, five sergeants, 31 detectives, and one non-
sworn full-time Community Service Officer.
The Special Investigations Bureau (SIB) consists of Major Narcotics, the VICE/Criminal
Intelligence/Joint Terrorism Task Force, Career Criminal Auto Theft Team, and the HIDTA
Unit. SIB has a total of 29 FTE sworn positions, including one lieutenant, three sergeants,
and 24 detectives, along with one non-sworn full-time community service officer and one
non-sworn part-time staff assistant.
The Multi-Agency Gang Consortium (MAGEC) includes the Fresno Ceasefire Program
and has a total of 19 full-time sworn employees, which include one lieutenant, three
sergeants, and 11 detectives plus two detectives assigned to MAGEC from the Fresno
County Sheriff’s Department, one officer assigned from the California Highway Patrol, and
one agent assigned from State Parole.
The Crime Scene Investigations Bureau (CSI) has 19 full-time technicians including
three Supervising Technicians as well as 10 Fresno PD cadets that complete prisoner
processing and transportation for the agency. CSI duties include the analysis of controlled
substances, toxicology reports, latent fingerprint analysis, DNA reports, and other basic
crime scene, evidence gathering processes.
The Administrative Services Division includes the Internal Affairs Bureau and the
Professional Standards Bureau. Internal Affairs investigates allegations of misconduct by
members of Fresno Police Department. The Internal Affairs Bureau consists of a secretary,
six investigator sergeants, and one lieutenant. Also included in this division is the
Professional Standards Bureaus which includes Homeland Security, the Police Training
Officer Section, the Training Bureau, Audits and Inspections and the Policy and Procedures
Unit. Overall, the Division’s staff is comprised of 44 FTEs.
The Support Division provides support to Fresno Police Department in specific areas of
law enforcement expertise, specialized services and equipment and consists of 269 FTE
personnel and 33 reserves.
Fresno PD relies on five Citizens on Patrol (COP) teams consisting of volunteers, who
assist the police department in emergency call-out fatal accidents, traffic control, and
crowd control at parades. Teams also help the patrol with the search of at risk missing
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children and locatinng and returrning them safely at hoome. COPs vvolunteered 14,850 houurs in
2014.70
The Communityy Emergency Responsse Team (CCERT) proggram trainns people tto be
preparedd to respond to emergeencies in their homes, wworkplacess and our coommunity. CCERT
volunteeers are on sttandby 24//7 to assist iin large scale events. SSince 2003, 1,081 residdents
have completed thhe 21-hourr course thhat includes emergency prepareedness, inciident
commannd, terrorism awareneess and dissaster meddical operattions. In 2014, 345 CCERT
volunteeers respondded to 14 emmergency caall-outs; inclluding misssing person searches, mmajor
gas leakks and largee commerciial and resiidential firees. The volunteers participated iin 13
communnity service and public education eevents and completed 5,122 hourrs of servicee and
continuing educatioon.
FACCILITIESS AND CAPACITYY
Fresnno Police Deepartment ooperates ouut of a policee headquartters and fouur district ppolice
stations.. Details of eeach facilityy are describbed in Figurre 13-1.
Fresnno PD ownns and operrates one ttemporary holding faccility locateed at the ppolice
headquaarters. Thee holding ffacility conssists of fivee individuaal holding ccells The PPolice
Departmment does noot operate aany long-terrm holding ffacilities.
70Fresno Poolice Departmennt, 2014 Annuall Report.
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Figure 13-1: Fresno PD Facilities
Fresno Police Department Facilities
Non-
Sworn Sworn
Police Station Location Condition Staff Staff Vehicles Purpose Facility Sharing
159 (11 cars, 2 trucks, 87
Headquarters 2323 Mariposa Mall Fair 189 180 MC, 59 unmarked) Police Headquarters Not shared
(Included above for
Annex 2326 Fresno Street Fair 172 23 common parking space) Police Administration Not shared
Regional Police Training Center Good 13 3 40 Regional Training Facility
Police Property & Evidence
Storage 940 N. Broadway Fair 5 7 5 Evidence Storage Not shared
Police Background Investigators 4170 N. Brix Good 0 9 8 Background Investigators Not shared
15 Graffiti Removal
Graffiti Abatement Team 2101 "G" Street, Bldg. X Fair 0 13 Vehicles GAT Team Not shared
SWAT/EOD Storage Undisclosed Good 0 0 6 Specialty Vehicles Leased storage space
Special Investigations Bureau Shared outside
(SIB) Undisclosed Good 21 2 36 UC Vehicles Leased Office Space department
Multi Agency Gang Enforcement Shared outside
Consortium (MAGEC) Good 16 1 17 UC & Marked Vehicle Leased Office Space department
Shared outside
K-9 & Mounted Unit Facility Chestnut & Dakota Good 1 0 5 for MPU Leased Space department
Skywatch 5045 E. Andersen Good 5 3 6 Vehicles Leased Office/Hanger Space Not shared
68 (52 cars, 3 trucks, 5
patrol wagons, 8
Southwest 1211 Fresno Street Good 85 1 unmarked) Dressing Station Not shared
60 (52 cars, 3 trucks, 5
Southeast 1617 S. Cedar Poor 77 1 unmarked) Dressing Station Not shared
71 (62 cars, 4 trucks, 5
Northeast 1450 E. Teague Good 82 1 unmarked) Dressing Station Not shared
61 (53 cars, 2 trucks, 6
Northwest 3781 N. Hughes Fair 82 1 unmarked) Dressing Station Not shared
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As described prreviously, FFresno PD owns and operates a regional laaw enforcemment
training center. Thee regional ttraining cennter covers 80 acres att the corner of Centrall and
Hayes on propertyy acquired bby the Poliice Departmment from the wastewwater treatmment
facility. TThe trainingg facility includes classsrooms, an emergencyy vehicle operations coourse,
which feeatures purssuit and urbban driving environmeents, a 240 ffoot by 300 foot skid ppad, a
driver awwareness course, six 550-yard hanndgun rangees, a 200-yaard rifle rannge, a compputer
controlleed targetingg system, a three story tactical traaining housee, force optiions and drrivers
training simulators,, and variouus other traiining systemms.
The ffacility is ussed by Fressno PD stafff and by laww enforcemeent personnnel from around
the Centtral Valley aas well as aggencies fromm around thhe State. Frresno PD ennters into foor-fee
training programs wwith other agencies, reeducing oveerall operattion and maaintenance costs
of the facility. The ffacility was largely commpleted andd opened in mid- Septeember 20100, at a
cost at tthat time of approximmately $12.88 million, wwhich was ffunded throough bondss and
developeer impact feees. Final coompletion occcurred in FFY 2012 witth a final cappitalized prroject
cost of $15.14 millioon.
INFFRASTRUCTUREE NEEDSS
In thhe FY 2014 budget, Frresno PD coompleted reroofing wwork at two of its facillities.
Funding was establlished fromm proceeds from an inssurance setttlement wiith the City, and
$270,000 was set aside for thee replacemeent of the heeadquarterss roof and $$361,000 foor the
replacemment of the ppolice annex roof.
Fresnno PD budggeted $780,500 to coveer equipment and infraastructure replacemennts in
FY 20144. A portionn of this fuunding alloowed for thhe departmment to repair and repplace
portablee radios ($1110,500) in FY 2014. TThe Departtment also bbegan a prooject to impprove
the physsical securitty of the parrking area aadjacent to the headquuarters and annex builddings
by desiggning and bbeginning constructionn on a secuurity fence of the publlic parking area
($100,0000), repavinng this parkking area and restripinng of the pparking lot (($70,000). This
funding also alloweed the deparrtment to bbegin the prrocess to leaase 50 mucch needed ppolice
vehicles ($500,000)).
The City of Freesno has beegun a Reqquest for Prroposal to contract wwith an entity to
conduct an infrastructure and deferred maintenannce needs assessmentt for the PPolice
Departmment. This wwill be conducted in FFY 16 with recommenddations for capital proojects
and prioorities as an expected outcome of this needs asssessment.
CHAALLENGEES
Fresnno Police Deepartment iis facing chaallenges broought on byy past and cuurrent econnomic
conditions. As a reesult, it hadd to implemment signifiicant organnizational changes to meet
communnity needs wwith fewer rresources, inncluding priiority modiffication, staaff reassignmment,
and resttructuring oof the operrations. Theese econommic constraints, combiined with oother
issues, ssuch as paarole reformm and the early release of prissoners, havve requiredd the
Departmment to focuus its resourrces on the hhighest prioority duties, which cann result in delays
in respoonse times to lower prriority callss for servicce, the needd to handlee select types of
reports oover the teleephone, or aasking citizeens to self-rreport certaain crimes oonline.
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In adddition, incrreasing Cityy populationn has resulted in increaased calls foor service aas the
number of sworn personnel haas not been able to keeep up with ggrowth. Ass an example the
Northweest District poses a paarticular chhallenge to police resources, whhere despitee the
crime reeductions exxperienced in the distrrict in 2014,, the numbeer of calls foor service inn the
Northweest District increased to 108,137. This repressents an inccrease in calls for serviice in
the Nortthwest Distrrict of 4.3 ppercent oveer 2013. Thhe Departmment has hadd to address the
increasee in service demand wiith creative staffing prrocedures suuch as requuiring detecctives
to work patrol shiftts, and with the use of oovertime exxpendituress to ensure mminimum ppatrol
staffing iis met.
Based on the FYY 2014 buddget, it appears that nno further rreductions wwill be madde to
Fresno PPD staffing levels, andd the City hhas begun hhiring police officers bback duringg this
current ffiscal year.711
SERVICEE ADEQUACY
Serviice adequacy can be gauged byy a variety of factors, such as rresponse tiimes,
clearancce rates (thee portion of crimes solvved), staffingg ratios, andd awards annd recognitiions.
Althoough policee response times for serious crrimes in progress aree an important
indicatorr of service adequacy, tthere are noo clear standards as to what thosee response ttimes
should be. Police response times weree traditionnally used to measurre effectiveeness.
Howeverr, more reccent researcch indicatess that respoonse time ddoes not haave a signifficant
effect onn crime solvving, becausse most crimmes are “coold” crimes and victimss do not tennd to
call police immediaately after tthe crime iss committed. The moddern approaach to respponse
time—differential rresponse—iis to ensuree quick respponse to serrious crimees (Priority 0) in
progresss, when there are oppoortunities too save a victtim and/or to appreheend the crimminal,
and to innform lower-priority ccallers (Prioority 1 throuugh 8 and ttelephonic ccalls for serrvice)
that respponse time mmay be lenggthy.
Fresnno PD recenntly developed alternaative call haandling appproaches for lower priiority
calls for service. Thhis became essential too combat eloongated ressponse timees to these loower
priority calls as available patrool resources were dispaatched to liffe threateninng and crimmes in
progresss calls for seervice. Thiss unit under the immediate superrvision of a Patrol Serggeant,
utilized Cadets, Schhool Resourrce Officers, and patrool overages to focus onn lower priiority
calls. Thhis allowed patrol officeers to respoond to high priority callls and to coonduct proaactive
patrols in the Policing Districtss.
Empiirical informmation sugggests that a differential law enforcement respponse basedd on a
priority system leadds to both citizen and oofficer satisffaction. Ressponse times are depenndent
on the aagency’s staaffing level and size off the jurisddiction served. In 20144, Fresno PD on
average responded to Priorityy 0 incidentts within 8.117 minutess. As shownn in Figure 13-2,
the Depaartment’s reesponse timmes have inncreased oveer the last seven yearss, in part duue to
the decrrease in staaffing levelss and increeases in calll volume rreceived byy the Fresno PD
communnications cennter.
71 City of Frresno, Adopted BBudget Fiscal Yeear 2015.
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Figure 13-2: Average Citywide Response Times to “0” Priority Calls, 2008-2014
Response Time
Year
(min)
2008 6.35
2009 6.41
2010 6.85
2011 7.21
2012 7.52
2013 7.97
2014 8.14
Cleared crimes refer to offenses for which at least one person was arrested, charged with
the offense, and turned over to the district attorney for prosecution. A crime is also
considered cleared by exceptional means if the offender dies, the victim refuses to
cooperate, or extradition is denied. There are no standards or guidelines on the proportion
of crimes that should be cleared. Fresno PD had a Department of Justice (DOJ) clearance
rate of 46.7 percent for violent crimes (homicide, forcible rape, robbery and aggravated
assault) committed in 2007, 2008 and 2009,72 a clearance rate of 6.8 percent for burglary
crimes, and 9.5 percent for motor vehicle theft during the same period.
Investigative efforts have improved clearance rates within the agency in recent years.
According to the City’s 2014 crime statistics, Fresno PD had clearance rates of 49.2 percent
for violent crimes (homicide, forcible rape, robbery and aggravated assault) and 15.0
percent of property crimes (burglary, theft, auto theft, and arson) committed from January
through December 2014. To compare with 2013, Fresno PD cleared 47.4 percent of violent
crimes and 16.0 percent of property crimes during the same months, indicating that the
Police Department solved a higher percentage of violent and property crimes in 2013.73
The number of sworn officers per capita is a traditional indicator of service level. There
are no established State or national standards for police staffing levels. According to a
Department of Justice study, in 2008 municipal and township police departments
nationally employed an average of 2.3 full-time sworn personnel per 1,000 residents.
During the same year, Fresno PD had a lower staffing ratio of 1.74 sworn staff74 per 1,000
residents. Since the 2008 economic recession, however, the City has reduced its police
force; in 2014, the Police Department’s staffing ratio was 1.47 sworn personnel per 1,000
residents. The City recently adopted a General Plan policy to “Create and adopt a program
to provide targeted police services and establish long-term steps for attaining and
maintaining the optimum levels of service—1.5 unrestricted officers per 1,000 residents.”75
The City will require additional personnel in order to meet this targeted staffing level.
72 More recent DOJ statistics is not available.
73 December 2014 Monthly Crime Statistics
74 FBI Crime Index 10 Year Profile.
75City of Fresno, General Plan Update, Implementing Policy PU-1-g.
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In 2005 and 2008, the Fresno Police Department received the recognition of law
enforcement professional excellence from the Commission on Accreditation for Law
Enforcement Agencies (CALEA), an independent accrediting authority. In order to achieve
this accreditation status, Fresno Police Department voluntarily complied with more than
500 best practice standards established by CALEA for the operation of police organizations.
The Fresno Police Department was reaccredited by CALEA in 2011 and in 2014 was
Accredited with Excellence as a model for other accredited agencies around the nation.
Figure 13-3: Fresno Police Department Overview
City of Fresno Law Enforcement Profile
Service Configuration Service Demand
Patrol Fresno PD Population (2014) 520,159
Number of Policing Districts 4 Population (2010) 494,665
Dispatch Fresno PD Total Service Calls (2014) 465,631
Search and Rescue Fresno FD, Sheriff Calls per 1,000 population 895
Investigations Fresno PD Crime Activity
Traffic Enforcement Fresno PD Arrests (2014)- felony 37,597
SWAT Fresno PD Arrests (2014)- misdemeanor 20,449
Temporary Holding Fresno PD Violent Crimes (2014) 2,382
Long-term Holding Fresno County Property Crimes (2014) 21,360
Explosives Ordinance Disposal (EOD) Fresno PD 2,885
Canine (K-9) Services Fresno PD Violent Crime Rate per 100,000 (2014) 457.9
Fresno PD &
Regional Training
Staff Training Staff Property Crime Rate per 100,000 (2012) 4,106
Service Adequacy Resources
Avg. Priority One Response Time2 8.52 minutesTotal Staff (2014) 996
Response Time Base Year 2014Sworn Staff (Authorized) 748
Clearance Rate of Violent Crimes3 49.2%Support Staff (Authorized) 248
Clearance Rate of Property Crimes3 15.0%Volunteers 164
Per Capita Cost (General Fund) $247 Sworn Staff per 1,000 population 1.43
Service Challenges
The Department has faced financing constraints during the recession and has suffered staff reductions. As a result, it had to
implement significant organizational changes to meet community needs with fewer resources, including priority modification,
staff reassignment, and restructuring of the operations. Additionally, parole reform and the early release of prisoners, have
required the department to focus its resources on highest priority duties, which may result in delays in response times to lower
priority calls for service, the need to handle some types of reports over the telephone, or asking citizens to self report certain
crimes online.
Current Facility-Sharing and Regional Collaboration
The Fresno PD owns the Regional Training Center and offers training to law enforcement personnel from around the Central
Valley as well as agencies from around the State.
Opportunities for Facility-Sharing and Regional Collaboration
The Department continues to explore a joint Dispatch Center with Fresno County Sheriff’s Department.
Notes:
(1) Crime rates for year 2014.
(2) For cell 21 "Average Priority 1 Response Time, FPD's most critical response is to Priority 0's. In 2014 that was 5.81 minutes.
(3) Clearance rates for 2014.
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1 4 . SOLL ID WWASTT E SEE RVI CC ES
SERVICEE OVERVVIEW
The City of Fressno providees residentiial solid waaste collectiion services to Fresnoo city
residentts. Solid wwaste services for coommercial properties are provided by prrivate
contracttors throughh negotiatedd franchise aagreementss.
Non--Exclusive RRoll-off colleection servicces are provvided by 20 private hauulers.
Residential SSolid Waaste
The CCity collectss about 886 tons of matterial from 1107,772 ressidents dailyy and more than
230,500 tons of traash, green wwaste and recyclables from its reesidential ccustomers eevery
year. Staandard residdential servvice consistss of three 644-gallon carrts emptied by the City once
a week. IIn 2013, thee City collected 69 tons per day of refuse, recyyclables andd green waste.
To adddress the tthreat to puublic health and safety caused by iillegal dumpping, Fresnoo has
implemeented the Operation Clean Up program wheree once a yeear city truccks make roounds
throughoout the Cityy and collectt bulky itemms that weree not pickedd up by the regular garrbage
service. Operation Clean Up disposes trassh and debrris, green wwaste, electrronic wastee, and
old appliiances and ffurniture.
The CCity providees solid wasste services within the incorporateed areas of Pinedale Coounty
Water DDistrict (PCWWD). PCWDD is surrounnded by thee City of Freesno with some portions of
the Distrrict remainiing as unincorporated islands. MMalaga Counnty Water DDistrict (MCWWD),
whose sservice area partially overlies the City booundaries, aalso providdes solid wwaste
collectioon services tthrough a coontract provvider.
The City does nnot providee residentiaal solid waaste servicees outside oof its corpoorate
boundarries.
Roll-ooff, Commmerciall and Multi-Fammily Solid Wastte
In ann effort to ggenerate addditional revvenue for oother essenttial servicess such as ppublic
safety and parks, tthe City off Fresno suuccessfully franchised roll-off, mmulti-family,, and
commercial collection services. The franchise has gennerated moore than $3 million annnually
in net new revennue to thee General Fund, whicch has beeen used tto help finnance
improveements in poolice and firre services.
Non--exclusive ffranchises ffor roll-off collection sservices weere awarded to 20 prrivate
companiies. Customers are ablee to select frrom amongg these comppanies baseed upon serrvices
and ratees. The Cityy does not rregulate the rates of tthese comppanies. In exchange for the
grantingg of the rigght to colleect roll-off boxes undder the nonn-exclusive agreementt, the
franchiseed companiies pay the City a francchise fee off 10 percentt of their rooll-off grosss rate
revenues.
The exclusive frranchise forr collectingg and haulinng commerrcial and multi-family solid
waste annd recyclingg materials, which included abouut 7,900 muulti-family, ccommerciall and
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industriaal accounts,, was awardded to Mid Valley Dispposal and RRepublic Serrvices (formmerly
Allied WWaste). The two comppanies are sservicing alll commerccial solid wwaste containers
ranging from one yyard to eighht yards in size. The ffranchise agreements are for 10--year
terms plus two exteensions at thhe City’s solle option, eaach for up too five years,, for a total of 20
years. UUnder the agreements, the contraactors weree required tto hire for a period oof six
months all displaced employeees who met eligibility foor employmment. The contractors wwere
also requuired to purrchase the CCity’s existinng trucks annd bins.
Mid Valley Dispposal is a pprivately heeld local recycling andd solid wasste managemment
companyy operatingg since 1997. The Cityy of Fresno has granteed Mid Vallley Disposaal the
exclusivee right to hhaul waste,, recyclablees, and orgaanic materiials for all businessess and
multi-fammily units ssouth of Ashlan Avenuue within thhe City of FFresno. Mid Valley operates
Mid Vallley Recyclinng and Trannsfer Station, which coonsists of recycling buuyback centter in
Coalingaa and material recoveryy facility andd transfer sttation on MMadera Avennue in Kermman.
The rrecycling buuyback centter accepts aall polyethyylene terephhthalate plaastics, alumiinum
cans, annd Californiaa redemption value gllass. The mmaterial reccovery faciliity and transfer
station pprocesses 250,000 tons of both, commercial and residential waste (collected from
other paarts of Fresnno County) each year. The company plannedd a three-phhased expannsion,
which wwould enable Mid Valleey to break down greeen waste annd food scrraps that reetains
methanee, volatile oorganic commpounds aand other ggases normmally emitted into thee air
through traditionall compostinng. The endd goal of thhe project, which is annticipated tto be
completeed by 2016,, is to increaase the site’s permittedd waste capaacity from ccurrent 5000 tons
per day tto 1,500 tonns per day.
The franchise foor exclusivee right to hhaul waste, recyclabless and organnic materialls for
commercial entitiess and multi-family dwwellings norrth of Ashlaan Avenue was granteed to
Allied WWaste Dispoosal, whichh later merrged with RRepublic Seervices, Incc. The company
operatess the Allied Waste Ricee Road Trannsfer Stationn in the Cityy of Fresno.. In additionn, the
companyy created aa school reccycling proggram usingg a no-sort system. Thhis programm has
yielded aa significantt annual cosst savings foor Fresno Unnified Schoool District.
STTAFFING
The solid wastee managemment divisionn is responnsible for thhe provisioon of resideential
solid waaste servicess and constiitutes a partt of the Cityy’s Public Uttilities Depaartment thatt also
includes the adminiistration divvision, wateer division, aand wastewwater managgement division.
The administrattion divisioon coordinaates the delivery and developmeent of the CCity’s
utility seervices incluuding oversight and suppport of thee three operrating divisiions in the aareas
of strattegic businness planniing, resourrce managgement, orgganizationaal developmment,
personnel and laboor relations,, fiscal management, pproject management, annd performmance
metrics. Also, includded within tthe division is the utilitty billing annd collectionn section and the
utility pllanning andd engineerinng section.
The DDirector of Public Utiliities is in chharge of all four divisioons and acccountable too the
City Mannager. The solid wastte managemment divisioon consistss of residenntial collecttions,
recyclingg, field servvices, landfill, litter conntrol, techniical/engineering projeect managemment,
and Opeeration Clean-up units. The Departtment of Puublic Utilitiees employs 614.75 full--time
equivaleent (FTE) sttaff, of whicch 177.0 FTEs are dediicated to thhe solid wasste managemment
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division.. There havve been no changes inn staffing siince FY 12 when 108 positions were
eliminatted due to thhe privatizaation of commercial andd multi-fammily solid waaste servicess.
Therre are curreently 95 wasste collector lead workkers, five suupervisors, one solid wwaste
managerr, one solidd waste saffety/trainingg specialistt, 12 utilityy lead workkers, four hheavy
equipmeent operatoors, one sstreet sweeper operaator II, twwo commuunity sanitaation
supervissors I, 23 laborers, oone senior customer service clerk, four cuustomer service
staff, fouur waste container maiintenance wworkers, one program aanalysts III,, one geograaphic
info systtem specialist, one waater systems operator, one prograam compliaance officer,, two
managemment analyst II’s, two senior admmin clerks, one adminn clerk, twoo account cllerks,
two senior accountt clerk, onee principal aaccount cleerk, one acccountant auuditor, four staff
assistantts, one recyycling coorddinator, one business mmanager, onne radio disppatcher andd one
assistantt director off Public Utillities.
FACCILITIESS AND CAPACITYY
The CCity of Fresnno owns Freesno Sanitaary Landfill (FSL) locateed three miles southweest of
the City of Fresno, which covers about 1140 acres. BBetween thhe opening in 1937 annd its
close in 1987, the landfill acccepted munnicipal solidd waste froom the Cityy of Fresno.. The
overall aaverage totaal waste strream at thee FSL consiisted of appproximatelyy 16,500 tons of
waste peer month. TThe total wwaste quantiity in-place is betweenn 4.7 and 88.0 million ccubic
yards. Thhe Fresno SSanitary Lanndfill is a National Histtoric Landmmark and is recorded inn the
Nationall Register oof Historic Places.76 The Fresno Sanitary Laandfill is thhe oldest "ttrue"
sanitary landfill in tthe United States, and the oldest compartmeentalized mmunicipal lanndfill
in the western Unitted States. Itt is the firstt landfill to employ thee trench method of dispposal
and firstt to utilize coompaction.
Curreently, the CCity disposees of its ressidential waaste at the AAmerican AAvenue Dispposal
Site in Kerman, which is ownedd and operaated by the CCounty of Frresno Department of PPublic
Works aand Planninng. The Ammerican Aveenue landfiill is a sannitary landffill77 that bbegan
operatinng in 1992 ffor public aand commerrcial solid wwaste hauleers. It is esttimated thaat the
landfill hhas sufficiennt disposal capacity forr the City off Fresno thrrough 20500. Its operations
include alternative daily coveer/alternatiive intermeediate coveer (250-4999 tons a yyear),
beneficiaal reuse (500-99 tons aa year), solid waste dissposal (3755,000–499,9999 tons a yyear)
and orgaanic chippinng and grinnding (0-8,0000 tons a year) for bboiler fuel. During thhe 4th
quarter of calendar year 2014 the City of FFresno and Fresno Couunty enteredd into a neww 20-
year soliid waste dissposal agreeement for thhe Americann Avenue Laandfill.
Residdential nonn-recyclable garbage iss first takenn to the Ceedar Avenuee Recyclingg and
Transferr Station (CCARTS). Once garbage has been offloaded aat the transsfer stationn, the
garbage is loaded onnto large, trransfer trailers and hauuled to the AAmerican Avvenue Landdfill.
76 The National Register of Historic Plaaces is the offiicial list of thee Nation's histooric places worthy of preservvation.
Authorizedd by the National Historic Preservation Act oof 1966, the Naational Park Service's Nationaal Register of HHistoric
Places is paart of a nationall program to cooordinate and support public aand private effoorts to identify, evaluate, and pprotect
America's hhistoric and archeological resoources.
77The Envirronmental Protection Agency ddefines a sanitaary landfill as a disposal site foor non-hazardous solid waste sspread
in layers, coompacted to thee smallest practtical volume, annd covered by mmaterial appliedd at the end of eeach operating dday.
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Residdential orgaanics are delivered to eeither West Coast Wastte or Green Valley in Frresno
County ffor processing. Processsed waste from Greenn Valley is taken to Koochergen Farms
Compostting. Materrials processed at Wesst Coast WWaste are uused as bio fuel and oother
applicatiions driven by West Cooast Wastes customer nneeds.
The solid wastee managemment divisioon of the CCity owns aand operatees 83 collection
trucks. TThe commuunity sanitation portion of the soolid waste mmanagemennt division oowns
and operrates 10 addditional truccks, one rolll off, and thee utility claaws for bulkky items.
As reeported in tthe City’s GGeneral Plann, the City’ss existing wwaste disposal facilities are
considerred adequatte to maintaain a sufficiient level off service forr future poppulation growth
in the Citty through tthe planning period of the documeent.78
The City of Freesno solid waste divission develoops performmance meaasures yearrly to
determinne the pounnds of wastte, recyclingg and compposting gennerated by eeach household,
businesss and multi--family unitt and updattes estimatees of future waste geneeration withh the
latest growth projecctions. It waas reportedd that in the last severaal years wasste streams have
steadily declined.
Commmercial, muulti-family, aand roll-offf materials picked up bby Mid Vallley Disposaal are
taken too the Mid VValley Recyycling and Transfer Station, whiich consistss of facilitiees in
Kerman and Coalingga. Waste iss processed at the recovvery facilityy in Kermann after whichh it is
disposedd of at the AAmerican Avvenue Landffill in Fresnoo County. RRecyclables aare processsed at
the recyccling buybaack center inn Coalinga.
Repuublic Servicees Inc. takess commerciial, multi-fammily and rooll-off materrials collectted in
the City of Fresno to CARTS. Trash is taken to thee Americann Avenue laandfill. Reppublic
Services does not offfer an organics collectiion programm.
INFFRASTRUCTUREE NEEDSS
Sincee the Fresnoo Sanitary LLandfill clossure in 1987, some moodifications to the site have
occurredd, including the addition of one waater well in tthe west-ceentral portioon of the lanndfill,
and a second waterr well in thee east-centraal portion oof the landfiill. A vacuumm system onn the
methanee barriers wwas installed by the Ciity in 1991. More receently, a weiighing scalee and
scale houuse were reemoved, andd the two waater wells wwere filled inn and destroyed.
The fformer landdfill site wass redesignedd as part of a 350-acre environmeentally consccious
facility to integrate the site into a champioonship calibber sports ccomplex/reggional parkk. The
City conntinues to mmonitor the Fresno Sannitary Landdfill site as part of thee Environmental
Protectioon Agency’s (EPA) Suuperfund prrogram.79 TThe solid wwaste managgement divvision
estimatees the remaaining moniitoring costts as of Junee 30, 2012 to be abouut $19.4 million,
which iss based on tthe equipmeent, facilitiees and serviices requireed to monitor and mainntain
the closeed landfill.
78 City of Frresno, General PPlan Update, Pubblic Utilities andd Services Elemment, 2014, p. 6--28.
79 Superfunnd is the federal government's program to cleaan up the nationn's uncontrolled hazardous waaste sites.
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In FYY 2014, the CCity budgeted $1.3 milllion for the project at thhe Fresno SSanitary Lanndfill.
This prooject aims too remove lanndfill contamminants froom the aquiffer, thus keeeping the City in
compliannce with thee EPA conseent decree ((June 1996).
The City budgets sufficiennt funds on an annuall basis to pprovide thee required ppost-
closure ccare and maaintenance sservices forr the Fresnoo Sanitary Laandfill.
SERVICEE ADEQUACY
This section revviews regulatory comppliance and diversion rrates as inddicators of solid
waste coollection serrvice adequaacy.
Landdfill facilitiees are regulated by thhe Environmmental Prootection Ageency (EPA)), the
Californiia Departmeent of Resouurces, Recyccling, and RRecovery (CaalRecycle) aand a designnated
local ennforcement agency (LEA), the roole of which is playeed by the Fresno Coounty
Departmment of Commmunity Heaalth (FCDCHH) in Fresnoo County.
The City does not own or operate aany active landfill faccilities and as such iss not
responsiible for thee compliannce of thesee facilities with regullatory requuirements. The
inspectioon outcomees and comppliance of contracting aagency facilities are diiscussed heere as
they refllect on the CCity’s level oof service prrovision as wwell.
The American Avenue Laandfill was last inspeccted by the EPA in May 2013. The
inspectioon revealedd no currentt violations. In the last five years, tthe landfill has been isssued
two infoormal enfoorcement aactions, twoo formal eenforcemennt actions, and $1,8000 in
penaltiess.
The EEPA last insspected Aveenal Regionaal Landfill inn July 2013 and found no violationns. In
the last five years, the landfill has been iissued threee informal enforcemennt actions, tthree
formal enforcementt actions, annd $7,419 inn penalties.
The mmost recent inspectionn of Americcan Avenue Landfill peerformed byy FCDCH wwas in
January 2014. The inspectionn revealed nno violationns or areass of concerrn. Howeveer, all
previouss inspectionns conductedd during thee period froom April 2010 through the end of 2013
continuoously pointeed out a gass monitorinng and contrrol violationn for which the landfilll was
issued aan enforcemment actionn. The lanndfill correected the vviolation byy the extended
deadlinee.
The llatest inspeection of thee CARTS faccility perforrmed by FCCDCH was in January 22014.
The insppection reveealed two viiolations conncerning gaarbage storaage and dessign of the cover.
There haas been no eenforcemennt actions isssued to the CARTS facillity.
FCDCCH last inspected Mid VValley Recyccling and Trransfer Stattion in Deceember 2013. The
inspectioon revealedd no violations or areas of cooncern. Thhere is no record off any
enforcemment actions.
Kochhergen Farmms Compostting was laast inspecteed by KCDPPH in Decemmber 2013.. The
inspectioon revealedd two violattions conceerning dust control and a hauler with signifficant
contaminnation, andd one area of concern for not commplying wiith sampling requiremments.
There haave been noo enforcemeent actions aagainst Kochhergen Farmms.
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Green Valley Recycling’s inspection by FCDCH last took place in January 2014. The
FCDCH inspection revealed no violations or areas of concern. There is no record of any
enforcement actions.
FCDCH last inspected Sunset Wastepaper in December 2014. No violations or areas of
concern were reported. There is no record of any enforcement actions for this facility.
West Coast Waste was last inspected by FCDCH in December 2013. The inspection did
not find any violations or areas of concern. There is no record of any enforcement actions.
The diversion rate is the amount of waste that is recycled or composted as opposed to
ending up in a landfill with other non-recyclables. Diversion conserves limited landfill
space, keeps toxic chemicals and materials from contaminating landfills, and enhances the
reuse of materials.
The Integrated Waste Management Act (IWMA) requires a diversion rate of 50
percent.80 In 2009, Fresno was ranked highest in California among larger cities by the
California Integrated Waste Management Board for diverting 71 percent of its solid waste.
A Fresno City Council resolution committed the City to the goal of a 75 percent waste
diversion Rate by 2012 and a goal of zero waste by 2025. The City reported that it had not
reached its 75 percent goal to date.
80 The Integrated Waste Management Act (IWMA), also known as A.B. 939, required each jurisdiction in the State to
submit detailed solid waste planning documents for approval by the California Integrated Waste Management Board
(CIWMB), and to set requirements that agencies divert 50 percent of solid waste from landfills by 2000. The Board is
authorized to extend agency compliance deadlines based on good-faith and special circumstances.
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1 5 . STRRE ETT M A II N T EENA NNC E
SEERVI CC ES
SERVICEE OVERVVIEW
Circuulation withhin the City of Fresno is providedd by expressways, nummerous prinncipal
arterial rroads, minoor arterial rooads, collecttor roads, and various local roads..
The City’s streeet maintenaance division maintains 1,651 miles of city streets andd 137
miles of bikeways. The division provides specific serrvices relatted to the mmaintenancee and
operatioons of thesee streets annd bikewayys, includingg road mainntenance, ttraffic paintt and
signage, concrete mmaintenancce, traffic ssignals and street lighhting, mediian islands and
buffers, sstreet trees, and streett sweeping.
Roadd maintenannce servicees include aan overlay program to resurfacee roadwayss and
crack seealing to exttend the liffe of the roaadways. Thhe division’’s crews alsso maintainn city
temporaary pondingg basins annd have puump statioons and sittes to ensuure drainagge to
permaneent regionall facilities inn the event oof flooding.
Trafffic paint and signage sservices include paintinng of curbss, crosswalkks, combo lanes,
right turrn pockets, mmost trafficc related siggnage, and oother essenttial traffic controlling. PPaint
and signn crews maake sure all roadway ppaint (crossswalks, turnn lanes, paiinted curbs,, and
other paainted signaage) and all traffic signss (stop signns, no parkinng signs, strreet name ssigns,
and otheer signs) aree executed and visible to the publlic. Additionnally, the crrews re-stannd or
replace aany traffic signs that might have faallen.
Conccrete mainteenance is aanother servvice provided by the CCity that includes repaair of
damagedd sidewalkss and curbs or gutter rreplacementt of the conncrete infrasstructure wwithin
the Cityy. The street maintennance division installss new sideewalks or gutters in new
neighborrhoods, whhen neededd; although, most neww sidewalkks are consstructed byy the
developeer as condditions of new development. AAdditionally,, in complliance withh the
Americaans with Dissabilities Acct (ADA), thhe division identify andd remove bbarrier to acccess
within thhe ROW to eensure more mobility tto those in nneed.
Trafffic signals aare installeed by the ttraffic enginneering divvision; howwever, the sstreet
maintenance divisioon's electriccians repairr and mainttain the signnals in the CCity of Fresnno as
well as Fowler, Saanger and ccertain Fresno Countyy locations.. Crews resspond to ssignal
malfuncttions 24 hours a dayy. The street maintennance divisiion handles all streettlight
installatiions, removvals, and mmaintenancee. For streettlight malfuunctions, thhe division does
not havee any crews on patrol and relies onn the residennts to be nootified of anyy abnormallities.
Mediian islands and bufferss are kept free of weeeds and traash. The division perfforms
weed abbatement abbout every 990 days (300 to 60 dayys for landscape bufferrs in commuunity
facilitiess districts). MManual laboor and pre-emergent aand post-emmergent herbbicides are used
to assistt with keepping the weeds tame throughouut the year.. Irrigation is provideed by
sprinklers and dripp irrigation systems annd is mainttained by irrrigation crrews. The sstreet
maintenance divisiion also triims low limmbs that ccould interffere with sstreetlights, and
pedestrian and trafffic safety.
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Street tree services include routine pruning, fallen limb pick up and tree removal for
street trees that are dead, dying or posing an immediate danger. Street tree crews are
available 24 hours a day for tree emergencies. The City allows homeowners to trim away
any limbs that can be reached from the ground without the use of a ladder or chainsaw.
However, the City requires homeowners to apply for a free permit and hire a licensed
trimmer, if they wish to have a tree completely trimmed. Trees cannot be removed unless
they meet the City of Fresno’s municipal code requirements for removal. Street
maintenance staff will have a street tree removed at no expense to the homeowner, if that
tree is dead, over 50 percent dying, or posing an immediate hazard, such as splitting down
the trunk or immediately falling over. The City offers a tree-planting program to help
expand and diversify the City’s urban forest, but does not have a root pruning program in
place for street trees.
Mechanical street sweeping of the City’s residential streets occurs once per month
during the day. Major streets are swept once a week during the evenings and weekends.
Residents are asked to move motor homes and cars off the street on their scheduled days,
between 6:00 a.m. and 2:30 p.m. This allows sweepers to remove more trash off the street.
The Downtown area is swept three times per week at nights and weekends. The street
sweeping program also conducts leaf sweeping during the months of November and
December to help clear the gutters to ensure better drainage during the rainy season.
The street maintenance division works closely with the traffic engineering division to
coordinate various needs. As previously mentioned, traffic engineering installs traffic lights
and determines where any new roadway paint or signs are to be placed by street
maintenance staff. The traffic engineering division also operates the Intelligent
Transportation System (ITS), a state-of-the-art technology to monitor, model, and
coordinate traffic on select major arterials in the City.
Recently, the City has restriped numerous four lane undivided roadways (two lanes in
each direction) into three-lane roadways (one lane in each direction with a two way left
turn lane in the center), adding a bike lane. This new configuration, called “road diet” has
been implemented by the City of Fresno, in partnership with the City of Clovis and County
of Fresno, within their respective jurisdictions. Road diets enhance the safety for motorists,
cyclist and pedestrians.
Landscape maintenance in city parks is also conducted by the street maintenance
division. Crews provide mowing, trimming, and weeding services on a weekly basis at 80
parks throughout the City. Maintenance activities for city parks also include irrigation and
tree services similar to the median and landscape buffer activities on roadways.
The Bicycle Pedestrian Advisory Committee (BPAC), established in 2002 by Fresno City
Council and comprised of community members with interest and expertise in bicycle and
pedestrian issues, participated in the update of the City’s Bicycle Master Plan in 2010. The
completion of the plan secured the City grant funds issued by the California Department of
Transportation through the Bicycle Transportation Account. The funding allowed the City
of Fresno to install more than 30 miles of bike lanes, three miles of trails, and a $1 million
grade separation trail crossing.
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Location
The City providdes extra-teerritorial traaffic signal maintenannce servicess outside oof the
city’s booundaries. AAs previoussly mentionned, the streeet maintennance divission repairss and
maintainns traffic siggnals in thee cities of Fowler and Sanger, as wwell as certtain locations in
unincorpporated Freesno Countyy through ann interagenccy reimburssement agreeement betwween
Fresno CCounty and the City. NNo other maintenance services, wwith the excception of trraffic
signals, aare offered in areas outtside the citty limits.
Pineddale Public Utility Distrrict (PPUD) also providdes street ligghting, street sweepingg and
landscappe maintenaance servicees within itts service area to uninncorporatedd portions oof the
City. PPUUD providees street swweeping, street lightingg and landscape mainttenance serrvices
through contracted private prooviders withhin its distrrict boundarries. The City reportedd that
it also prrovides streeet lighting and street ssweeping seervices in thhe incorporrated portioons of
the PPUDD.
Counnty Servicee Areas (CCSAs) provvide streett maintenaance servicces within the
unincorpporated islaands surrounded by thee City and itts SOI.
Demand
Demaand for strreet servicees is affectted by poppulation annd job conccentrations, the
availabillity and desirability of public traansit, gas pprices, and other factoors such ass the
locationss of childcaare, schoolss, stores annd other coommon stopps. Pavemeent depreciaation
rates alsso affect seervice needds, and aree primarily influencedd by the voolume of trraffic,
preventaative mainteenance, andd weather.
An immportant inndicator of rroadway seervice demaand is the ddaily vehiclee miles of travel
(DVMT).. DVMT perr street milee is the totaal mileage trraveled by all vehicless on a givenn day,
divided by the mileeage of roaadway in thhe jurisdictiion. As of 22008, DVMT in the Ciity of
Fresno wwas 12,285.81 The Susttainable Traansportatioon Council rrecommendds reducing VMT
by provviding moree and betteer transportation optioons and immproving laand use so that
frequentt origins and destinaations are ccloser. Redducing VMTT improvess prosperitty by
reducingg funds speent on fuel and vehicle wear aand tear, ppreserving sscarce roaddway
capacityy for more important trips and heelping peopple increase their physical activityy and
therefore health.
STTAFFING
The sstreet mainntenance divvision is a ppart of the Public Worrks Departmment along with
other divisions including admministration,, capital maanagement,, engineerinng services,, and
facilitiess managemeent. The Deppartment is overseen bby the Direcctor, who reports to thee City
Managerr. The streeet maintenaance divisioon, which cconsists of the street administraation,
street mmaintenancee, tree trimming, plantt shop, streeetlights annd signals, concrete reepair,
median iisland/LLMMD/CFD, parrk maintenaance, and sttreet sweepping subdiviisions, is heeaded
by the Puublic Workss assistant ddirector.
81Departmeent of Transportation, 2008.
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The street mainntenance division empploys 151 fuull-time equuivalent (FTTE) staff orr 211
personnel. Full- annd part-time personneel consist off 68 in street maintenance operations
(pavemeent and concrete repair), 24 in streetlightts and signnals, 82 inn median issland
maintenance, 26 in park mainntenance whho are availlable 24 hours a day, aand 11 in sstreet
sweepinng.
The engineeringg services ddivision of the Public Works Deppartment iss headed byy the
Public WWorks assistant directoor and empploys 29.8 FTEs. The division is responsible for
right-of-way acquiisition, speecial districct projectss, GIS mappping, plann check, trraffic
engineerring, and thee Intelligentt Transporttation Systemm.
In orrder to balannce the buddget in FY 144, the Depaartment of PPublic Workks defundedd four
vacant positions aassociated with the concrete sstrike teamm—one maaintenance and
construcction workeer and three senior heavvy equipmeent operatorr positions.
FACCILITIESS AND CAPACITYY
The City of Freesno maintaains over 11,651 miless of roads, 1,151 milees of whichh are
classifiedd as local rooads, 322 mmiles as arteerial roads, and 178 miiles as colleector roads. The
City sharres 70 miless of roadwaays with Freesno Countyy and two mmiles with thhe City of Cllovis.
Additionnally, the CCity owns aand maintaains 453 siggnalized inntersectionss (74 addittional
signalizeed intersecttions are shhared with tthe County of Fresno aand the Cityy of Clovis),, 110
bridges (23 additional bridges are sharedd with Fresnno County aand the Cityy of Clovis). The
City ownns and mainntains 41,500 streetlighhts.82
The street mainntenance ddivision owns various equipmentt including 11 mechaanical
street swweepers dessigned to pick up trashh and debriis eliminatinng a need tto wash a sttreet.
The conndition of tthe sweepeer fleet varries form ggood to pooor. The City maintaiins a
replacemment fund foor street swweeper replaacement.
According to thee City’s Geneeral Plan, Frresno’s exissting street system hass excess cappacity
in severaal key areass due to thee recent connstruction of the freewaay system. TThe City aimms to
take advvantage of thhis situationn by promooting denserr developmment on thesse streets, wwhich
will makke the mostt efficient use of an exiisting publiic resource,, increase opportunitiees for
economiic developmment and property vallues, and eencourage aa diversity of developmment
types.83
Fresnno has transportation facilities that meet all modes of ccirculation, but the sysstems
for pedeestrians andd bicycles arre largely inncomplete. In many arreas of Fresno, there iss also
difficultyy in gettingg from one neighborhoood to anotther, and too local storees, services, and
public faacilities, succh as schoools and parkks, by any mmeans otheer than privvate automoobile.
Completting these ciitywide nettworks wouuld encouragge faster annd simpler ttravel routees for
work, errrands, and recreation.
82 City of Frresno, Compreheensive Annual FFinancial Reportt, FY 12, p. 268.
83 City of Frresno, General PPlan Update, Moobility and Trannsportation, 20114, p. 4-5
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INFFRASTRUCTUREE NEEDSS
Commmunity sanitation fundds, federal aand state grrant funds, special gas tax, bonds, and
Measuree C funds(a half-cent ssales tax in Fresno Coounty) finannce roadway infrastruccture
improveements, streeetlight and traffic signal maintenaance and repair, and rooad repair in the
City of Fresno.
In FYY 2014 the City is plannning to replace two sstreet sweeepers and ppave 16 milles of
streets.
The PPublic Workks Departmment is planning to utilize a combiination of sstate and fedderal
transporrtation grannts to maxiimize the uuse of allocated fundinng for mainntenance off city
streets, ttraffic flow improvemeents, and levveraging loccal funds. Inn FY 14, thee City anticippates
performing construuction and rooad work onn heavily-trraveled roadds, includingg:
Wideningg Willow Avvenue from Nees to Sheepherd,
Wideningg Herndon AAvenue fromm Brawley tto Valentinee,
Wideningg Santa Fe AAvenue fromm Blythe to PPalo Alto,
Resurfaciing Chestnuut Avenue frrom Union PPacific Railrroad crossinng to Jensenn,
Resurfaciing Fresno SStreet from Gettysburgg to Sierra,
Resurfaciing Herndonn Avenue frrom West Avvenue to Ceedar Avenuee, and
Traffic siggnal work aat SR 99 andd Olive Avennue.
In FYY 14, the DDepartmentt also plannned four innfrastructurre projects for Downttown
renewal,, including completingg constructioon on the VVan Ness ovverlay fromm the railroaad to
Inyo, installing strreet trees and irrigattion along several doowntown sstreet corridors,
providinng additionaal diagonal parking, peedestrian buulb-outs, crrosswalks, aand landscaaping
betweenn Tuolumne and Divisaadero, and innstalling a ttraffic signaal at the SR 99 and Venntura
northbouund off-rammp. In additiion, during the same yeear the Cityy planned too devise a foormal
engineerring design and prroduce thee environmmental doocument foor the Fuulton
Reconstrruction projject, which iis estimatedd to cost $244.5 million.
The Peach Avennue Widening project aims to widen Peach Avenue froom two lanes to
four lanes betweenn Belmont Avenue andd Butler Avvenue. Desiign and rigght-of-way were
completeed in FY 20013 with rooad construction schedduled for FYY 2014. Thee project haas an
estimateed total costt of $12.6 million.
The CCity of Fressno is also innvolved in the Californnia High-Speed Rail (HHSR) projectt that
proposes to connecct the Bay AArea to Souuthern Califfornia. The first phase of construction
will takee place in the Central Valley annd pass through the CCity of Fressno. The Ciity is
participaating in the planning prrocess along with Caltrrans, and thhe Californiaa HSR Authoority.
Construcction begann in FY 155. The Depaartment of Public Woorks anticippates addittional
revenue resulting frrom plan chhecks and fieeld inspectioons.
Other capital immprovementt projects pllanned for tthe next fivve years incllude installaation
of ADA compliant curb cuts throughoutt the City, installationn of the Inntelligent Trraffic
System (ITS) that will synchhronize 95 lights alonng five ITSS corridors using wirreless
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technoloogy, reconsttruction of Roy and AAlmy Streetss, and the VVeterans Boulevard/SR 99
interchaange projectt, which willl widen Veteerans Bouleevard and coonnect it to SR 99.
CHAALLENGEES
Simillar to otherr communitties, the Citty’s Street Maintenancce Division is experienncing
financingg challengess.
Somee street maintenance infrastructure programms have unddergone a budget reduction
due to aa decrease in gas tax and commmunity sanittation funding. The emmergency sstreet
service rrepair proggram experienced a reeduction off $43,500 inn FY 14. Thhe City willl still
respond to afterhoours street emergenciies, but thee protocol for responnding has been
changedd in an attemmpt to reduuce overtimme. The commmunity saanitation buudget withinn the
median island mainntenance prrogram hass also been reduced byy $744,4000. The reduction
will affecct tree trimmming, irrigaation systemms and equippment, and landscaping services.
Anotther challennge is preseented by thhe theft of ccopper wire from streeetlights. WWhile
theft hass decreasedd significanttly due to thheft deterreent measurees implemented by thee City
of Fresno, there is still a backloog of streetliight outagess that need to be addreessed.
SERVICEE ADEQUACY
This section revviews deferrred maintennance, congeestion, street sweepingg scheduless, and
street seervice respoonse time ass indicatorsof street maaintenance service adeequacy.
The condition oof street ppavement iss typically evaluated by local aggencies usiing a
Pavemennt Managemment Systemm (PMS), whhich regularly evaluatees pavemennt conditionn and
establishhes a cost-eeffective maaintenance strategy. Eaach segmennt of pavemment is rated for
distress (i.e., crackss and potholles) and thee extent andd severity oof distress. HHaving an uup-to-
date PMS allows the local agenncy to quickkly and efficciently gaugge road maiintenance nneeds
and efficciently alloccate resourcces. It was reported thhat the streeet maintenance divisioon of
the City Public Woorks Departtment mainntained the PMS as a part of thee administration
division.. The PMS is reporteddly updatedd quarterly; however, tthe date thhe PMS wass last
updated was not prrovided. Thhe life cycle of pavemeent in good condition ccan be extended
through preventatiive maintennance by applying a tthin layer of asphalt mixture, bbetter
known as slurry ssealing or seal-coatinng. When ppavement iis in fair ccondition——with
moderatte potholes and crackss—it can bbe treated wwith one- tto two-inchh thick overrlays.
Pavemennt with mminor strucctural disttress—with significannt cracks——often requires
rehabilittation, invollving grinding of portioons of the exxisting streeet and appliication of a thick
overlay. Pavement with majorr structural distress—wwith extenssive cracks——often requires
reconstrruction invoolving removval and repllacement off the street ssegment.
Unfortunately, ffunding leveels from staate and fedderal resourrces have nnot kept up with
the additional demaands needed to maintaain existing streets andd roads let aalone addittional
infrastruucture that will be neeeded to suupport neww development. On thhe federal llevel,
transporrtation fundding, which is reliant on a per galllon tax, hass remained unchanged over
several ddecades. Duuring this time, vehicles have beenn increasinggly efficient resulting inn less
revenue being geneerated whilee the numbeer of miles ttravelled has increasedd. Funding aat the
state levvel has a nuumber of thhe same chhallenges ass the primaary funding source of state
transporrtation fundds are derivved from taxxes on gasooline and dieesel. The immprovemennts in
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fuel economy, combined with a reluctance to increase federal and state fuel taxes, is
negatively impacting the level of funding needed to maintain roads, streets, sidewalks, etc.
Pavement management studies have shown that it is more cost effective to maintain
pavement in good condition over its useful life than to let it deteriorate to the point that it
requires a major overlay or reconstruction. Deferring maintenance can increase long-term
maintenance costs as much as four times greater than a consistent preventative
maintenance strategy, according to the Transportation Research Board. Street
reconstruction is typically needed once asphalt is 20-35 years old, with the asphalt lifespan
depending on the use of preventative maintenance efforts.
The City of Fresno has performed preventative maintenance on many of its roadways,
including crack sealing in FY 12-13. Due to the high cost of street reconstruction, in FY 14
the City increased its budget for its crack seal program and intends to crack seal additional
roads to extend their lifespan. Having an up-to-date PMS facilitates this process by tracking
the condition of all road segments to ensure that preventative maintenance is being
provided where it is needed most.
Traffic congestion is measured based on the daily number of vehicle hours of delay due
to congestion. Historically, Level of Service (LOS) analysis has relied upon a conventional
perspective of the primary use of public streets by motor vehicles rather than considering
all modes of travel, including public transportation, bicycling and walking. LOS on streets
and highways is rated on a scale of A-F, where “A” is the best rating and “F” the worst. LOS
“E” means significant delays, unstable traffic flow, and rapidly fluctuating speeds and flow
rates; LOS “F” means considerable delay with forced traffic flow and speeds dropping to
zero.
The General Plan proposes a balanced transportation system in the City of Fresno,
which serves public transit, bicyclists and pedestrians as well as motor vehicles. The City’s
General Plan envisions that a context-sensitive LOS system can be developed, which will be
more responsive to the City’s needs than the traditional system.84
The City finds it more useful to use an LOS system that includes all modes, in part by
measuring performance with qualitative indicators for each mode based on inputs covering
facility design, facility controls, and volumes. The new system, similar to the traditional
one, uses an A to F scale, but instead of just focusing on vehicle travel, it measures ease of
travel for pedestrians, bicycles and public transit users. A multi-modal LOS system is
expected to help support the development of more intense land uses where desired by
permitting localized automobile congestion, if walking, biking, and transit systems operate
at high levels.
Street sweeping services are provided directly by the City. Mechanical street sweeping
of the City’s residential streets occurs once per month during the day. Major streets are
swept once a week; however, they are swept more frequently during the fall season due to
the increased amount of leaves. The Downtown area is swept three times per week at
nights and on weekends.
84 City of Fresno, General Plan Update, Mobility and Transportation, 2014, p. 4-13.
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The City reported that it received 1,339 calls per year for road repairs during calendar
year 2013. Traffic signal repairs are handled directly by the City. There is a 60-minute
response time policy for completing a traffic signal service call.
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1 6. TTR A NSSP ORRTATT I O N S E RVV I C ESS
SERVICEE OVERVVIEW
Fresnno Area Exppress (FAX)) is the Cityy of Fresno’’s public traansit systemm. FAX provvides
fixed rooute servicee for the general puublic and pparatransit service foor citizens with
disabilitiies 363 dayys a year thrroughout thhe City of Frresno and iin some areeas of Cloviss and
the Counnty of Fresno. The Citty of Fresnoo’s Departmment of Traansportationn manages FAX,
which opperates 16 ffixed routess, seven days a week ussing a fleet oof 108 busess.
The Department also offerrs Handy Riide, a parattransit servvice for peoople who caannot
functionally use thee City bus syystem, in acccordance wwith the Ameericans withh Disabilitiees Act
(ADA). HHandy Ride is a sharedd ride, curb--to-curb serrvice, provided from any origin too any
destinatiion througghout the service aarea for aany trip ppurpose. TThis speciaalized
transporrtation servvice operatees seven dayys a week, dduring the ssame hours and days aas the
FAX Cityy bus systemm and is conntracted throough Keoliss Transit Ammerica.85
FAX’ss regular addult fare peer one-way trip is $1.25, which beecame effecctive Januarry 10,
2011. Chhildren undder age six ride for frree, and senniors and tthe disabled pay 60 ccents.
Beginninng in 2005, FAX introoduced the monthly MMetro Pass,, which alloows passenngers
access too unlimited use of the FAX and Cllovis fixed rroute systemms. Free traansfers are valid
for ninetty minutes aand allow riiders to use up to two aadditional bbuses in ordder to compllete a
one-wayy trip. Bus trransfers cann be made oonly where routes inteersect, and aare not valiid for
layoverss or return ttrips. Handyy Ride fare iis $1.50 for ADA eligible individuaals, but perssonal
care atteendants ridee for free.
FAX offers variious free programs inncluding moobility deviice markingg and tetheering
strap, puublic outreaach, and muultilingual mmaterial andd advertisemments. The mobility device
markingg and tetherring strap pprogram is designed tto properlyy secure moobility deviices86
used by passengers traveling oon FAX buses. Assistancce with boarrding or exiiting, wheelchair
securemment, lifts annd fare paymment is avaailable fromm bus driverrs when necessary or uupon
request.
Publiic outreach consists of providing iinformationn on how to use public transit andd how
to read schedules and maps to various social servvice groupss, includingg senior grooups,
studentss and new immigrants.. In an attemmpt to famiiliarize citizzens with thhe advantagges of
using trransit, FAXX also provides muultilingual materials and use of multilinngual
advertisements amoong multicuultural commmunities.
FAX partners wwith the Ciity of Fressno Police Departmennt to deliveer system wide
protectioon. Uniformmed patrol oofficers are often on buses and att transit faccilities. FAXX also
85 FAX beggan operating HHandy Ride in 1977. In order to effectivelyy carry out thee provisions off the Americanns with
Disabilitiess Act of 1990, FAAX awarded thee contract for HHandy Ride servvice to Laidlaw (formerly Mayfflower) effectivve April
3, 1993. In December 20005, MV Transpoortation assumeed the contractt and provided service until DDecember 2012,, when
the contracct was awarded to Keolis Transsit America to ccontinue paratraansit operationns.
86Mobility devices are caategorized as mmanual wheelcchairs, power wwheelchairs, annd three or foour wheeled sccooters
designed annd sold for peopple with disabillities.
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participates in video policing throughout the City with surveillance cameras aboard the
buses and at stations. In 2012, FAX completed installation of digital video systems on board
all of its buses, and the initiative is serving as a deterrent to vandalism and other crimes. In
addition, the Department enhanced transit facility security, including an access control
system and base facility video monitoring.
FAX is also involved with special community services. The Department participates in
Project Safeplace, a national partnership of community organizations, schools, and
neighborhood businesses that provide Safeplace designated locations for children and
runaways who may be exposed to crime and exploitation. Each one of FAX’s 108 buses is a
designated Safeplace, and since the inception of the program, over 300 youth have been
assisted through the program.87
Additionally, in an effort to work more closely with the non-profit community, FAX
makes available space within the buses for various organizations to provide information at
no charge. During FY 14, over 20 different agencies used this service to provide
information regarding social services such as Narcotics Anonymous, Girl Scouts of America,
Social Security Administration, and the Workforce Development Department.
Although the City of Fresno is the agency responsible for providing metropolitan transit
service and for implementing short and long range transit plan recommendations, its
actions may be affected by policies and programs of external agencies. These agencies
include the Federal Transit Administration (FTA), the State of California Transportation
Department (CALTRANS), the Fresno Council of Governments (Fresno COG), Fresno
County, the City of Clovis, the Fresno County Rural Transit Agency (FCRTA), the
Consolidated Transportation Service Agencies (CTSA), and various private transportation
operators.
In terms of collaboration, the City is participating in the planning process of the
California High Speed Rail (HSR) along with Caltrans, and the California HSR Authority. The
HSR project proposes to connect the Bay Area to Southern California when it is completed.
The first phase of construction will take place in the Central Valley and pass through the
City of Fresno.
Location
FAX covers a 104-square mile service area within its municipal boundaries. Of the 16
routes FAX operates, eight routes serve downtown Fresno. The structure of FAX’s route
network is grid-like which simplifies passenger understanding of the service and tends to
maximize opportunities to transfer between bus routes. However, as development has
continued to spread northward, the downtown transit hub has shifted towards the
southwestern edge of the FAX service network and is no longer near the center of the
service area.
FAX operates Route 9 within the City of Clovis, and receives funding from Clovis for this
service. FAX also operates some fixed routes and offers Handy Ride services to
87City of Fresno, Fresno Area Express, Short Range Transit Plan 2014-2018, Adopted June 27, 2013, p.44.
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unincorpporated urbban areas aand receivees funding from the CCounty of FFresno to ooffset
operatinng costs for tthis service.
Fresnno County pprovides suupport for rrural transiit services tthrough thee Fresno Coounty
Rural TTransit Agency (FCRTTA)—a joinnt powers agency creeated in AAugust 19779 to
coordinaate and opeerate rural transit servvices in Freesno Countyy. FCRTA, thhrough conntract
providerrs or privatee carriers, pprovides inttra-city and intercity seervice to rurral communnities
and dowwntown Fressno. Intercitty service too Fresno is provided vvia municipaal providerss and
through Greyhoundd and Orannge Belt Sttages. The rural systeems interface with FAAX in
downtowwn Fresno.
Demand
FAX generally offers bus seervice sevenn days per week, fromm 5:30 a.m. until 10:00 p.m.
on weekkdays and frrom 6:30 a..m. to 7:00 p.m. on weekends. Reeservation hhours for HHandy
Ride aree from Monnday to Sunnday from 88:00 a.m. too 5:00 p.m.,, with the llatest schedduled
pick-up offered at 9:30 p.m. on weekdaays and 7:000 p.m. on weekends.. In FY 14, FAX
providedd more thann 12 millionn fixed-route and 207,3322 demandd-response passenger ttrips,
with an aaverage of 336.7 passengers per hoour.88
Therre are no exxpress busess in the FAXX system forr commuterrs, and all bbuses operaate as
local serrvice, with frequent sttops. Althouugh there ddoesn’t apppear to be sufficient travel
demand to supportt commuterr express bbuses now, it is projeccted that byy the year 22030
there wiill be enoughh travel demmand alongg Highway 999 to warrannt an investtment in exppress
commuter buses to Sacramentoo and the noorthern Bayy Area. 89
It is eestimated tthat with the growth off the City off Fresno poopulation, thhere will alsso be
an increase in riderrship, resultting in the doubling off transit tripps by 2030, particularly to,
from andd within dowwntown. Frrom the exissting base off about 11,0000 daily traansit trips, 22030
is projeccted to expeerience an inncrease to 220,000 dailyy transit tripps, and 20550 an increaase to
41,000 ddaily transitt trips.90 Thhe introducttion of Bus RRapid Transit (BRT) annd other service
enhanceements would help in abbsorbing future demannd.
STTAFFING
The Departmennt of Transpportation iss responsible for the dday-to-day management of
FAX. FAAX has 407.00 full-time eequivalent ((FTE) emplooyees and cconsists of ffive divisionns, all
headed bby the Direector of Traansportationn. Divisions of the Deppartment off Transportaation
include administraation, operaations, mainntenance, ssupport serrvices, plannning, and fleet
managemment.
The administraation divission (18.0 FTEs) is responsibble for inttergovernmental
coordinaation, budgeets, grant mmanagemennt, data colllection, commputer servvices, persoonnel,
contractt administraation, and poolicy develoopment.
88http://wwww.fresno.gov//DiscoverFresnoo/PublicTranspportation/FAXFFacts.htm
89San Joaquuin Valley Expreess Study by Nelson Nygaard, 22009.
90Kimley-Horn and Associaates, Inc., Bus RRapid Transit Maaster Plan, Junee 17, 2008, p.122
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The operations division is responsiblee for managing the daay-to-day opperations oof the
transit services, including driveer training. In FY 14, FAAX vehicle ooperations cconsisted off 223
permaneent bus driiver positioons and 16 transit suppervisor poositions. WWeekday service
currentlyy requires aan average of 180 drivvers, while SSaturday annd Sunday services reqquire
112 drivvers. The remmaining drivers are designated forr vacation aand sick relief.
The maintenance divisionn is responnsible for mmaintainingg the fixed route vehhicles,
monitoring the maaintenance of Handy Ride vehiccles, and mmaintaining bus stops and
shelters..
The pplanning division has ttwo employyees that prrepare transit related ddocuments such
as the Shhort Range Transit Plan and Regioonal Transpportation Plaan, and devvelop routess and
scheduling of transsit services.. The plannning division analyzes ridership ddata of the FAX
system tto conduct system evaaluations annd system aadjustmentts. The plannning division is
also respponsible forr public infoormation and outreach..
The ssupport serrvices divisiion employss eight FTEs that are rresponsible for oversigght of
the paratransit servvice contract and the cuustomer serrvice outletss.
The Transportaation Depaartment’s FFY 14 budget reflects an overaall decreasse in
employeees, due to the new Amalgamatted Transitt Union (AATU) contraact91, and tthree
defunded positions..
The newest divvision at FAAX is fleet managemeent (75.0 FFTEs). Durinng the cityywide
reorganiization in 2010, fleet mmanagemennt came undder the direection of thee Departmeent of
Transportation. Fleeet Managemment is responsible foor the acquiisition, repllacement, reepair
and mainntenance off almost all ccity vehicless.
FACCILITIESS AND CAPACITYY
FAX presently ooperates 1008 buses, 45 Handy RRide paratraansit vans, seven sedaans, a
maintenance facilityy, and a traansit center.. The Deparrtment alsoo owns and maintains mmore
than 1,600 bus stopps, over 1,6000 bus signss, and 700 bbenches.
FAX currently hhas an activve fleet of 108 vehicless, which inccludes over 80 compreessed
natural ggas (CNG) bbuses, and three hybrid electric bbuses. All nnew buses hhave low flloors,
outfittedd with ramps for easyy access byy passengerrs who use mobility ddevices, or have
difficultyy climbing sstairs. All FAAX buses havve bike rackks that can hhold at least two bicyclles at
a time. FFuture bus pprocuremennts will incluude three poosition bikee racks.
FAX'ss maintenannce facility, located at 2223 G Streeet, consistss of 49,000 square feett and
can accoommodate uup to 150 buuses. Howevver, limitedd bus parkinng space has preventedd this
facility frrom servingg more thann 125 buses. The maintenance diviision providdes standardd bus
maintenance and hhas facilitiess for bodywwork, paintiing, weldingg, machine tooling, annd air
conditioning.
FAX hhas focusedd its efforts on “Drivingg a Greener Future” witth environmmental programs
and techhnologies. AAs a result, the Departtment has added alterrnatively fuueled vehiclles, a
compresssed naturaal gas fuelinng station, onsite solaar panels, aand a wasteewater filtration
91 City of Frresno, Adopted BBudget Fiscal YYeear 2014, May 229, 2013, p. 32
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system. In FY 13, FFAX requiredd approximmately 35,0000 gallons oof diesel fuel per monthh and
an addittional 115,0000 gasolinne gallon eqquivalent ((GGE) of coompressed natural gass per
month tto operate all routes. FAX has foour underground diesel fuel storrage tanks each
providinng 20,000 gaallons of caapacity. Appproximatelyy 68 days off service could be provvided
with thee existing fuel storage ccapacity. FAAX has comppleted the innstallation of a CNG fuueling
station, wwhich produuces the reqquired CNG fuel for thee 80 CNG buuses.
Handdy Ride maiintains a total of 45 vaans and sevven sedans, which are maintainedd and
servicedd by Keolis TTransit Ameerica. The prreventative maintenannce schedulee for Handy Ride
vehicles consists of a regular tuune-up of veehicles to ennsure maximum performance andd fuel
economyy are obtaiined. Gasoliine tune-upps are perffoormed at 112 months or 15,000 mile
intervalss.
FAX maintains one transfeer center att Manchestter Mall andd three addditional transfer
centers in the dowwntown areea—all withhin the Cityy of Fresnoo. Due to age and uusage,
periodic rehabilitation of FAX’ss transit ammenities havve been neccessary to mmaintain theem in
an attraactive, safe and functiional condiition. Exammples of rehabilitationn needs incclude
sidewalkk repair, paainting and repair of sttructures, aand replacemment of benches and ttrash
receptaccles. In 20022, the Mancchester Centter was impproved and upgraded tto accommoodate
more customers. Modernizatioon improvemments to Maanchester CCenter and CCourthouse Park
Intermodal Transit Center are pplanned witthin the 5 yyear capital iimprovemeent programm.
In adddition, FAAX has morre than 1,6600 bus sttops, whichh need to be maintaained.
Passengeer amenitiees such as shhelters, benches, informmation signs, and trashh receptaclees are
providedd at many transit stoops. The CCity has ann ongoing transit stop improvemment
programm. Transit stop improveements are aalso provideed by privatte developeers as conditions
of project approval by the City. FAX mmaintains ovver 1,600 bbus stop information signs
throughoout the serrvice area. In 2012, FAAX replacedd all of its bus stop ssigns with mmore
customeer friendly, ddual sided signs.
Bencches are proovided at ovver 700 buss stops for tthe comfort of waiting passengerss, and
are often providedd at bus stops with cconcentratioons of eldeerly and moobility-impaaired
patrons. Benches are installedd based on passenger rrequest, riddership andd acceptablee site
conditions; althoughh the currennt bench program conssists primarrily of replaccement of oold or
damagedd benches.
INFFRASTRUCTUREE NEEDSS
FAX is proposinng some siggnificant cappital improvvements ovver the nextt five years. The
five-yearr capital impprovement program foor FY 16 thrrough FY 200 is projecteed to cost $1102.2
million. Capital exppenditures aare concenttrated in thhe followingg project arreas: heavy duty
30-40 fooot buses, modernizaation of Maanchester aand Courthoouse Park TTransit Cennters,
added lighting at buus stops, traansit signall prioritizattion, bus raapid transit (BRT), shoop lift
pumps, bus cleaning systeem upgraddes, passeenger ameenities, faccility upgrades,
infrastruucture repaair, AVL/GPPS upgrades, Handy RRide vehiclee purchases, security,, and
planningg. BRT is aa faster rubbber-tired light rail ttransit (LRTT) with grreater operating
flexibilitty and poteentially lowwer costs. FAAX was awwarded $38.55 million by the Fedderal
Transit AAdministration (FTA) to developp BRT betwween north Fresno, downtown Frresno
and the Southeast Developmeent Area. SService is tto be operaated using low-floor, low-
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emissionn compressed natural ggas buses thhat will be purchased as part of tthe project. BRT
service wwill replacee existing local servicee along thee corridor aand offer ddecreased travel
times thhrough fewwer stops, more frequuent servicce, and thee aforemenntioned priiority
treatmennts.
CHAALLENGEES
One of the primmary challennges FAX haas faced in recent yearrs has beenn driven in large
part by previous laand use deccisions thatt have resuulted in actiivity centerrs being loccated
outside FAX’s existting servicee area. Vaalley Childrren’s Hospittal, the Cloovis Commuunity
College, and the neww El Paseo Shopping Center have resulted in requests by the publicc and
policymaakers to exxtend bus sservice to tthese new areas. Witth the exceeption of VValley
Childrenn’s Hospital that pays thhe cost of prroviding serrvice to theiir site in Maadera, the coost of
expandinng services is in direct competition with the DDepartmentt’s ability too reduce waaiting
times annd/or operaating later aat night. Whhile the Cityy’s General PPlan calls foor the extennsion
of servicce into neiighborhoodds west of SR 99, thee short-termm emphasis will focuus on
improvinng wait timmes in an eeffort to geenerate an increase inn ridershipp and operating
revenues.
SERVICEE ADEQUACY
This section revviews indiccators of seervice adeqquacy. FAX uses severral performmance
measurees to assess system opeerating reliaability. Key indicators aare passenggers per revvenue
hour, tottal operating expense pper passengger, and totaal operatingg expense peer revenue hhour.
In orrder to evaluuate FAX’s pperformancce, a peer reeview analyssis with commparable trransit
systems was used. This approach was deerived by thhe Florida TTransit Infoormation Syystem
and uses a varietyy of criteriaa in the seelection proocess. The five transit agencies with
comparaable systemms to that of Fresno include El Paaso, Texas, AAlbuquerquue, New Meexico,
Tucson, Arizona, BBakersfield, California, and Stockkton, Califorrnia. All fivve agenciess are
Federal Transit Addministratioon grant recipients, annd are therrefore requuired to proovide
their sysstem perforrmance datta to the NNational Traansit database. Furtheermore, twoo are
Californiia agenciess that opeerate undeer the samme Califorrnia State Transportaation
Development Act GGuidelines.922 The most recent dataa available ffor this anaalysis is fromm FY
11.
Passeengers perr revenue hour meaasures the degree oof consumpption of ppublic
transporrtation servvices in relation to tthe amountt of servicee available,, which can be
indicativve of the leevel of servvice effectivveness and ability to mmeet custommer needs. FAX
placed vvery well ammong the sellected peerss in passenggers per revvenue hour with an aveerage
of 30.044 passengers. By commparison, thhe peer grroup averagged 22.68 passengerss per
revenue hour.
The operating ccost per passsenger is bbased on how much ccost is incurrred per unnit of
travel, wwhich is onee measure oof cost effectiveness oof transporttation servicces or the vvalue
obtainedd for the dollars invessted in trannsit. FAX’ss operatingg costs averraged $3.666 per
92City of Freesno, Fresno Arrea Express, Shoort Range Transsit Plan 2016-20020, Adopted Juune 25, 2015, p.61
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passenger, which ranked 3rd among the comparison agencies. The average cost per
passenger for all agencies was $3.81.
Operating cost per revenue hour measures how much cost is incurred per unit of
service, which is an indicator of cost efficiency of services. By having knowledge of the cost
structure on different routes, costs can be kept as low as possible while meeting safety and
operating rules. Such measures also provide insights on the cost of providing service in
areas, which are currently unserved or underserved. FAX spent approximately $119 per
revenue hour, which is fifth among the comparison group. Comparable transit agencies
averaged $92.34 in expenses per revenue hour. FAX’s higher operating cost per revenue
may be a function of greater service frequency than other providers.
FAX placed well in the peer review process, with a high level of consumption of public
transportation and a high value obtained for the dollars invested in transit. However, the
Department had a low level of productivity with the cost incurred per unit of service.
Although each of the systems used in this comparative analysis has its own unique set of
operating properties that can influence the various performance measures, there appears
to be room for improvement in FAX’s cost efficiency as indicated by its operating cost per
revenue hour. However, even in light of the potential for improved efficiencies, FAX has
been able to maintain an operating reserve and no longer relies on the General Fund to
cash flow its operations.
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1 7 . WASST EWWAT EE R SEE RVI CC ES
SERVICEE OVERVVIEW
The City of Freesno providdes collectiion, conveyyance, treattment, and reclamatioon of
wastewaater generaated by resiidential, commmercial and industriial sewer cuustomers inn the
Fresno-CClovis Metroopolitan Areea (FCMA).
The City is reesponsible for operaating the Fresno/Cloovis Regionnal Wastewwater
Reclamaation Facilityy (RWRF), located seveeral miles soouthwest off the City off Fresno, and the
North Frresno Water Reclamatiion Facility (NFWRF) llocated in nnortheast Frresno. The tthree
basic components oof the City’s wastewatter treatmeent and recllamation syystem consiist of
collectioon and convveyance of wwastewater,, treatmentt of raw wasstewater, annd managemment
of reclaimmed water aand bio-soliids.
The City providdes recycledd water in tthe form off treated efffluent allowwed to perccolate
into thee groundwaater to lateer be extraacted and used for iirrigation ppurposes orr for
immediaate restricteed irrigation at nearbyy farms or other propperties. Reecycled watter is
discusseed more in ddepth in the Water Servvices chapteer.
The City of Freesno Departtment of Public Utilitties managees a comprrehensive sewer
maintenance prograam in accorrdance withh its Sewer System Mannagement PPlan (2014). The
Departmment is alsoo responsibble for prepparing the Fresno Waastewater Coollection Syystem
Master PPlan, last updated in 2006.
The City also ooperates a federally-mmandated ppretreatmennt programm that reguulates
industriaal dischargee at the sourrce to preveent damage to sewer syystems and treatment pplant
structures and poteential pass tthrough to rreceiving wwaters. The ppretreatmeent programm sets
dischargge limitationns according to the waastewater trreatment facility’s needds. The Cityy acts
as the ennforcementt authority for the prettreatment pprogram byy issuing acctions that ccould
escalate from warnning noticess to cease aand desist oorders shouuld discharges constituute a
public hhealth and ssafety conccern. The CCity attemppts to contrrol the leveels of indusstrial
contaminnants enterring the sewwer system through peermitting, innspections, monitoringg, and
enforcemment of industries usinng the RWRRF services. Since its immplementattion in 19833, the
pretreattment program has suuccessfully reduced inntroductionn of metalss and regulated
pollutants dischargeed to the RWWRF. The mmost recent audit by thee Californiaa Regional WWater
Quality Control Booard found the prograam to be eeffective annd consisteent with fedderal
requiremments.
Additionally, inddustries aree billed for ssewer servicces depending on the aamount of wwater
used or effluent ddischarged and the sttrength of their wasttewater, thuus incentivvizing
industriaal users to improve ttheir water quality annd the amount of watter used annd/or
dischargged.
Demand
The City provvides wasttewater seervice to approximately 122,0000 residential,
commercial, industrrial and insttitutional acccounts, of which apprroximately 112,000 accoounts
are locatted outside of the City’ss municipal corporate llimits.
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However, demand as defined by flows at each of the treatment plants was readily
available in the City’s planning documents. The regional treatment facility received and
treated an annual average daily flow of approximately 59 million gallons per day (mgd)
during calendar year 2014.
The City’s North Fresno Recycled Water Facility (NFRWF) has a current permitted
capacity of 0.43 mgd, and the City has submitted a request to have the permitted capacity
increased to 0.71 mgd. During fiscal year 2015, the NFRWF treated an annual average daily
flow of 185,000 gallons per day, which leaves an available capacity of 245,000 (0.245 mgd)
gallons per day. All the effluent produced at the NFRWF is used for irrigation at the golf
course located at the Copper River Ranch Development.
Location
In addition to customers within City limits, the RWRF also provides wastewater
treatment service for portions of the City of Clovis, as well as unincorporated County
islands within the City of Fresno.
There are areas within the City’s boundaries where wastewater services are not
provided by the City. One such part is the area of overlap between Fresno and Malaga
County Water District (MCWD). MCWD’s service boundary and the City of Fresno overlap
in areas south of Central Avenue between Maple Avenue and South Chestnut Avenue. The
city limits also currently extend over MCWD’s boundaries south of Central Avenue, near
Maple Avenue. Fresno is not serving the overlap areas, as the City does not currently have
sewer lines in place near these areas.
Collection services are also not provided by Fresno within the City’s overlap areas with
Pinedale County Water District (PCWD) and Pinedale Public Utility District (PPUD). Within
these areas, the two districts own and maintain their own collection systems.
Other unserved areas include individual residences utilizing private septic tanks. The
City encourages these residents to abandon their private systems and connect to the City’s
sewer system to reduce nitrate contamination of groundwater supplies in and around the
City.
Besides providing wastewater collection and treatment services to city residents, the
City provides treatment and some collection services to several agencies serving territory
outside of the city limits, including unincorporated areas in the County of Fresno, the City
of Clovis, Pinedale Public Utility District, and Pinedale County Water District.
The City provides extra-territorial services to the City of Clovis through four
connections between the two collection systems. A portion of wastewater flows are
collected by the City of Clovis and discharged into the City of Fresno system for treatment
at the regional treatment facility. All four connections—on Herndon, Fowler, Peach, and
Sierra avenues—are metered by Fresno.
In addition, the City of Fresno maintains sewer lines in the Tarpey Village area, which is
located outside of the Fresno and Clovis boundaries, but within the City of Clovis SOI. The
wastewater flow from this area is also treated at the regional wastewater facility.
Pinedale County Water District is primarily located within the City of Fresno, but
portions of the District are located within some unincorporated island areas surrounded by
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the City. The District provides wastewatter service to over thhree thousand connecttions.
Wastewaater collecteed within thhe District iis dischargeed into the City’s collecction systemm for
transporrt to the RWWRF for treeatment. Thhe City of Frresno proviides wastewwater treatmment
services to PCWD tthrough ann existing seervice agreeement. Most district rresidents reeside
within thhe City.
Pineddale Publicc Utility DDistrict alsoo providess wastewatter collectiion servicees. A
significant portion of the Distrrict and its customers are locatedd within thee City of Freesno.
The Disttrict providdes wastewwater service to over ttwo thousand connecttions. Similaar to
Pinedalee County WWater Distriict, PPUD mmaintains its own sewwer collection systemm and
dischargges effluent into the Citty of Fresnoo’s collectioon system foor transportt to the reggional
wastewaater plant foor treatmennt. The City of Fresno pprovides wastewater ttreatment too the
District through ann existing sservice agreeement. PPPUD also prrovides colllection services
outside oof the its cuurrent bounddaries, incluuding the arreas betweeen Marks Avvenue, Valenntine
Avenue, Chenault Avenue, and Bluff AAvenue, whhich are wwithin the City of Frresno
boundarries and servvice area.
STTAFFING
The Departmennt of Publicc Utilities (DPU) provvides wateer, sewer aand solid wwaste
services the commuunity. Organnizational chhanges to ennhance efficciency resullted in the sewer
maintenance division mergingg with the wastewateer managemment divisioon (WMD). The
WMD opperates andd manages mmost aspectts of the Citty’s wastewwater systemm. The WMMD is
responsiible for thee collection and treatmment of sewwer conveyyed throughh the collection
system aand into thhe RWRF and the NFWWRF. WMDD’s administtration andd environmental
services establish ggoals, organnizational rooles and immplementation responssibilities for the
Sewer Syystem Manaagement Plaan (SSMP). WWMD impleements the fats, oils annd grease (FOG)
programm through tthe pretreatment proggram and hhas the legal authorityy to enforcce its
requiremments.
WMDD, through tthe Collectioon System MMaintenancce (CSM) woorkgroup, iss responsiblle for
operatinng and mainntaining thee collection system to eensure adeqquate sewer conveyannce to
the commmunity. CSMM manages the inspecttion, mainteenance and minor repaairs of the sewer
collectioon system aand related infrastructtures. CSM is also respponsible for respondinng to
sanitary sewer oveerflow (SSOO) calls andd subsequennt notificatiions and plan of actioon to
address the causess. Data gatthered throough preventive and reactive mmaintenance and
assessment of sewwer lines provides toools for monnitoring, mmeasuremennt and proggram
modificaations as wwell as reguular updatees of estabblished perfformance mmeasures. WWMD
Technicaal Services mmanages alll sewer colllection capiital improveement projeects that incclude
rehabilittation of exxisting or cconstructionn of new ppipelines thhroughout the City, sewer
modeling and the uppdate of thee Wastewateer Collectionn System Maaster Plan.
The CCity’s Publicc Utilities Department aalso consistts of the admministrationn division, wwater
division,, and solid wwaste management division.
The administrattion divisioon coordinaates the delivery and developmeent of the CCity’s
utility seervices, inccluding overrsight and support off the three operating divisions inn the
areas off strategic bbusiness plaanning, resoource manaagement, orrganizational developmment,
personnel and laboor relations,, fiscal management, pproject management, annd performmance
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metrics. Also, includded within tthe division is the utilitty billing annd collectionn section and the
utility pllanning andd engineerinng section.
The DDirector of Public Utiliities is in chharge of all four divisioons and acccountable too the
City Mannager. The WMD conssists of the technical aand engineeering project managemment,
operatioons, mainteenance, envvironmentaal services,, and colleection systtem units. The
Departmment of Publlic Utilities eemploys 6114.75 full timme equivaleent (FTE) sttaff, out of wwhich
168.0 FTTEs are employed by tthe wastewwater managgement divvision. The nnumber of FTEs
within thhe division hhas increaseed by 2.75 ssince the lasst fiscal year.
The RWRF is sttaffed 24 hoours a day with operaators who aare able to respond too any
situationns that arisee. Mechaniccal and electtrical staff mmembers arre on-call 244 hours a dday in
case of aa failure thhat requiress their immmediate assiistance. Maiintenance ccrews cleann and
perform repairs daaily on thesse sewer main lines too keep themm free of oobstructionss and
debris. TThe duty or on-call creww is expecteed to responnd to the sitte within onne hour afteer the
call is reeceived. Assessment, coontainment and volumee estimationn are perforrmed as sooon as
possible.
Trainning is facilitated within the City and by outtside traininng events aand conferences.
New employees shaadow more experienceed staff to geet trained inn the propeer operationn and
maintenance of equuipment andd facilities. IIn addition, staff is trained on acceessing data from
remote aareas includding checkiing or closiing work orrders or doownloading videos intoo the
storage ssystem for bback up. Technical traiining is alsoo provided tto develop sstaff and to keep
abreast of new tecchnology, inndustry updates, currrent and uppcoming reegulatory issues,
policies and proceddures and too improve pprocess and efficiency. Cross trainning is facilittated
and encoouraged to ensure prooper coveragge in all asppects of thee job and thhat those caan be
performed without interruptioon.
FACCILITIESS AND CAPACITYY
The wastewater managemment division maintaiins a wasttewater colllection sysstem,
comprised of approoximately 1,,500 miles oof sewer pipping, servinng the sanitaary sewer nneeds
of a popuulation exceeeding 500,0000 residennts.
The City’s wasteewater systtem is compprised of twwo wastewaater treatment facilitiees, an
extensivve 1,507-mile system oof main lines (of whicch 13 miless are force mains), 233,275
manholees, and 15 lift stationss. The Cityy provides wastewaterr service too approximmately
122,000 residentiaal, commercial, industtrial and innstitutionall accounts, The collection
pipelines consist off smaller diaameter pipees (six to 100 inches) serrving indiviidual properties,
larger coollection pippelines (10 to 27 inches) typically referred too as “oversizzed sewers,”” and
sewer trrunk interceeptors (30 inches and larger) whhich conveyy sewage to the RWRF. The
age and condition oof the collecction systemm varies coonsiderably over the seervice area with
some pippelines dating back to tthe 1890s. TThe majorittyy of the colllection system (56 perccent)
consists of vitrifiedd clay pipe (VCP), and roughly onne-third of tthe collectioon system ((30.8
percent)) consists off polyvinyl cchloride (PVVC) pipe.
The wastewaterr collectionn system coonveys wasstewater prrimarily byy gravity too the
RWRF, wwhich is opperated by the City of Fresno. GGenerally, wwastewater flows fromm the
northeasst to the soouthwest. TThe City also conveyss wastewatter from Clovis, PPUDD and
PCWD.
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As a condition of a Federal Clean Water Grant, the City was designated the Regional
Sewer Agency for the Fresno Clovis Metropolitan Area in 1966. While Fresno and Clovis
each independently operate and maintain their own collection systems, the City of Fresno
operates the RWRF under a joint powers agreement (JPA) with Clovis and the County of
Fresno. Through the JPA, Clovis has capacity ownership and rights to purchase additional
capacity in the RWRF. Clovis currently has a total useable capacity in the regional system of
9.30 mgd, with the potential to be expanded to a maximum of 15.87 mgd. The City owns the
remaining capacity.
The regional facility is located southwest of the City in the area generally bounded by
Jensen, Cornelia, Central and Chateau Fresno Avenues. The first wastewater treatment
facilities were constructed at this site in 1947, although the site has been used for
wastewater disposal since 1907. After several expansions and upgrades, the RWRF
currently provides secondary treatment and has a rated capacity of 88 mgd average
maximum monthly flow, 80 mgd average annual flow and 160 mgd peak hour flow. The
City is currently implementing upgrades and modifications to the existing regional facility
to produce recycled water to increase the capacity of the regional facility.
The regional facility employs an activated sludge wastewater treatment process, which
produces un-disinfected secondary effluent. Treated or reclaimed wastewater is directed
to 1,660 acres of ponds to percolate into the ground. A portion of the reclaimed wastewater
is also supplied directly to nearby farmers to irrigate fodder and fiber crops, such as alfalfa
and cotton. In addition, some of the percolated effluent is extracted from the groundwater
beneath the basins by pumping and is recycled for irrigation by delivery to the Fresno
Irrigation District canal system. During 2011, 10,896 af of effluent was delivered directly
to nearby farmland, and 5,150 af was extracted and delivered to the FID canal system for a
total of 16,046 af recycled for irrigation use. This represents approximately 22 percent of
the wastewater received and treated by the RWRF in 2011. During the period from 2000
through 2011, the proportion of wastewater treated and recycled for irrigation use in this
manner has varied irregularly from 22 percent to 52 percent. Bio-solids are picked up daily
by a composting company, which further treats and mixes them with other materials,
making a product that is sold in the market as fertilizer.
Methane gas, a by-product of the solids digestion process, is burned to produce
electricity at a co-generation facility at the RWRF. The electricity is used to offset the need
to purchase power to operate the facility. In the event of an extended power failure, this
electricity would also serve as a backup power supply to keep the treatment plant in
operation.
The City’s North Fresno Recycled Water Facility (NFRWF) has a current permitted
capacity of 0.43 mgd, and the City has submitted a request to have the permitted capacity
increased to 0.71 mgd. During fiscal year 2015, the NFRWF treated an annual average daily
flow of 185,000 gallons per day, which leaves an available capacity of 245,000 (0.245 mgd)
gallons per day. All the effluent produced at the NFRWF is used for irrigation at the golf
course located at the Copper River Ranch Development. During wet weather months,
recycled water in excess of turf demands is dechlorinated and sent to a nearby percolation
basin owned and managed by Fresno Metropolitan Flood Control District, and used to
irrigate landscaped areas within the basin.
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Infrastructure Capacity Analysis
Treatment System Capacity
The Fresno-Clovis Regional Wastewater Reclamation Facility is permitted to discharge
80 million gallons per day (mgd) to the percolation ponds on annual monthly average
basis, and 88 mgd on a maximum monthly basis. During calendar year 2014, the average
annual flow to the Fresno-Clovis Regional Wastewater Reclamation Facility was 59 mgd,
which provides an available capacity of 21 mgd. The available capacity of 21 mgd equates
to an additional population count of approximately 175,000 person.
The 2006 Fresno Wastewater Reclamation Facility Master Plan anticipated that the
RWRF would reach its capacity by 2010; however, as noted the volume of wastewater has
declined in recent years. Consequently, it is possible that the plant has sufficient capacity to
accommodate growth for several years beyond what was previously anticipated.
Nonetheless, the City is required by state statutes to begin planning for increased capacity
when flows reach 75 percent of the existing design capacity.93
The City’s current wastewater master plan was completed in May 2006 and is based on
the 2025 General Plan land use areas. The 2006 Wastewater Master Plan projects an
average dry weather wastewater flow rate of 150 mgd for 2025 General Plan build-out. The
City of Fresno has developed a wastewater model based on the existing wastewater system
infrastructure and the new land use designations in the General Plan. The projected
wastewater flows were estimated using the General Plan land use designations together
with equivalent dwelling unit factors for each land use designation. The total calculated
average dry weather flow projected for build-out using the General Plan land use
designations is 183.6 mgd, which exceeds the 2006 Wastewater Master Plan value by 33.6
mgd.94 Flow projections are not made according to a particular timeline, but instead
indicate anticipated flow once planned land uses reach buildout.
In the City’s General Plan, the City has adopted the objective regarding wastewater
treatment facilities to “ensure the provision of adequate sewage treatment and disposal by
utilizing the Fresno-Clovis Regional Wastewater Reclamation Facility as the primary
facility, when economically feasible, for all existing and new development within the
Metropolitan Area.” To support implementation of this objective, the City adopted the
following policies:
93 City of Fresno, General Plan Update, December 2014, p. 6-18.
94 City of Fresno, Wastewater Technical Report for the City of Fresno General Plan Update MEIR, June 18, 2013, p. 1.
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PU-6-a: Treatment Capacity and Cost Recovery. Prepare and consider the
implementation of increased wastewater treatment and reclamation facility
capacity in a timely manner to facilitate planned urban development within the
Metropolitan Area consistent with the General Plan. Accommodate increase in flows
and loadings from the existing community with the capital costs and benefits
allocated equitably and fairly between existing users and new users, as authorized
by law.95
PU-6-b: Consider Capacity in Plan Amendments. Monitor wastewater treatment
plant flows and loadings to the extent feasible. Consider the effects on wastewater
treatment capacity and availability of potable water when evaluating proposed
General Plan amendment proposals, community plans, specific plans, neighborhood
plans, and concept plans.96
Collection System Capacity
The 2006 Master Plan identified over 130 projects as necessary to accommodate the
projected development anticipated by the 2025 General Plan, and 2006 Master Plan will be
updated to reflect changes between the 2025 General Plan and the 2035 General Plan. The
update may or may not require additional capacity improvement projects.
The results of preliminary wastewater collection system modeling indicate that the
remaining capacity improvement projects included in the 2006 Wastewater Master Plan CIP
can be expected to provide sufficient sewer capacity to accommodate General Plan buildout
wastewater flows for those particular sewers. The 2006 Master Plan will be updated to
reflect changes between the 2025 General Plan and the 2035 General Plan. The update
may or may not require additional capacity improvement projects.
With regard to capacity of the wastewater collection system, the City has adopted
policies to meet the objective outlined in the City’s General Plan to “ensure provision of
adequate trunk sewer and collector main capacities to serve existing and planned urban
development, consistent with the Wastewater Master Plan.” These policies include the
following:
PU-4-a: Plan for Regional Needs. Coordinate and consult with the City of Clovis,
pursuant to the Fresno-Clovis Sewerage System Joint Powers Agreement, so that
planning and construction of sewer collection facilities will continue to meet the
regional needs of the Metropolitan Area.
PU-4-b: New Trunk Facilities. Pursue construction of new or replacement sewer
trunk facilities or other alternatives consistent with the Wastewater Master Plan to
accommodate the uses as envisioned in the General Plan.
PU-4-c: System Extension and Cost Recovery. Pursue enlargement or extension of
the sewage collection system where necessary to serve planned urban development,
95 City of Fresno, General Plan, 2014, p. 6-22.
96 Ibid.
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wwith the capital costs and beneffits allocateed equitablly and fairrly betweenn the
exxisting userrs and new uusers.
PU-4-d: Cappacity Moddeling. Conntinue deveelopment aand utilization of cityywide
seewer flow mmonitoring aand computterized floww modeling to determinne availability of
seewer collecttion systemm capacity too serve plannned urban ddevelopmennt.
PU-4-e: Evaaluate and Maintain IInfrastructuure. Promoote the heallth and safeety of
thhe communnity, and ppreserve the longevityy and sounnd condition of the sewer
coollection system througgh evaluatioon and mainntenance off the sewer iinfrastructuure.
INFFRASTRUCTUREE NEEDSS
Part of the Cityy’s ongoingg infrastructure needss is routinee system mmaintenancee and
regular preventativve maintenaance. Preveentive mainntenance iss focused oon critical, hhigh-
maintenance sewerr mains thaat require more frequuent inspecction, mainntenance annd/or
repair. IInspections of sewer llines using closed circcuit televisiion (CCTV) are done on a
scheduleed and systeematic basiss. Video is rreviewed to determine condition oof the line, wwhile
data of the visuaal inspectioon is enterred into PPipeTech—aa database that commpiles
informattion of the surveyed lline. Sewer lines and manholes aare rated aaccording too the
Nationall Associatioons of Sewwer Servicce Companny (NASSCOO) Pipe AAssessment and
Certificaation Prograam (PACP) aand Manholle Assessmeent and Cerrtification Prrogram (MAACP).
The ratinng is reviewwed to deterrmine mainttenance andd/or rehabillitation prioorities.
The City budgeeted about $13 millioon in its caapital imprrovement pprojects forr the
construcction of neww sewer coollection inffrastructuree that will include 2,7700 feet of new
sewer lines along CCedar Avennue north of Central AAvenue, 3,1000 feet of nnew sewer lines
along Orrange Avennue north of Central Avvenue, 3,1000 feet of nnew sewer lines along East
Avenue north of Ceentral Avennue, and 2,7700 feet off new seweer infrastruccture in Ceentral
Avenue eeast of Orannge Avenue..
Therre are plans for severral other reepairs, rehaabilitationss, replacements, and oother
capital immprovemennts at the treeatment faccilities and oon the collecction systemm.
Mostt of the City has relattively low infiltration and infloww (I/I) ratess, and thereefore
collectioon system reconstrucction to provide thee capacity needed too eliminate or
substanttially reducee I/I would not be fiscaally prudentt.
The CCity plans too construct up to three satellite recycled wateer treatmennt facilities in the
eastern portion of the City’s service areea. The faacilities willl be used to capture raw
wastewaater for recyycled waterr productionn in closer proximity tto recycled water demmands
on the eaastern portiion of the City. In addition, the Citty is in the mmidst of connstructing PPhase
I of the TTertiary Treatment annd Disinfectiion Facility (TTDF) at the Fresno-Clovis Reggional
Wastewaater Reclammation Facillity. The TTTDF will bee constructeed in three phases: 5--mgd,
10-mgd, and 15 mggd. Phase II of the TTDDF facility iss currently under consstruction wwith a
capacityy of 5-mgd, aand it is schheduled to bbe placed innto service SSeptember 22016, and PPhase
II is scheeduled to bee placed intoo service byy June 30, 20019.
The City has allso plannedd for the accquisition oof land andd developmment of rechharge
facilitiess to supportt the increaased distribbution and uuse of recyycled water throughouut the
region via groundwwater recharrge.
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CHAALLENGEES
The City has prepared masster planninng documennts for the wastewateer collectionn and
conveyance systemm, wastewatter treatmennt systems,, and recycled water ffacilities. TThese
documennts are reviewed and updated onn a continuuous basis tto ensure thhat the Cityy has
sufficiennt capacity to meet exxisting and future demmands. Thee current raate plan forr the
Wastewaater Managgement Division has beeen in placee since Septtember 20110. The revvenue
generateed from the existing ratte plan is suufficient to mmeet the Citty’s capital, operationss, and
maintenance requiirements thhrough Junne 30, 20199. The Ciity proposees to initiaate a
Proposittion 218 proocess in appproximatelyy July 2018 to adjust thhe sewer rattes for the CCity’s
residenttial, commerrcial, industrial, and innstitutional accounts. It is currenntly planned for
the new sewer ratess to becomee effective Juuly 1, 2019.
SERVICEE ADEQUACY
This section revviews indicaators of serrvice adequuacy, includding regulattory compliance,
treatmennt effectivenness, sewer overflows aand collection system iintegrity.
Figure 17-1: City of FFresno Wastewater Serrvice Adequaacy Indicatoors
WWastewateer Servicee Adequacy and Effficiency
Regulatory Compliaance Recordd, 2010-13
Formal Enfforcement Actions 0 Infformal Enforcemment Actions 2
Informaal Enforcemeent Action TTyype Deescription ooff Violationss1
Notice of VViolation 6/11/2013 3 vviolations of ordder conditions att treatment plantt
Notice of VViolation 2/16/2013 Twwo SSOs in collecction system
Total Vioolations, 20010 - 2013
Total Seweer System Violatiions 114 Priiority Violationss 0
Total RWRF Violations 8 Priiority Violationss 0
Service AAdequacy Inndicators
Treatment Effectiveness RRate2 97%% Sewwer Overflows 22010 - 20133 57
Total Employees (FTEs) 168.0 Sewwer Overflow RRate4 1
MGD Treated per FTE 0.336 Customer Complaiints CY 13: Odorr (NP), spills (NPP), other (NP)
Source CControl and Pollution Prrevention Prractices
The City alsso operates a fedderally-mandateed pretreatmentt program that reegulates industrrial discharge at tthe source to prrevent
damage to ssewer systems aand treatment pllant structures aand potential passs through to recceiving waters.
Collectioon System Innspection Prractices
Inspection of sewer lines uusing CCTV are on a scheduled annd systematic baasis. Video is revviewed to determine condition of the
line, while ddata of the visuaal inspection is eentered into PipeeTech, a databasse that compiless information of the surveyed linne.
Notes:
(1) Order or Code Violations incclude sanitary seweer overflow violationns.
(2) Total nummber of compliancee days in 2013 per 365 days.
(3) Total nummber of overflows eexperienced (excluding those caused bby customers) fromm 2010 to 2013 as reported by the aggency.
(4) Sewer ovverflows from 20100 to 2013 (excludinng those caused by customers) per 1000 miles of collectionn piping.
The CCity was isssued 14 sewwer system violations between 20010 and 20013, all of wwhich
were rellated to sannitary sewerr overflows (SSOs). In aaddition, duuring the saame time peeriod,
there weere eight violations isssued regardding operatiions at the RWRF, of wwhich one wwas a
pretreattment violattion, three were orderr violationss, one was an effluentt violation for a
group 2 pollutant, aand three vioolations weere for exceeeding the electrical connductivity limmit.
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All wastewater treatment providers are required to comply with effluent quality
standards under the waste discharge requirements determined by RWQCB. The City
reported that in 2013, it was in compliance with effluent quality requirements 97 percent
of the time. Electrical conductivity violations accounted for all days on which the City was
not in compliance with waste discharge requirements.
All wastewater agencies are required to report sewer system overflows (SSOs) to
SWRCB. Overflows reflect the capacity and condition of collection system piping and the
effectiveness of routine maintenance. The sewer overflow rate is calculated as the number
of overflows per 100 miles of collection piping per year. The City reported 57 overflows
during the period from 2010 through 2013, averaging 14 overflows a year, which equates
to 0.9 spills per 100 miles of pipeline annually on average.
The City minimizes occurrences of SSOs due to hydraulic loading by ensuring current
and future sewer flows do not exceed the hydraulic capacity of the sewer lines at peak flow
based on estimated full buildout of the area and according to the City’s General Plan. To
avoid surcharge of the sewer system that may result in an SSO, new pipes are sized to carry
peak flows with the pipe flowing at no more than 0.8 of the pipe diameter.
There are several measures of integrity of the wastewater collection system, including
peaking factors, efforts to address infiltration and inflow (I/I), and inspection practices.
The peaking factor is the ratio of peak day wet weather flows to average dry weather flows.
The peaking factor is an indicator of the degree to which the system suffers from I/I, where
rainwater enters the sewer system through cracks, manholes or other means. However,
The 2006 Fresno Wastewater Collection System Master Plan reports that the collection
system receives no appreciable groundwater infiltration and relatively small amounts of
rainfall-dependent infiltration or inflow (500 gallons per acre per day), except for older
areas of the downtown (10,000 gallons per acre per day).
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18 . WATE R S E RVII CES
SERVICEE OVERVVIEW
The City of Freesno Department of PPublic Utilitties (DPU) oversees thhe City’s WWater
Division, which prrovides pootable wateer to apprroximately 136,000 cconnectionss for
domesticc, commerccial, instituttional and industrial uses (as oof FY 14). Water serrvices
include maintenancce and opeerations of groundwatter wells, aa surface wwater treatmment
facility, tthe distribution systemm, and grounndwater reccharge faciliities.
Location
Retaiil water serrvices are prrovided to tthe majorityy of the Cityy, and some users within its
sphere oof influencee. In 1989, the City WWater Divisiion acquireed numerouus County wwater
facilitiess and begann serving ccustomers ppreviously served by the Countyy. This addded a
significant number of custommers to the City’s watter service area outsidde of the CCity’s
boundarries. With the exceptioon of the Bakman Watter Companny, Pinedalee County WWater
District, Park Van NNess Mutuall Water Commpany, Caliifornia Statee Universityy at Fresno, and
private groundwatter users llocated within uninccorporated County islands, the City
currentlyy serves thee entire areea encompaassed by thee City’s limiits and spheere of influence.
Figure 18-1 shows tthe City’s water servicee area.97
Because the Citty serves teerritory outside of its bounds, thee populatioon served inn the
City’s waater servicee area is greeater than thhe populatioon of the arrea within tthe incorporrated
bounds oof the city. In 2012, thhe estimated populatioon within thhe City’s waater service area
was 509,265.
The CCity serves a small porrtion of the Pinedale Coounty Wateer District (aabout 28 service
connectiions in the pportion east of Highwaay 41) and aa small uninncorporatedd area knowwn as
the Beraans Tract (vvia two serrvice connecctions). Thhe quantitiees of potablle water soold to
these aggencies are quite smalll, constitutinng less thann 0.1 perceent of the City’s total wwater
productiion.
97 Map of Ciity’s water servvice area from 2010 Urban Watter Managemennt Plan, p. 3-9.
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Figure 18-1: City of Fresno Water Service Area
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Demand
As off FY 15, thee City provvided servicce to approoximately 136,000 connnections, wwhich
were comprised off 85 percennt residentiaal, 12 perceent nonresiidential, and three perrcent
irrigation connectioons. Of the total amouunt of wateer distributted in FY 114, single faamily
homes aaccounted foor 56 percennt, nonresiddential connnections acccounted for 36 percentt, and
irrigation accounts comprised eight perceent of all floow. Peak wwater use occcurs during the
summer months, geenerally fromm July thru September..
Durinng calendar year 20114, the Cityy deliveredd 128,000 acre-feet oof water too the
communnity, of whicch approximmately 20,000 acre-feeet was from surface waater sourcess and
108,000 acre-feet wwas from grooundwater ssources.
In Feebruary 2015, the Freesno City Council apprroved a neww rate plann for the WWater
Division. The City’ss water ratees consist off a fixed moonthly chargge (meter charge) baseed on
meter siize, and a uunit-rate chaarge based on usage. As of July 1, 2015, thhe fixed monnthly
charge ffor a 1-inch meter is $12.40 per mmonth, and the unit-raate charge is $1.09 perr 100
cubic feeet (748 galloons) of usagge.
Projected Demand
Overrall, the Cityy anticipates a reductioon in waterr consumptiion by 25 ppercent betwween
FY 15 annd FY 19.
For FFY 15, a yeear in whichh increasedd water ratees and charrges are projected to bbe in
effect foor five monnths, averagge monthlyy single fammily water use is projjected to bbe 20
hundredd cubic feet (HCF). For FFY 16, the pprojection iss approximaately 17 HCCF. For FY177 and
onward, annual connservation iss projected at two perccent per yeaar.
For nonresidenntial accounnts, projectted water use for FYY 15–FY 119 is basedd on
conservaation of six ppercent durring FY 15 aand two perrcent per year thereafteer. For irrigaation
accountss, projectedd water usee for FY 155–FY 19 is bbased on cconservationn of 10 perrcent
during FFY 15 and twwo percent pper year theereafter.
STTAFFING
The CCity employys 187 full-ttime equivaalent staff inn the Waterr Division. Administraation,
utility biilling, and uutility plannning and enggineering arre providedd by 72 sharred FTEs foor the
three uttilities—watter, wastewwater, and ssolid waste managemeent. The FYY 14-15 Buudget
outlines the need foor six addittional posittions relatedd to water services—ttwo positions to
add another pipefittting crew, two positioons to add another waater distribution crew,, and
two wateer conservaation repressentatives.
The CCity’s waterr system reequires thatt that the chhief operatoor be certifiied at a T5 level
for treattment and aa D4 level ffor distributtion. The CCity’s lead ooperator is ccertified at a T5
and fourr operators aare certifiedd at D4, whiich meets thhe system’s certification requirements.
FACCILITIESS AND CAPACITYY
The WWater Divission is responsible for operation aand mainteenance of thhe surface wwater
treatmennt facility, 2270 grounddwater wells, three stoorage tanks/reservoirss, 1,780 milles of
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distribution pipeline, 12,975 fire hydrants, 18,942 main line valves, and a groundwater
recharge facility.
Water Supply
Water for City of Fresno customers comes from two primary sources—groundwater
(88 percent) and surface water (12 percent). For years, groundwater pumped up from an
underground aquifer was the sole source of water for Fresno water customers. In 2004, the
City’s first surface water treatment facility came on line, allowing for delivery of treated
surface water to residents to augment groundwater sources in northeast Fresno. In
addition to these water sources, disinfected tertiary recycled water from the North Fresno
Water Reclamation Facility (NFWRF) is used to irrigate the Copper River Golf Course.
The City draws from the Kings Subbasin of the Tulare Lake Groundwater Basin. The
Kings Subbasin underlies Fresno, Kings, and Tulare Counties and has a surface area of
976,000 acres. The Kings Subbasin has not been adjudicated. However, the Kings Subbasin
was identified by the Department of Water Resources (DWR) in 1980 to be in a critical
condition of overdraft in Bulletin 118-80. Upon release of the updated Bulletin 118 in
2003, the condition of the subbasin was not reevaluated; however, the bulletin did
acknowledge the groundwater recharge programs being conducted by agencies within the
Kings Subbasin to ensure that groundwater will continue to be a viable water supply in the
future.
The estimated groundwater yield for the City has been estimated based on natural
groundwater recharge and intentional groundwater recharge. Based on rates of natural
recharge, subsurface inflow, and intentional recharge, the City estimated that it can
sustainably use up to 100,000 acre feet of groundwater given conditions in 2010.98
However, the City continues to pump in excess of 100,000 acre feet of groundwater each
year, and will continue to do so until there is the ability to broaden its water supply
portfolio by making use of additional surface water supplies and recycled water, in
combination with increasing intentional groundwater recharge activities. By 2035, the City
anticipates that groundwater will comprise only 36 percent of the total water supply in
that year and groundwater extractions will be reduced to less than the sustainable yield of
the groundwater basin.99
Groundwater within the Kings Sub-basin generally meets primary and secondary
drinking water standards for municipal water use. However, the groundwater basin is
threatened by chemical contaminants that affect the City’s ability to fully use the
groundwater basin resources without some type of wellhead treatment in certain areas.
Many different types of chemical pollutants have contaminated portions of the Upper Kings
Sub-basin underlying the City’s water service area. Some of the major contaminant plumes
include 1,2-dibromo-3-chloropropane, ethylene dibromide, 1-2-3 trichloropropane, other
volatile organic compounds like trichlorethylene, tetrachloroethylene, nitrate, manganese,
radon, chloride, and iron. There are also several major contaminate point sources. About
98 City of Fresno, Urban Water Management Plan, 2012, p. 4-10.
99 City of Fresno, Urban Water Management Plan, 2012, p. 4-12.
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half of the City’s water service area has some form of groundwater contamination; only
areas in the northwest appear to be relatively unaffected by regional groundwater
contamination. Of the City’s over 270 currently active wells, 96 wells are impacted by a
single contaminant plume, 33 wells are impacted by a pair of contaminant plumes, and five
wells are impacted by three contaminant plumes. Currently, 34 of the City’s wells have
wellhead treatment systems.
While groundwater has traditionally been the sole source of water for Fresno, the
Northeast surface water treatment facility (NE SWTF) and the T3 Water Treatment Plant
now supplements the system with surface water delivered directly from the Sierra Nevada
Mountains to the City’s two existing water treatments facilities. Precipitation and snow
melt from the Kings and San Joaquin watersheds are provided by the City's federal Central
Valley Project (CVP) contract and Fresno Irrigation District (FID) entitlements. The snow
melt from the Sierra Nevada Mountains, runs into the Kings and San Joaquin Rivers.
Currently, water is delivered to the City’s two surface water treatment plants through the
FID canal network.
The City of Fresno currently has two sources of surface water: 1) surface water
supplies available from a contract with FID for Pine Flat Reservoir; and 2) supplies
available from the U.S. Bureau of Reclamation for Millerton Lake.
On May 25, 1976, the City signed a contract with FID for delivery of the City’s pro rata
share of FID’s water entitlements on the Kings River. The contract specifically excludes any
of FID’s Class 2 USBR entitlement and any water stored in Pine Flat Reservoir by FID. The
Kings River Water Association (KRWA) allocates entitlements to Kings River contractors on
a daily basis; these entitlements are allocated among the contractors using a methodology
that estimates the flow in the Kings River before construction of Pine Flat Reservoir. Once
KRWA calculates the “pre-project” entitlement, FID has the option of releasing the entire
entitlement for downstream diversion, or storing a portion of the entitlement within Pine
Flat Reservoir for use at a later date. In accordance with the City’s 1976 agreement with
FID, the actual water supply available to the City is a percentage of FID’s diversion from the
Kings River. The percentage is based on the ratio of the total area annexed by the City,
compared to the total area within FID’s water service area, including the area served by the
City. Hence, the water available to the City through its contract with FID will increase over
time as the City annexes additional lands within FID’s water service area. In 2005, the City
was allocated 23.63 percent of FID’s Kings River entitlements for that year, which totaled
actual deliveries of 124,034 acre feet. By 2035, the City’s UWMP projects that the City will
be allocated 32.44 percent of FID’s Kings River entitlements, or 126,500 acre feet in a
normal hydrologic year. Water delivered from the Kings River is of extremely good quality,
as these waters originate from snowmelt in the high Sierras that has not been subjected to
detrimental influences.
The City also recently renewed its contract with the U.S. Bureau of Reclamation (USBR).
USBR oversees diversions from the San Joaquin River through the Friant-Kern Canal of the
Central Valley Project (CVP). USBR owns the Friant-Kern Canal and Friant Water Authority
maintains and operates the canal. The City’s total entitlement from USBR is 60,000 acre feet
per year of Class 1 water. USBR Class 1 water is generally available from Millerton Lake,
and is a very dependable water supply, regardless of the type of hydrologic water year.
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Class 2 water is generally any excess water available as determined by USBR, and is not
considered as dependable as Class 1 water.100
Additionally, the City has an exchange agreement with Fresno Irrigation District (FID),
which allows the City to pump groundwater developed through the percolation of
previously treated wastewater effluent. This percolated water is then extracted and
pumped into FID canals for delivery to downstream customers. In return, the agreement
states that FID will provide the City with surface water from either its Kings River
entitlement or its Class 2 USBR water “insofar as is feasible and practical.” The quantity of
surface water that FID is required to provide is limited to 46 percent of the groundwater
that the City pumps into FID’s delivery canal, and the contract limits the annual quantity
that can be pumped into FID’s canals to 30,000 af per year, or 100,000 af over a 10-year
period (contract limit can be increased with approval from the FID Board). Based on
historical operations, the City should be able to obtain 13,800 af annually of Kings River
water from FID through this exchange agreement.101
The City makes use of recycled water to supplement water supply for irrigation and
groundwater recharge purposes. The City of Fresno owns and operates North Fresno
Water Reclamation Facility, which is located in northern Fresno and was built to serve the
Copper River Ranch development and a golf course partially located outside of the City’s
bounds. Disinfected tertiary recycled water from the facility is used to irrigate landscaping
at the Copper River Country Club and Golf Course. During wet weather months, recycled
water in excess of turf demands is dechlorinated and sent to a nearby percolation basin
owned and managed by Fresno Metropolitan Flood Control District, and used to irrigate
landscaped areas within the basin. The City plans to make use of recycled water to a
greater extent in the future. The City’s Recycled Water Master Plan outlines plans for future
expansions to leverage this water resource to a greater extent.
Water Source Capacity
As is shown in Figure 18-2, the City’s water supplies in normal years as determined in
its Urban Water Management Plan are sufficient to handle existing and normal projected
demand, with a projected excess of 13,200 acre feet of available water supply in 2035.
However, use of surface water sources that require treatment is constrained until
completion of an additional treatment facility. Enhanced use of recycled water starting in
2025, will allow for greater diversification of the City’s water portfolio and reduced
reliance on groundwater sources.
Figure 18-2: Current and Projected Water Supply Sources in Normal Years (afy)
Water Supply 2010 2015 2020 2025 2030 2035
Sources (Actuals)
FID – Kings River
132,541 103,600 109,400 115,100 120,800 126,500
Entitlement
FID – Wastewater
0 13,800 13,800 13,800 13,800 13,800
Recycle Exchange
100 Ibid, p. 4-2.
101 City of Fresno, Urban Water Management Plan, 2012, p. 4-17.
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USBR – Central
Valley Project 61,375 58,200 58,200 58,200 58,200 58,200
Class 1
Self–produced
128,578 76,100 61,800 53,500 69,200 85,000
groundwater
Recycled Water 176 1,000 1,000 25,000 25,000 25,000
Total Supplies 322,670 252,700 244,200 265,600 287,000 308,500
Projected
200,173 226,100 221,000 247,500 270,600 295,300
Demand
Water Excess
122,497 26,600 23,200 18,100 16,400 13,200
(Deficit)
Source: City of Fresno Urban Water Management Plan 2010, 2012
Water Supply Reliability
During multiple drought years, water supply reliability may greatly diminish depending
upon the source. For example, water from the City’s two surface water sources could vary
from as much as 198,200 acre feet in a wet year to 81,400 acre feet in a critically dry year.
In single dry year scenarios through 2035, the City’s supplies are minimally adequate to
meet projected demand (with no anticipated excess water supply) through increased
groundwater pumpage and reduced groundwater recharge.
The City projects that its multiple dry year supplies are adequate to meet projected
multiple dry year demands with increased groundwater pumpage and reduced
groundwater recharge. In the second year of multiple dry year conditions, the City would
need to pump more groundwater than projected for normal years, and would have limited
groundwater recharge as a result of limited surface water supplies. In the third year of a
multiple dry year period (under normal dry water supply conditions), the City’s
groundwater pumpage would be the same as in normal years, and groundwater recharge
would not be limited.102 The City assumes in its Urban Water Management Plan that it will
begin making use of approximately 25,000 acre feet of recycled water in 2025 in order to
ensure adequate water supply in all years; however, this timeline will likely be shortened,
due to accelerated construction of a recycled water treatment facility that began in 2015
and is anticipated to be completed in 2017.
The City plans for future water supply to address increased water supply demands as a
result of coming development in its General Plan. The Resource Conservation and
Resilience Element addresses the long-term supply of water resources, and the Urban
Form, Land Use, and Design Element includes policies restricting the extension of water
supply only to planned development in development areas that are consistent with the
General Plan.
102 City of Fresno, Urban Water Management Plan 2010, 2012, p. 7-5.
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Treatment and Distribution System
Currently, a majority of the drinking water in the City is pumped from approximately
270 water wells. Of these wells, 34 have well head treatment. The pumping capacity of the
wells ranges from 340 to 2,735 gallons per minute (gpm) depending on the location of the
well. Each of the City's wells is connected to a SCADA telemetry system that allows City
officials to remotely monitor the static and pumping water levels, the system pressure and
the flow at each well. Based on the City’s capital improvement program, 19 of the pumps at
these wells are in need of replacement, and five wells are in need of replacement.
Additionally, nine wells are in need of rehabilitation, due to diminished output.
The City has two surface water treatment facilities – the NE SWTF and the T3 Water
Treatment Plant. The NE SWTF has a firm capacity of 25 mgd was placed into service in
2004. The T3 Water Treatment Plant has a firm capacity of 3.2 mgd, and was placed into
service in 2015. During July and August 2015 the City’s two surface water treatment plants
delivered 1 billion gallons of surface water to the distribution system.
The City of Fresno maintains short-term water storage in two distribution system
reservoirs (Tank T1 and Tank T3) and one treated water clearwell at the surface water
treatment facility. Tank T1 is a concrete tank with a capacity of two million gallons that was
installed in 1996. Tank T3 is also a concrete tank with a capacity of three million gallons
that was completed in 2012. The treated water clearwell is a partially sub-grade concrete
tank with a capacity of 1.7 million gallons that was constructed in 2004. The City has a
biennial maintenance schedule for each of the tanks, which requires routine inspection,
cleaning, and an evaluation of both the interior and exterior coating systems. The City also
performs routine structural analyses on the tanks. Both Tank T1 and the treated water
clearwell were cleaned and inspected in 2013. Both of the tanks were in adequate
condition at the time of the cleaning and inspection. Given the recent construction of Tank
T3, it is considered to be in excellent condition.
The water distribution system is divided into four quasi-pressure zones to help regulate
minimum and maximum system pressures in the various topographic areas of the City. The
system is aged and in need of replacement. Almost 35 percent of the 1,780-mile
distribution system is over 50 years old, with another 34 percent ranging between 25 and
50 years old. There is a marginal pipeline replacement plan, and a limited budget to replace
this aged infrastructure. A majority of the aged infrastructure is in the older parts of the
City, including the Downtown. When the pipes fail, there is usually extensive damage to
adjacent roadway, and wet and dry utilities. This can cause disruption of service and costly
cleanup.103 The City did not provide the number of breaks and leaks experienced in 2013.
Unaccounted for water loss is the difference between the recorded water production
and metered consumption; however, because the City had historically not metered its
single family residential customer class, the exact amount of loss could not be specifically
determined. The City’s Urban Water Management Plan assumes a loss of approximately 10
percent of total production given the age of Fresno’s infrastructure. Meters were installed
103 City of Fresno, General Plan, 2014, p. 6-24.
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on all coonnections bby the end of 2012. TThe City willl now be aable to assesss the degrree of
water loss that is beeing experieenced in its distributionn system.
Grounndwater Recharrge
To reeplace somee of the watter taken froom the aquiifer, rainfalll, and streamm flow natuurally
percolatte back intoo the aquiffer. The Cityy also runss an aggresssive rechaarge program to
supplemment the naatural repllenishment of the aqquifer. The City curreently rechaarges
groundwwater basinss with surfaace water uusing severaal recharge facilities wwithin its service
area. A majority off these faciilities are located in tthe north-ccentral porttion of the City.
Additionnally, some oof the FMFCCD basins arre dual use ((recharge aand recreation) basins.
As Frresno continnues to groww, there is mmore demannd on the ggroundwater supply. Taaking
out more water thaan is put baack into an aquifer creeates what is called ann overdraft. This
increasees the deptth to the wwater tablee and can create watter quality problems with
additionnal treatmennt costs. Thhe City is foorced to drrill deeper water suppply wells, wwhich
results in increasedd power cossts to pumpp the water from the uunderground. Over thee last
80 yearss, Fresno’s water level has droppped from leess than 300 feet beloww the surface in
1930, to more than 128 feet beelow the surrface in 2009.
Rainffall and streeam flow reeplace abouut half of thee water pummped by thee City each year.
Fresno hholds entitleements to ssurface watter, which iss used to reeplace the oother half oof the
pumped groundwater. Surfacee water is ddelivered thhrough cannals to floodd control baasins
and "Leaaky Acres", a city-owneed intentionnal rechargee facility. Leeaky Acres, built in 19770 by
the City of Fresno, is comprisedd of 26 pondds coveringg 225 acres, averaging 55.5 feet deeep. Its
purpose is to store water thatt then percoolates into tthe undergrround in orrder to rechharge
the grouundwater suupply.
INFFRASTRUCTUREE NEEDSS
Betwween FY 15 and FY 199, total projected CIP eexpenditurees are apprroximately $429
million. The CIP expenditures are summaarized in thhe followingg categoriess along withh the
total exppenditures ffor each cateegory:
Inntentional GGroundwateer Recharge $6.4 million
RRaw Water SSupply $98.44 million
Surface Wateer Treatmennt $186.4 mmillion
Finished Water Distribuution $55.4 mmillion, andd
RRehab/Replaacement & SSystem Upggrades $82.55 million
Implementationn of these plans aree intended to develoop the inffrastructuree for
conjuncttive use of all of thhe City's ssurface waater suppliies, along with enhaanced
groundwwater rechaarge and obbservation, wwould balance Fresnoo's groundwwater budgeet for
the firstt time in oover 75 yeaars. As a ppart of thiss proposal, expansion of the exiisting
northeasst surface wwater treatmment facilitty and creaation of a seecond treattment faciliity in
southeasst Fresno aare plannedd in order to offset ccurrent demmands and to meet fuuture
demands from anticipated groowth. Construction of tthe regionaal transmisssion distribuution
system wwill allow trreated surfaace water too be deliverred everywwhere in the City in ordder to
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support current demands and future growth. This plan will enable the City to conserve
groundwater as an alternate supply that can be relied on during periods of drought.
Reliance on groundwater is a particular challenge for the City, due to declining
groundwater levels, contamination concerns, and new legal requirements regarding
groundwater management. With declining groundwater levels, wells are running dry. At
present, 23 wells are to be removed from service as groundwater levels continue to decline.
If groundwater levels continue to decline similar to 2014, then an additional 21 wells will
be at risk in 2015. Additionally, the presence of the contaminant 1,2,3-trichloropropane in
73 wells combined with new water quality regulations for the contaminant will further
reduce available groundwater supply. Recently, the State Legislature passed the 2014
Sustainable Groundwater Management Act, which the City will need to address as it moves
forward. The most significant projects that are included in the CIP to address the City’s
reliance on groundwater include the following:
Southeast Fresno Surface Water Treatment Facility: This project is for the purchase
of land, development of plans and the construction of a future 80 mgd surface water
treatment facility in Southeast Fresno. The engineering and design work is scheduled to
start in FY 13, and construction is expected to be completed in FY 18
Tertiary treatment at the regional reclamation facility and southwest, northwest
and northeast recycled water distribution systems: The Urban Water Management Plan
identified the City’s need to facilitate the use of at least 25,000 acre feet per year of recycled
water by 2025 to continue to meet regulatory requirements and offset existing potable
water use in order to help meet future water supply needs for the Fresno Metropolitan
Area. These projects, as identified in the Recycled Water Master Plan, will provide the
infrastructure to distribute the recycled water to potential recycled water customers. It is
anticipated that the construction of these recycled water projects, which will be completed
in phases, will be in FY 22.
Recycled Water Program: The Urban Water Management Plan identified the City’s
need to facilitate the use of at least 25,000 acre feet per year of recycled water by 2025 to
continue to meet regulatory requirements and offset existing potable water use in order to
help meet future water supply needs for the Fresno Metropolitan Area. These projects, as
identified in the Recycled Water Master Plan, will provide the infrastructure to distribute
the recycled water to potential recycled water customers. It is anticipated that the
construction of these recycled water projects, which will be completed in phases, will be in
FY 22. The City plans to construct up to three satellite recycled water treatment facilities in
the eastern portion of the City’s service area. The facilities will be used to capture raw
wastewater for recycled water production in closer proximity to recycled water demands
on the eastern portion of the City. In addition, the City is in the midst of constructing Phase
I of the Tertiary Treatment and Disinfection Facility (TTDF) at the Fresno-Clovis Regional
Wastewater Reclamation Facility. The TTDF will be constructed in three phases: 5-mgd,
10-mgd, and 15 mgd. Phase I of the TTDF facility is currently under construction with a
capacity of 5-mgd, and it is scheduled to be placed into service September 2016, and Phase
II is scheduled to be placed into service by June 30, 2019.
The City plans for additional long-term capital improvements through 2025 in the
Metro Plan Update, which proposes a comprehensive and integrated water supply plan to
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better mmanage thee City’s divverse waterr supplies, address grroundwaterr level decclines
beneath the City’s sservice areaa and groundwater quaality concernns, and furtther balancee and
optimizee the City’s conjunctivee use of itss diversifiedd water suppply portfollio which wwould
ultimateely enhance overall waater supply reliability. SSimilar to tthe CIP, keyy componennts of
the propposed Metroo Plan Updatte include:
EExpand Usee of Treatedd Surface WWater Suppplies. Increaase surface wwater treatmment
caapacity by constructinng and operrating a neww Southeastt Surface WWater Treatmment
Facility (SWTTF) at 80 mgd, and exppanding Norrtheast SWTTF from 25 mmgd to 60 mmgd.
BBalance Inn-City Grooundwater Operatioons by 2025. Reduuce the CCity’s
groundwaterr pumping aand increase intentionaal groundwater recharge with a gooal of
balancing thhe City’s grroundwater operationss within thhe City’s service area (e.g.,
pumping equual to recharge) by 20225.
UUse Recycleed Water SSupplies foor Non-Pottable Water Demandss. Maximizee the
direct use off recycled wwater for in--City non-potable wateer uses andd thereby reeduce
potable wateer demands.
AAssess Needd and Availability off Future New Supplyy. Assess thhe need forr and
tiiming of futture new wwater suppliies once futture growthh plans beyyond buildoout of
thhe 2025 Genneral Plan iss determined.
SERVICEE ADEQUACY
This section rreviews indicators of service adequacy, including the Califoornia
Departmment of Pubblic Healthh system evvaluation ((now conduucted by thhe State WWater
Resources Control BBoard), drinnking water quality, andd distributioon system integrity.
Up uuntil recenttly, the DPHH was respponsible forr the enforccement of the federall and
Californiia Safe Drinking Watter Acts annd the operational ppermitting and regulaatory
oversighht of public water systeems in Califfornia. Dommestic wateer providerss of at leastt 200
connectiions were subject to innspections bby DPH. Thhe City of Frresno waterr system is large
so DPH cconducted iinspections of certain aareas of thee system eacch year, rotaating so thaat the
entire syystem was reviewed every fourr years. Duuring the DDPH’s mostt recent annnual
inspectioons betweeen 2010 andd 2013, it rreported sevveral issuess with the vvarious wells in
need of addressingg. These isssues were cconsistent aamong the four inspecctions and were
addresseed once identified at each well.. In 2011,, DPH idenntified the following mmore
significant issues of concern, wwhich weree later addrressed by tthe City; altthough, on time
water quuality monittoring continued to be a concern inn 2013 as wwell:
TTo ensure rroutine maiintenance, tthe City neeeded to prrepare an operations plan
detailing thee measure taken by thee City to ennsure routinne items andd other sannitary
hazards are eexamined oon a routine basis; and
TThe City hadd failed to aadequately monitor some wells inn the systemm in accorddance
wwith the watter quality mmonitoring schedule. TThe City waas required tto submit aa plan
and a time schedule to ccomplete alll delinquennt monitorinng. Additioonally, the CCity is
now required to compleete an annuual delinqueent monitorring report for the prevvious
year to explaain why moonitoring was not comppleted and when it will be complleted.
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The City reported that this issue has now been corrected and was no longer a
concern.
Drinking water quality is determined by a combination of historical violations reported
by the EPA since 2000 and the percent of time that the City was in compliance with
Primary Drinking Water Regulations in 2014. Since 2000, the City has had one health
violation (2009) related to one, 2-dibromo-3-chloropropane, and four monitoring
violations (one in 2007 and three in 2010) for various contaminants. This equates to
approximately 0.03 violations per 1,000 connections served. The City was in compliance
with drinking water regulations 100 percent of the time in 2014.
Indicators of distribution system integrity are the number of breaks and leaks in 2014
and the rate of unaccounted for water loss. During the period of record from 2007 to
2013, the City completed an average of four (4) work orders per day to address water
distribution system defects. The City of Fresno did not provide the number of breaks and
leaks that occurred within the system in 2014. In City planning documents a 10 percent
water loss in the system is assumed. As the City accumulates more data, it will need to
assess the actual degree of loss experienced in the system.
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19. G OV E R NA N C E STRU CTU RE
O P T I O N S
In the 2007 Fresno MSR, several governance structure options were identified;
however, none of these options have been pursued over the last eight years. The options
previously identified included the following:
Dissolution of Pinedale County Water District (PCWD) and transfer of assets to
the City: Formed in 1954, PCWD provides water, wastewater collection, and solid waste
services. While most of the District is within the City of Fresno, and a majority of district
residents reside within the City, it also includes three county islands largely. The service
areas for the various service types and respective SOIs for PCWD are shown in Figures 19-
1, 19-2 and 19-3. The City of Fresno provides wastewater collection for a significant
number of customers within the District boundary and provides solid waste services
throughout the District, with the exception of the three county islands. The City transports
District wastewater via the City’s wastewater collection system. The wastewater collected
by the District is piped to and treated at the Fresno/Clovis Regional Wastewater
Reclamation Facility. PCWD provides water to 2,400 residential and 550 commercial
accounts. The District obtains water from District wells. Solid waste services in the
unincorporated portions of PCWD are provided via a contract with a private company.
The 2007 Fresno MSR observed the potential for greater economies of scale and
enhanced efficiency that may be achieved by dissolving the District and transferring its
assets and service obligations to the City of Fresno. Additionally, in 2007, LAFCo adopted a
determination in the PCWD MSR to encourage PCWD and the City of Fresno to participate
in a joint investigation of the best mechanism for providing existing necessary services to
the area served by the District, including the possible dissolution of the District and
transfer of services to the City.
During the 2015 MSR process the City noted that this course of action lacked political
feasibility, at least in the near term, and the City is presently not pursuing this option.
Certainly, enhanced collaboration between the City and the District should be considered to
ensure effective communication and regional planning for the utility services offered by
both agencies. An issue of pressing mutual interest where a cooperative effort will be
essential is the ongoing groundwater overdraft in the region, which has been spotlighted
by recent state groundwater management legislation. PCWD is surrounded by the City of
Fresno; however maintaining the District is a function of the community’s character,
although the agency has no opportunity or plans for expansion in the future. In fact, as the
City annexes the unincorporated island territory served by PCWD, there will be little need
to retain the special district as a service provider when it is wholly within the city limits.
To an extent, the District and City will need to identify service redundancies that create
service inefficiencies amongst the two agencies. As part of the recommended city
annexation plan for islands in the City, plans for addressing affected agencies such as PCWD
and Pinedale Public Utility District will need to be included as well. Additionally, the SOIs
for PCWD were last updated in 2007, at which time the SOIs were merely reaffirmed as
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they had existed since 1996. While this may indicate anticipated expansion of the District
in the future, it more accurately reflects a stasis between the growth plans of the District
and the City. This situation is generally addressed in a recommendation of this MSR for
inter-agency dialog on the future of special districts within the Fresno SOI.
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FFigure 19-1: Piinedale County Water District (Water Servicee) and City of Frresno
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FFigure 19-2: Piinedale County Water District (Wastewater SService) and Citty of Fresno
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FFigure 19-3: Piinedale County Water District (Solid Waste Seervice) and Cityy of Fresno
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Dissolution of Pinedale Public Utility District (PPUD) and transfer of assets to the
City: Formed in 1956, PPUD provides wastewater, streetlights and landscape maintenance
services. Approximately half of the District is within the City of Fresno, while the other half
is unincorporated territory largely surrounded by the City, as shown in Figure 19-4. The
City provides transport of district wastewater via the City’s wastewater collection
infrastructure. The wastewater collected by the District is piped to and treated at the
Fresno/Clovis Regional Wastewater Reclamation Facility. As of 2015, the District
reportedly served approximately 1,950 residential and 100 commercial wastewater
connections and provided landscape maintenance, street lighting and street sweeping
service for about 2,400 residential units.
The 2007 Fresno MSR observed the potential for greater economies of scale and
enhanced efficiency that may be achieved by dissolving the District and transferring its
assets and service obligations to the City of Fresno. Additionally, LAFCo adopted a
determination in the 2007 PPUD MSR to encourage PPUD and the City to participate in a
joint investigation of the best mechanism for providing existing necessary services to the
area served by the District, including consideration of possible dissolution of PPUD and the
concurrent transfer of services to the City of Fresno.
During the 2015 MSR process, the City noted that this option lacked political feasibility
as certain areas did not desire to be served by the City, at least in the near term, and in light
of the City’s policy to not support annexations that are not fiscally positive, it is presently
not pursuing this option.
Certainly, enhanced collaboration between the City and the District should be
considered to ensure effective communication and regional planning for the wastewater
services offered by both agencies. Similar to PCWD, PPUD is surrounded by the City of
Fresno and has no opportunity or plans for expansion in the future. In fact, if the City were
to annex the unincorporated territory served by PPUD, there would be little need to retain
the special district as a service provider when it is wholly within the city limits.
Additionally, the 2007 PPUD MSR merely reaffirmed the SOI as it had existed since
1998, which would normally indicate anticipated expansion of the District in the future.
Similar to the PCWD, this is not the case, but more accurately reflects that lack of
movement between the District, the City, and LAFCo on the question of what to do with the
many county islands and special districts within the Fresno city limit.
PPUD serves wastewater connections outside of its bounds (land generally bounded by
Marks, Valentine, Chenault, and Bluff Avenues) in a county island surrounded by the City.
The City noted in 2007 that when this area was originally developed that PPUD was asked
to serve it as the City’s Herndon-Cornelia Interceptor sewer had not been constructed. The
interceptor was later constructed in 1977; however, the services were never transferred to
the City. In the 2007 PPUD MSR, LAFCo adopted a determination to authorize staff to
confer with the District and the City of Fresno regarding the status of the District’s
continuing provision of services outside its boundaries. Transferring services in this area to
the City continues to be an option to enhance operational efficiencies in anticipation of the
eventual dissolution of PPUD; however, the District reported it had come to a mutual
understanding with the City that PPUD will continue service to the area outside of its
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boundaries and the City would continue wastewater service to some areas within the
District’s bounds as the conditions presently exist.
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FFigure 19-4: Piinedale Public UUtility District aand City of Fressno
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Transfer of solid waste services from Malaga County Water District (MCWD) to
the City of Fresno: Formed in 1958, MCWD provides domestic water, irrigation water,
wastewater, solid waste, and parks and recreation services. A small portion of the District
overlaps the City of Fresno, as shown in Figure 19-5. A small portion of the District’s SOI
also overlaps with the City’s SOI to the southwest of the District’s bounds. The District
obtains and distributes water from its own wells, collects, treats and disposes of
wastewater in its wastewater treatment plant, and owns and operates a recreation center
with a gym, swimming pool, park, and softball fields. Solid waste is collected via a contract
with a private company and is reportedly provided throughout the District, including those
areas located within city limits.
There are some overlapping areas between the District and the City of Fresno in an area
south of Central Avenue between Cedar and Maple Avenues (see Figure 19-5). The City
does not have water and sewer lines in the overlapping areas. Therefore, these areas are
being served by the District.
Unlike PCWD and PPUD, MCWD is predominantly outside of the City of Fresno’s
boundaries and SOI and it is reasonable to presume that the District intends to continue as
an independent special district.
However, there is room for adjustment of both agency’s bounds and SOIs. During 2007
MCWD MSR, the City suggested it may be appropriate to consider adjusting boundaries
between the City and the District to reflect current and expected service delivery
efficiencies. No changes were made in 2007 to the District’s SOI.
The District provides solid waste service to that portion of the District located within
the City of Fresno. The City’s 2007 MSR noted that greater economies of scale and efficiency
in solid waste services may be achieved by having this service provided by the City of
Fresno. Further, in MCWD’s 2007 MSR, the Commission authorized LAFCo staff to confer
with MCWD and the City of Fresno regarding the possible transfer of obligations to City to
provide solid waste services for the portion of the District located within the City. While
transfer of this service to the City has not occurred to date, during the process of this MSR,
the City indicated an interest in a collaborative city and county solid waste program, which
may create a more cohesive and orderly system for solid waste services and related
contracts in the County. This option is discussed in further detail below.
Certainly, enhanced collaboration between the City and the District should be
considered to ensure effective communication and regional planning for the utility services
offered by both agencies. An issue of pressing mutual interest where a cooperative effort
will be essential is the ongoing groundwater overdraft in the region, which has been
spotlighted by recent groundwater management legislation.
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Figure 199-5: Malagaa County Waater Districtt and the Cittyy of Fresno
Operration of nnearby Couunty Servicce Areas byy the City of Fresno: There arre 10
County SService Areaas (CSAs) thhat serve the unincorpoorated deveeloped areass surroundeed by
or adjaceent to the CCity. These CCSAs, as weell as all othhers in the CCounty, are ggoverned by the
County BBoard of Suppervisors annd administtered by thee Special Districts Admministrator OOffice
of the Frresno Countty Public WWorks and PPlanning Department. The Special Districts OOffice
monitors, maintainss and repairrs District innfrastructurre. These CCSAs providde a combinaation
of streeet lighting, storm draainage, waater, and wwastewaterr services to the varrious
subdivisions as desccribed here.
CSA 2 encommpasses appproximatelly 60 acress and mainntains a 2.55-acre parkk and
wwalkways wwithin the TTenaya Estaates subdivvision. It prreviously prrovided lighhting
seervices to tthe area, buut since 20110, lighting for the parrk and walkkways has been
paid for by a public beneefit corporaation.
CSA 7 proviides storm drainage aand street lighting to approximattely 75 acres in
thhree non-coontiguous aareas. One area contaiins approxiimately 56 acres incluuding
portions of AAlluvial, Buuena Vista, Charles andd Laguna VVista Avenues in northhwest
Fresno. Anoother is appproximatelyy 13 acres eeast of andd adjacent tto Palm Aveenue,
soouth of Maggill Avenue in north ceentral Fresnno. The finaal area is knnown as Zonne D,
wwhere lightting, landsccaping andd road maiintenance are providded, and wwhich
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encompasses the Thomasville Estates, which is approximately 6.5 acres located
south of and adjacent to Clinton Avenue at Marty and Selland Avenues.
CSA 14 encompasses approximately 19 acres and provides water, street lighting,
and storm drainage services in the Belmont Manor subdivision (Tract 2031). The
CSA is located at Belmont and Leonard Avenues.
CSA 18 encompasses approximately 119 acres near Calwa. It provides street lighting
services to the area. The County reported that this CSA is managed by the Calwa
Recreation and Park District.
CSA 19 encompasses approximately 10 acres, including Hampton Way east of and
adjacent to Hayes Avenue, west of the City of Fresno. It provides street lighting
services to the area.
CSA 33 includes an area in the unincorporated community of Malaga where lighting
and landscaping services are provided. Landscaping services are limited to an
industrial park. This CSA is within the MCWD and is outside of the Fresno SOI.
CSA 35 is a County-wide service area consisting of 88 zones scattered around the
County, several of which are located in the Fresno SOI. The CSA only provides road
maintenance primarily on private roads for public use which typically feed into a
County road.
CSA 39 encompasses approximately 80 acres and provides water services to 140
residences and West Park School. Zone A is north and south of Beran Way between
Marks and Valentine Avenues, and Zone B is on both sides of Prospect Avenue
between Church and Jensen Avenues. Wholesale water is provided by the City to
both zones via two master meters on a main line that runs from the City water
system. The County maintains and operates the distribution system within the CSA.
The City owns the master meters and bills the CSA based on the volume of water
delivered. This CSA is outside the SOI.
CSA 44 encompasses approximately 381 acres in the Friant area. The original area
provides street lighting to 228 acres. Wastewater services are provided to 24 acres
within Zone A. Retail water services are provided to 30 acres within Zone C, and
both water and wastewater services are provided to 24 acres within Zone D. This
CSA is outside the SOI.
CSA OV provides lighting services to two non-contiguous areas in Van Ness Estates
between Spruce and West Sierra Avenues and Van Ness and North Marks Avenues.
CSA is a misnomer for this district as it was formed as a highway lighting district,
and is consequently not under LAFCo jurisdiction. However, regardless of LAFCo
jurisdiction, the opportunity remains for collaboration between the County and the
City to most efficiently serve the area.
In 2006, the County expressed a desire to work with the City to investigate whether it
could manage these County-governed districts more effectively than the County, due to
their close proximity to the City, the capacity of the City staff, and possible economies of
scale. The 2007 Fresno MSR recommended that the Commission encourage the County and
City of Fresno to participate in a joint investigation of the best mechanism for providing
existing necessary services to county services areas located near to the City of Fresno.
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However, there have reportedly been no discussions between the County and the City since
these recommendations were made. Regional planning for water infrastructure, especially
in light of the development of Sustainable Groundwater Agencies pursuant to the
Sustainable Groundwater Management Act, is essential to ensuring adequate system and
supply capacity to address existing demand and future growth, particularly with regard to
groundwater supplies.
The County indicated that it promotes the eventual annexation and transition of these
areas to the City’s responsibility. As previously mentioned, to date, the City of Fresno does
not have a plan in place specific to annexation of islands nor a master annexation plan
outlining timing or thresholds to determine if territory within its SOI should be annexed.
Creation of a municipal water district to take on the functions of the Public
Utilities Department: As of the last MSR, the City was considering submittal of an
application to LAFCo to create a municipal water district, which if created, would assume
the water, wastewater, and solid waste services currently provided by the City’s
Department of Public Utilities. However, this option never came to fruition and the City is
not considering it at this time.
In addition to those options identified in the previous Fresno MSR, another option was
recognized with regard to the City of Fresno in the Calwa Recreation and Park District MSR
conducted in 2012.
Dissolution of Calwa Recreation and Park District (CRPD) with transfer of assets
and obligations to the City of Fresno: CRPD is an independent special district that is
authorized to provide park and recreation services from an approximately 20-acre facility
with various sport amenities. Given that a substantial portion of the District is within the
City of Fresno as shown in Figure 19-6, and that the City also provides local park and
recreation services, dissolution of the District with the transfer of District assets and
obligations to the City of Fresno was raised in the a possible alternative government
structure option identified in 2012. An in-depth analysis regarding the effects of such a
transfer would be necessary before such a transfer should occur. It was recommended that
the District and City of Fresno confer regarding the possible change in service organization.
This has not occurred to date.
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Figure 199-6: Calwa RRecreation and Park Diistrict and tthhe City of Frresno
Simillar to PPUDD and PCWDD, CRPD is llargely surrrounded by the City off Fresno andd has
no planss for expannsion in thee future. IIn fact, as tthe City annnexes the unincorporrated
territoryy served by CRPD, therre may be litttle need too retain the special disttrict as a service
providerr when it iis wholly wwithin the city limits.. As part of the recommendedd city
annexatiion plan forr islands inn the City, pplans for adddressing aaffected ageencies shoulld be
includedd as well.
Anotther option identified dduring the ccourse of thhis review iss transitionning CRPD innto a
subsidiaary district oof the City. As a subsiidiary distriict CRPD wwould continnue to existt as a
legal enttity, but thee City Counncil is desiggnated as thhe ex officioo board of directors oof the
District. At least 700 percent off the territoory within thhe District or 70 perceent of registtered
voters oof the Distrrict must be within thhe City, in order to mmeet legal rrequiremennts of
establishhing a subsidiary distrrict.104 In thee case of CRRPD, a majoority of the territory oof the
District lies within the City of Fresno, likkely meetingg the requirrements to be a subsiddiary
district.
104Governmment Code §57105.
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The establishment of CRPD as a subsidiary district would not change the legal status of
the District as a special district; however, it would exchange the existing elected district
Board of Directors for the City Council as the ex-officio board of directors. Similar to
merger, the City would assume all assets, functions and governance along with all debts
and liabilities of the subsidiary district. The establishment of the District as a subsidiary
district of the City would not change the designation of the share of the ad valorem
property tax received by the District. This option would ensure that funds currently
collected by the District would continue to be tracked separately and directed toward
recreation and park purposes. This option may be initiated by the Commission,105 the
legislative body of the district wishing to establish itself as a subsidiary district,106 the
legislative body of a city wishing to establish a subsidiary district,107 or by petition.108
In addition to these options that have been previously identified, other opportunities
for enhanced service efficiencies were identified with regard to another municipal service
provider in the proximity of the City of Fresno.
Dissolution of the Bluffs Community Service District: The 35-acre Bluffs
Community Service District was formed in 1959 to provide street lighting and landscape
maintenance services for the 53 residential parcels in north Fresno known as the Bluffs.
This CSD is an unincorporated portion of the City. There are currently two primary
landscaping service areas within the District: a 0.33-acre park and an easement used by
the Flood Control District along Toletachi Road. Lighting services are provided only at the
park. The District is located wholly within the sphere of influence of the City of Fresno.
The District has not provided its budget and no audits were made available. The District
does not appear to have an operating income; however, operating expenses were partially
off-set by interest income.
The District does not have any debt; however, the District is currently operating with
deficit spending. The District does not charge fees at this time and there are no property
assessments. The District is financed by residual monies from the sale of property a
number of years ago.
105 Government Code §56375(a)(2)(D).
106Government Code §56658(a).
107Government Code §56658(a).
108 Government Code §56866
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Figure 199-7: Bluffs CCommunity Service Disstrict
Anneexation of SSEDA to thee Fresno MMetropolitaan Flood Coontrol Distrrict: The Frresno
Metropoolitan Floodd Control District (FMFFCD) is ressponsible foor flood conntrol and storm
water pllanning andd managemment. The DDistrict enccompasses almost thee entirety oof the
Fresno-CClovis Metroopolitan Areea, with thee exception of 6.5 squarre miles of SSEDA, whichh has
yet to bee annexed tto the Distrrict. Once aall of SEDAA is annexedd, FMFCD wwill developp and
adopt storm water master planns for SEDAA. Annexatiion of the reemaining arrea would aallow
the Distrrict to movee forward inn planning foor the entireety of the mmetropolitann area.
Durinng the course of this review sevveral otherr governance structurre options wwere
identified by the Ciity with a pparticular ffocus on reggionalizatioon of servicces. By creating
partnersships, neighhboring muunicipalities can engagge in sharedd services, inter-muniicipal
agreemeents, municipal collaboorations, coonsolidationns, mutual aaid, and reggional plannning.
While reegionalization can raisse concernss of loss off local conttrol, it has tthe potentiial to
create an improvedd means forr providing services annd also leadd to cost-saavings and mmore
efficient processes. Pooled ressources can help preseerve essentiial services and streammline
service ddelivery. LAAFCo approvval is not nnecessary too initiate reggionalizatioon of services as
discusseed here, suchh as joint poowers assocciations andd other interr-agency agreements.
Counntywide solid waste pprogram: AAt present tthe City maanages solidd waste services
within tthe city limmits with feww exceptions. The Coounty geneerally overssees solid wwaste
services in the uniincorporateed portions of the Couunty. Addiitionally, thhe County ooffers
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several countywide solid waste services, including management of a hazardous waste
program, operation of a countywide information program, and management of waste
streams for all jurisdictions.
Regionalization of law enforcement services: In 2003, the City looked into the
possibility of reorganization of its law enforcement services with the Sheriff’s Department;
however, this option never came to fruition.
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2 0.. MMU N ICCI PA LL SE RRVI CC E R EEV I EWW
D ETEER MIINATT I O N SS A N DD
R ECCO MMME N DDAT II O N S
GROOWTH AND POPPULATIOON PROJECTIONS
AAs of Januaryy 1, 2014, thhe City hada populatioon of approxximately 5115,609, baseed on
California Deepartment of Finance (DOF) estimmates, whicch indicatess approximmately
foour percentt growth sinnce the 20100 Census.
TThe City’s Geeneral Plan pprojects thaat the area wwithin the CCity’s SOI wiill accommoodate
an additionaal populationn of approximately 2266,000 new rresidents byy 2035, resuulting
inn a total poppulation of 771,000, wwhich equatees to an aveerage annuaal growth raate of
1.24 percentt.
TThe City antiicipates thaat surroundiing areas wwill continuee experienciing high rattes of
population ggrowth overr the planninng horizon oof the Generral Plan, althhough growwth is
exxpected to bbe approximmately half tthe rate as tthat of the ppast 30 yearrs.
TThe City conntinues to hhave appliccations for new structtures and laarger multii-unit
developmentts; howeverr, new devellopment haas significanntly slowed iin recent yeears.
WWhile the Ciity does traack, to somee degree, prroposed annd approvedd developmments,
thhis informattion is limitted and nott readily avaailable in a usable formmat. The syystem
also fails to ttrack the staages or proggress of devvelopment.
Recommmendation: that the Citty institute a centralizeed system tto documentt and
track all developmeents under construction, approvved, and/orr proposed in a
manner tthat is accesssible by cityy staff and mmembers off the public..
TThe Californnia High Speeed Rail prooject is antiicipated to promote ecconomic andd job
growth with the construuction of thhe proposedd heavy maiintenance faacility just ssouth
of the Fresnno SOI and developmeent of the ddowntown station. Thhe City planns to
caapitalize onn the projeect by creaating a plaan to revittalize the DDowntown area
suurroundingg the propoosed stationn. Additionnally, shoulld the heavvy maintennance
faacility be appproved souuth of the CCity, the Cityy has expreessed intereest in servicces to
thhe facility. TThis may neecessitate ann expansionn of the Fressno SOI.
DDue to a balaance of inveestment in eestablished nneighborhooods and neew growth aareas,
thhe General PPlan allowss an overall increase inn residentiaal density annd developmment
inntensity as ccompared too the 2025 GGeneral Plann.
Specific plannning for the Southeastt Developmment Area (SSEDA) has bbeen deferreed as
a result of thhe City’s subbsequent pllans to focuus on enhannced infill inn its existingg city
limits and diirect new ddevelopmennt to the weest and soutthwest devvelopment aareas.
TThe City has, to some degree, inncorporatedd SEDA intoo its Generral Plan Update;
however, poolicies that ddeal with hhow this areea fits into the greaterr infill and west
area policy sstructure arre broad inn nature. FFurther, the City Counccil and Board of
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Supervisors have already approved one 20-acre development in SEDA that, though
permitted by exception, may indicate market pressure to develop this area prior to
the completion of the major planning tasks that had earlier been deemed necessary
by the City and County and now are unfunded and unscheduled.
Recommendation: that the City evaluate whether its SEDA conditions—
contained in both the City/County Memorandum of Understanding and Fresno
LAFCo’s conditional approval of the SEGA SOI—remain appropriate given the
shift in the General Plan’s development policy since 2006.
The City plans to adopt a method to ensure strategic sequencing of development, in
order to promote infill development within city limits prior to areas requiring
annexation.
Recommendation: that the City implement an objective and transparent
measurement to track its development benchmarks to determine the
appropriate timing of planned growth.
The City of Fresno has partnered with 13 of the other 15 federally-defined
Urbanized Areas in the San Joaquin Valley as part of the Smart Valley Places
network, to plan and implement smart growth, livability, and sustainability through
revised land use and transportation systems in the respective cities within all the
Urbanized Areas in the eight-county Valley region.
The City has adopted several policies in its General Plan to ensure coordinated
development of certain infrastructure common between the City of Fresno and the
City of Clovis.
Recommendation: that the City, the City of Clovis, Fresno County, Madera
County, and other neighboring cities, and Fresno LAFCo continue to participate
in regionally collaborative planning efforts.
Fresno LAFCo adopted a policy encouraging annexation of unincorporated islands
within city limits and requiring cities in Fresno County to develop plans to annex
these areas. To date, the City of Fresno does not have a plan in place for annexation
of these islands.
Recommendation: that the City develop a General Plan implementation
program that conforms with the Fresno LAFCo annexation program. This
implementation program can address annexation of the unincorporated islands
within the city limit; annexation of the urban edge that is impacted by irregular
boundaries, and conflicting County land and comprehensive service transition
planning for affected agencies.
The Fresno City Manager has stated that the City will be the applicant for all new
annexations. According to LAFCo Policy 318, Fresno LAFCo may not disapprove an
annexation within an urban service area that is initiated by a city resolution and is
contiguous territory, which is not prime agricultural land and is designated for
urban growth on the City’s General Plan.
In previous SOI updates, the non-contiguous land where the Regional Wastewater
Reclamation Facility is located has not been discussed for inclusion in the City’s SOI,
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although thee territory iss within the incorporatted city limits as an islaand as permmitted
by CKH. Byy excluding the wastewwater facilitty lands froom the SOI, it could apppear
thhat LAFCo is signifyinng the eveentual detaachment off this land from the City;
however, thiis is not thee case. The practice off not including a city’s non-contigguous
public facilitty within an SOI is coommon for LAFCos, giiven that growth of ppublic
faacilities is rrelatively sllow when ccompared wwith the maarket influeences of thee city
ittself, and occcurs generaally in respoonse to the territory needed to exxpand the ppublic
faacility.
Recommmendation: That Fresnno LAFCo ddetermine a SOI for thee City’s Reggional
Wastewaater Reclamaation Facilitty.
LOCATION ANND CHARACTERRISTICS OF ANYY DISADVANTAGGED
UNINCORPORRATED CCOMMUNNITIES WWITHINN OR CONTIGUOOUS
TO THHE SPHEERE OF IINFLUENNCE
Iddentifying aand includinng disadvantaged uninccorporated communities (DUCs) in the
loong range planning of aa city or speecial districtt is requiredd by SB 244..
For any requuest for a neew or SOI uppdate with regards to aa city or speecial district, the
ciity or speciaal district wwill be requirred to identtify any disaadvantaged unincorporrated
coommunitiess within annd contiguoous to theirr boundariees and idenntify any leegacy
coommunitiess within onee mile of thhe existing oor proposedd SOI.109 Purrsuant to Frresno
LAFCo Policyy 106, LAFCCo will veriffyy all informmation and mmake indepeendent attempts
too identify DUCs using vvarious meaans of informmation sourrces.
LAFCo staff considered various souurces of infformation aavailable annd included local
coommunity-bbased organizations innput in ordder to deterrmine the llocations wwhere
DDUCs may exxist within tthe City’s SOOI boundaries and greaater unincorrporated areeas.
LAFCo staff has identifiied 20 poteential DUCs within Freesno’s SOI aand six poteential
DDUCs withina one-mile distance ouutside the addopted SOI boundariess.
Locations iddentified as DUCs display charactteristics of a DUC purssuant to Frresno
LAFCo’s Poliicy 106 andd consistentt with the CCKH Act of 22000. Eachh identified DUC
area is desiggnated withh a number in Figure 77-3 and the correspondding commuunity
description identifies: tthe locationn, number oof propertiees within tthe DUC, itss U.S.
Census Tractt-Block Grooup numberr, and the MMHI levels foor the time period betwween
2006 and 2010.
TThe City’s Geeneral Plan iindicated thhe City planns to complyy with SB 2444 in develooping
a city strateggy to identiffy all DUCs wwithin the CCity’s SOI. TThe Generall Plan statess that
thhe City of Frresno will pperform thee required innfrastructurre analysis to coincide with
itts next scheduled Housing Element Update in Compliance with Statee law.
TThe information presennted in Chappter 7 proviides the Cityy with data needed to meet
SB 244 requuirement puursuant to GC §653022.10.(a) whiich requires that eachh city
109 Policies, Standards, andd Procedures, Frresno Local Ageency Formationn Commission, PPolicy 106 - DUCs
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reeview and uupdate the lland use eleement of itss general plaan, based onn available data,
inncluding, buut not limiited to, thee data andd analysis ddeveloped ppursuant too GC
§56430.
PRESSENT ANND PLANNNED CAAPACITYY OF PUUBLIC FAACILITIEES
AAND ADEQUACYY OF PUBLIC SEERVICES, INCLUUDING
INFRAASTRUCTURE NNEEDS AND DEFICIENCIIES
Present Capaacity
Certain depaartments face more siggnificant chhallenges to capacity thhan others. The
public safetty departmments have more reaadily identtifiable cappacity conccerns,
coompared too other depaartments, ass defined byy longer emeergency ressponse times.
TThe City of FFresno Poliice Departmment had too implement significannt organizattional
chhanges to meet commmunity neeeds with fewer resources, inccluding priiority
mmodificationn, staff reaassignment, and restrructuring of the opeerations. TThese
economic coonstraints, ccombined wwith other iissues, suchh as parole reform andd the
early releasee of prisoneers, have reequired the Departmennt to focus iits resourcees on
thhe highest ppriority dutiies, resulting in longer response times.
TThe Fire Deppartment haas been unaable to meet target ressponse timees, due to cuuts in
thhe number oof units avaailable to resspond. Addiitionally, duue in part too the duplicaation
of services provide bby Americaan Ambulaance, the Departmennt has stopped
reesponding to serious medical emmergency ccalls, and rreduced avaailability foor all
public educaation outreaach.
TThe Parks, AAfter Schooll, Recreation and Community Serrvices Department (PAARCS)
has experiennced deferreed maintenaance of infrrastructure which is coostly to mainntain
and relies heeavily on volunteers forr maintenannce work.
Planned Capaacity
TThere is a geeneral needd to update master plaanning docuuments to eensure adeqquate
caapacity of ccity infrastructure, faccilities, stafffing, and oother resouurces to adddress
planned landd use densitty changes between thhe 2025 Genneral Plan aand General Plan
UUpdate.
Recommmendation: that the Ciity programm regular uppdates of itss master service
plans to eensure that they are keept up-to-daate.
Recommmendation: that LAFFCo initiatee a multi-aagency asseessment off the
efficienciies of annexxation of coounty islandds and multtiple special districts inn the
Fresno SOOI.
Recommmendation: that the CCounty amennd its Geneeral Plan to conform too the
City’s dessignated lannd uses in arreas within the Fresno SOI.
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Substantial design of essential infrastructure will be necessary before any new
development can take place in the Southeast Development Area. Based on current
MOU and LAFCo conditions, adoption of a specific plan that includes comprehensive
provision of public infrastructure is necessary.
According to the General Plan, portions of SEDA are anticipated to develop by 2035,
with General Plan buildout not occurring until 2050 or beyond.
The City will require additional sworn law enforcement officer personnel and
firefighting personnel in order to meet its targeted staffing level as identified in the
General Plan
The City will need substantially more park acreage to meet the new General Plan
goal of five acres per 1,000 residents.
As reported in the General Plan, the City’s existing waste disposal facilities are
considered adequate to maintain a sufficient level of service for future population
growth in the City through the planning period of the document.
According to the City’s General Plan, Fresno’s existing street system has excess
capacity in several key areas due to the recent construction of the freeway system.
The City aims to take advantage of this situation by promoting denser development
on these streets.
In order to support the projected increase in population, the City recognized that its
wastewater collection and treatment system must be expanded to handle the
resulting increase in flow and to provide service to new developments. The City
plans to continuously monitor, and update as necessary, the master planning
documents prepared for the wastewater management division to ensure that
wastewater capacity is available to accommodate new planned growth and
development.
Where infill development substantially increases density or building height, the
existing public water main infrastructure may require upgrading due to increased
domestic water demand reducing available water volume and pressure for
firefighting and potential damage to aging water pipes during firefighting incidents.
Service Adequacy
The City appears to provide adequate services based on the performance measures
assessed in this document. No significant deficiencies were identified that greatly
affect the overall level of services offered.
Typical of any public service provider, there is room for improvement in the level of
services offered by the City. Specifically, during the course of this review the
following highlighted recommended enhancements to service were identified to
address chronic/repetitive issues or public safety concerns:
Recommendation: that the City ensure that contract Fresno Convention &
Entertainment Center provider benchmarks are attained and subsidizing of
operations by general fund minimized to the greatest extent possible.
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Recommendation: that the City plan as necessary to ensure sufficient capacity
at the Regional Wastewater Reclamation Facility appropriately address
population growth from development.
Recommendation: that the City continue to strive for lower response times by
public safety departments to meet goals and standards.
Recommendation: that the City continue to work to ensure an equal
distribution of park and recreation facilities throughout the City.
Infrastructure Needs and Deficiencies
Airports: A majority of the airports’ major infrastructure needs were addressed in
FY 14 with smaller projects planned over the next five-year period.
Fresno Convention & Entertainment Center: Three of the halls/theaters
associated with the Fresno Convention & Entertainment Center are aging and in
need of improvements that were deferred until sufficient funding could be
identified. Funding has reportedly now been identified and a facility assessment
will be conducted later this year to identify ongoing lifecycle costs.
Fire and EMS: The Fire Department has plans for a new fire station to replace its
existing temporary structure where Station 18 is presently housed. Other
infrastructure needs include a new Fire Apparatus Repair Facility as well as
upgrades to the Fire Training Facility; however, these capital improvements have
been deferred until funding can be identified.
Homeless: There is opportunity for community leaders to develop plans for the
creation of an appropriate emergency shelter. There is a continued need to develop
plans for permanent housing opportunities. While the City might be able to help
fund the cost of an emergency homeless shelter, the underlying responsibility of
operating such a facility resides with the County and/or other social service
agencies.
Law Enforcement: Reportedly, there are multiple law enforcement infrastructure
needs that have not yet been recorded because facilities have not been thoroughly
assessed.
Recommendation: that the City conduct a comprehensive assessment of its law
enforcement facilities to identify and prioritize capital needs.
Parks and Recreation: The City continues to develop new parks as funding allows,
but it has had to make certain cuts to cover budget shortfalls and ensure adequate
funding for continued maintenance upon construction. As a result of budget cuts,
there is substantial deferred maintenance at existing park facilities. In addition, the
level of funding from park impact fees, combined with developers applying fee
credits to their projects, have resulted in General Fund dollars that could have been
used for deferred maintenance now being used to cover the debt service for new
parks built over the last 10 years.
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Solid Waste: The City continues to monitor the inactive Fresno Sanitary Landfill
site, and provide all required post-closure care and maintenance in accordance with
the EPA consent decree.
Streets: Fresno has transportation facilities that meet all modes of circulation, but
the systems for pedestrians and bicycles are largely incomplete. Completing these
citywide networks would encourage faster and simpler travel routes for work,
errands, and recreation by means other than private automobile. Correspondingly,
the City envisions in its General Plan a Level of Service (LOS) system that includes all
modes of transportation, including pedestrians, bicycles and public transit users. A
multi-modal LOS system is expected to help support the development of more
intense land uses where desired by permitting localized automobile congestion, if
walking, biking, and transit systems operate at high levels.
Transportation: The City is proposing significant capital improvements to its
public transit system over the next five years, projecting to cost $189.2 million.
Capital expenditures will have a particular emphasis on the bus rapid transit system
and improving service levels along other key transit corridors (e.g., Shaw Avenue).
Wastewater: The City’s aging infrastructure (collection and treatment), together
with the need to pursue more advanced levels of reclamation and reuse are of
significance, especially when planning for full buildout under the City of Fresno
General Plan Update. The City is in need of and is planning to construct the East
Central Recycled Water Facility to provide recycled water for non-potable purposes
and redirect sewer flow from a portion of the sewer trunk system that lacks
adequate capacity.
Recommendation: The City will need to assess options for addressing
potential future increased demand at the Regional Wastewater Reclamation
Facility, as it is nearing 75 percent capacity—the threshold at which initial
planning efforts are required by State statute and are considered a best
management practice. Additionally, corrective measures to address
significant infiltration and inflow in Downtown Fresno are recommended.
Water: Due to declining groundwater levels, contamination concerns, and new legal
requirements regarding groundwater management, the City just approved a
significant water capital improvement plan, to be implemented through FY 19, to
diversify its water supply portfolio with surface and recycled water, prevent
groundwater overdrafting, offset current demands, and meet future demands from
anticipated growth.
Economic Development: Given the City’s chronic high level of unemployment that
is nearly 50 percent higher than the statewide unemployment rate, economic
development is crucial to the City. The City is working with the private sector to
retain, expand and attract new businesses to Fresno and the Central Valley. It is
extremely important the City foster through public-private partnerships business
parks and industrial land development ready. Failure to plan for and foster
industrial land makes the City uncompetitive for business development.
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FINAANCIAL ABILITY OF AGGENCIESS TO PROVIDE SSERVICEES
TThe City of Fresno, likee all other cities in thee State of CCalifornia, hhas sufferedd the
devastating impacts thaat the proloonged recesssion has haad on its ecconomy andd City
reevenues. Looss of signifficant amouunts of saless tax, propeerty tax, andd service chharge
reevenue speecific to thee General FFund duringg the recesssion heavilly impactedd the
fiinancial conndition of thhe City.
DDue to the Ciity’s size, municipal serrvice responnsibilities, bbargaining uunit agreemments,
debt servicee obligations, and capital expendiiture requirrements, reevenue recoovery
did not matcched expendditure growtth proportioonately.
Inn general, tthe City’s foormer finanncial condittion would be consideered unstabble in
soome respects due too depleting emergenccy reservess, negative fund balaances,
declining revvenues, andd increasingg employmeent costs. HHowever, the City has mmade
great stridess in implemmenting cosst saving mmeasures to manage thhe slow revvenue
reecovery, inncluding ann overall rreduction of approxiimately 1,2200 employees,
reeduction orr elimination of some mmaintenancce and replaacement of equipmentt, and
inncreased uttilization of volunteers where feassible in thee parks and recreation type
activities.
TThe City has implementted a five-yeear budget plan to manage the fisscal conditioon of
thhe City and grow itself back to susstainable levvels. Due too the instabiility of revennues,
thhe City prevviously expeerienced siggnificant short term caash flow prooblems, incuurred
negative funnd balancess requiring repaymentt, and had no opportuunity to rebbuild
emergency ccash reservves. The fivve-year plann adopted by the Cityy is workinng to
address thesse issues.
Capital replaacement prrograms thrroughout thhe City hadd been susppended untiil the
City began too recover suufficiently frrom the reccent econommic downturrn. Over thee last
twwo years, thhe City has bbegun to fuund regular maintenancce, funded tthe ongoingg cost
of police carrs and fire apparatus, taken the steps to adddress decaades of defeerred
reepairs and improvements to its facilities, built two nnew parks,, and imprroved
seeveral existting park annd recreationn facilities.
MMost departtments idenntified lack of funding as a signifiicant challeenge to servvices.
MMost of the “enterprisee” (businesss type activvities) such as water, wwastewaterr and
soolid waste sservices, aree now financially stablee.
DDespite receent difficultiies, the Solid Waste Diivision has aa healthy fiinancial resserve.
TThe divisionn’s reserve hhas been ussed on occaasion to covver the defiicit of otherr city
departmentss, but alwayys with repayment datees in place.
TThe Fresno Conventioon & Enterrtainment Center commplex does not geneerate
suufficient prrofit to fully finance operationns, which iis not unccommon ammong
coonvention ccenters. Thee shortfall iss subsidizedd by the Cityy's General Fund.
TThe City haas previously establishhed facilitiees fees to implementt the goals and
objectives off the City’s 2025 Geneeral Plan, annd to mitiggate the imppacts causeed by
fuuture development in the City through acquuisition andd constructioon of addittional
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faacilities. Hoowever, a ddevelopmennt impact feee update iss underwayy to address the
needs of the General Plaan.
Inn 2015, the City Counciil approved a five-yearr rate plan to finance siignificant caapital
immprovemennts to the waater systemm.
STATUS OF, AAND OPPORTUNNITIES FFOR, SHARED FACILITIIES
TThe City takkes advantagge of opporrtunities forr shared faacilities wheere it can and is
open to addditional shaaring opporrtunities ass they arise. Fire, pollice, water,, and
wwastewater services are the preedominant city servicees that preesently praactice
faacility sharing with othher agenciess.
TThe Fire Deppartment reents two off North Cenntral Fire Prrotection DDistrict’s vaccated
fiire stations——one to hoouse an antiique fire apparatus andd other equuipment, andd the
other as a supply faccility. FFDD's Station 10 is shaared with rreserve airrcraft
fiirefighting ppersonnel. Station 21 is also useed as a postt for Ameriican Ambulance,
wwhich includdes two ammbulance ppersonnel. The City aalso has ann automaticc aid
agreement wwith the Citty of Clovis whereby thhe nearest fire stationn responds tto an
emergency rregardless oof the jurisdiiction withiin which it is located
TThe police training faciility is usedd by Fresnoo Police Deepartment sstaff and byy law
enforcementt personnell from arouund the Cenntral Valleyy, as well ass agencies from
around the State. Fressno PD entters into foor-fee trainning prograams with oother
agencies, reeducing ovverall operation and maintenannce costs of the faccility.
AAdditionally,, the Multi-AAgency Ganng Consortium shares a building with the Frresno
County Sheriff’s Departtment. The location allso serves aas a processsing location for
coonvicted sexx offenders.
RRecycled waater produceed by the City is shareed with Fressno Irrigation District via a
wwater sharinng agreemennt in exchannge for surfaace water.
TThe City shares the Regional Waastewater RReclamationn Facility wwith the City of
Clovis, at whhich it treatss effluent froom some unnincorporatted areas off Fresno, thee City
of Clovis, Pinnedale Publiic Utility Disstrict, and PPinedale Couunty Water District.
TThe FAX fixeed route connventional bbus transportation systtem integrattes with thee City
of Clovis’ fixeed route sysstem.
TThe Police DDepartmentt continues to exploree a joint dispatch centter with Frresno
County Sheriiff’s Departmment.
TThe City is rreportedly identifying opportunitties to add park spacee to establiished
neighborhooods throughh mechanismms such ass co-location with other facilitiess and
jooint use agreements.
Inn addition to regional planningg activitiess, the City’’s General Plan idenntifies
opportunitiees for signnificant shaaring of seervices amongst adjaacent proviiders,
inncluding thee County off Fresno, thee County off Madera, annd the City of Clovis, inn the
foorm of a reegional justice system, a regionall public heaalth program, and reggional
library, recreeational, andd social servvices.
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TThere appeaars to be an opportunitty for enhannced commmunication bbetween thee city
and other neeighboring/overlappingg utility prooviders. Maalaga Countyy Water Disstrict,
Pinedale Pubblic Utility DDistrict, andd Pinedale CCounty Watter District pprovide serrvices
adjacent to oor overlapping the Cityy’s boundariies; howeveer, it is oftenn unclear wwhere
thhese overlaaps occur. FFor examplle, it is uncllear whetheer solid waaste services are
provided by the City to the portionns of MCWDD within thhe city limitss, as neitheer the
City nor MCWWD were abble to providde clarificattion.
Recommmendation: that the Ciity coordinaate with thhese speciall districts too the
greatest extent posssible to enssure clarity on service areas and proper reggional
planning of water annd wastewater infrastruucture.
ACCOUNTTABILITY FOR CCOMMUNNITY SERVICE NNEEDS,
INCLUUDING GGOVERNMMENTALL STRUCCTURE AAND OPEERATIONNAL
EFFIICIENCIEES
TThe City of Fresno demmonstratedd accountabbility and trransparencyy in its varrious
aspects of opperations. TThe governiing body uppdates consttituents, sollicits constittuent
innput, and poosts public ddocuments on its webssite.
TThe City Couuncil recenttly created the Enterpprise Capitaal Managemment and Citizen
OOversight Committee tto review ccapital impprovement plans withh regard too the
enterprise fuunctions of tthe City to eensure efficiient use of ppublic fundss.
AAs the popullation grows and changges, increaseed attentionn to servicee efficienciess will
be necessary, especiallly given fisscal constrraints affectting local ggovernments in
California. Intergovernnmental cooperation, regionalizaation of serrvices and joint
efforts for effficiency warrant continnued attentiion.
Several goveernance struucture optioons were ideentified in pprevious MSSRs and oveer the
coourse of thhis MSR. There are mmany speciaal districts, including PPinedale Coounty
WWater Distriict, Pinedale Public Uttility District, Malaga County Waater Districct, 10
coounty serviice areas, CCalwa Recreeation and Park Distrrict, and Bluuffs Commuunity
Services Disstrict, whicch provide similar seervices as the City and overlapp the
inncorporatedd city terrritory and areas in the City’ss SOI. Pootential disstrict
mmodificationns could enhhance the effficiency of sservice delivvery.
Recommmendation: that the Ciity work wiith Fresno LLAFCo, Fressno Countyy, and
the speccial districtss in the Frresno SOI to assess metropolitaan area service
delivery and determine if effficiencies mmay be gaained if thee City assuumed
responsibbilities for sservices in tthese areas.
TThe Fresno Metropolitaan Flood Coontrol Distrrict (FMFCDD) encompaasses almosst the
entirety of tthe Fresno-Clovis Metrropolitan AArea, with thhe exceptioon of 6.5 sqquare
mmiles of SEDDA, which hhas yet to bbe annexedd to the Disstrict. Oncee all of SEDDA is
annexed, FMMFCD will deevelop and aadopt stormm water masster plans foor SEDA.
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2 1 . SPHH E REE O F I N FLLU E NNC E
UUPDAT E
EXISTING SPHERE OF INFLUEENCE
The City’s Sphere of Influeence (SOI) wwas most rrecently uppdated by FFresno LAFCCo in
2006 annd again in 22007. The SOI updatee that took pplace in 2007, after thhe completioon of
the Munnicipal Servvice Review,, simply reeaffirmed thhe City’s SOOI previoussly amendeed in
2006.110 TThe current SOI is commprised of mmost land wwithin the CCity’s bounddaries (withh the
exceptioon of the nonn-contiguouus territory where the regional waastewater ffacility is loccated
to the soouthwest off the City), as well as tthe unincorrporated isllands, and lland beyondd the
outer citty limits onn all four sides. The SSOI encomppasses 157 square milles, of whicch 43
square mmiles is uninncorporatedd land. The City’s SOI iis larger thaan its boundary area bby 39
percent.111
The SOI amenddment in 2006 consissted of the addition oof 8,863 accres termedd the
Southeasst Developmment Area (SEDA), formmerly termeed the Southheast Growtth Area or SSEGA.
As part of the approval of the SOI amenddment, Fresnno LAFCo pplaced condditions on fuuture
annexatiions of parrcels withinn SEDA, including adopting a sppecific plann for the SSEDA
territoryy, preparingg and adoptting a masteer service ddelivery plaan for SEDAA, and prepaaring,
adoptingg and initiating implemmentation oof a programm for annexxing open sspace areass and
rural ressidential neighborhoodds.112 The SEDA territorry is fully inncorporatedd into the Frresno
General PPlan and deesignated wwith land usees and streeet circulatioon classificaations consistent
with thoose for the entire SOI pplanning arrea coveredd by the Genneral Plan. Environmental
analysis has been coompleted thhrough the preparationn of an updaated Masterr Environmental
Impact RReport (MEIIR) for the CCity of Fresnno.
SPHERRE OF INNFLUENCCE OPTIONS
Overr the course of this servvice review, the followinng options wwere identiified with reegard
to the City’s SOI:
SOI OOption #1: City Propoosal – No Chhange
The FFresno City Council callled for no eexpansion oof the City’s SOI under tthe Generall Plan
planningg horizon (22035), as recognized inn General Pllan Policy LU-1-g. The City electedd not
to expannd the SOI inn part to fullly develop developmeent areas weest and soutthwest of SR 99,
and to pllan for the pphased deveelopment off the Southeeast Developpment Areaa.
As sttated in thee City’s Genneral Plan, the preserrvation of tthe SOI bouundary not only
serves too promote infill develoopment goaals, but alsoo to increasse the oppoortunity to ffocus
needed rresources inn Downtowwn and estabblished neigghborhoodss, benefittinng current hhome
110LAFCo Reesolution MSR-07-29.
111 City of Fresno, 2035 Genneral Plan Initiaation Review Drraft, August 20112, p. 4.
112Ibid.
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and propperty owneers. In addittion, the strrategic inveestment upggrades to thhe City’s surface
water trreatment faacilities annd distributtion systemm, as well as the Citty’s wastewwater
reclamattion facilitiees and disttribution syystem needed to servee the greatter developmment
capacitiees called foor by the GGeneral Plann can only be justified by a fixeed SOI overr the
planningg period as nnoted by gooals, objectivves and poliicies in the pplan.
SOI Option #2: Expansiion to Incllude Potenntial High Speed Raiil Maintenance
Facility
While the City hhas not requuested to exxpand the SSOI, Generaal Plan Policcy LU-1-g alllows
for an eexception in the casee of the pootential sitee for the CCalifornia HHigh Speed Rail
maintenance facilityy. The faciliity is propoosed to be loocated on aa 700-acre ssite immediiately
adjacentt to the Citty’s existingg SOI betwween State Route 41 and State Route 99. The
maintenance facilityy study areea is locatedd between SSouth Cedaar Avenue aand the railroad,
from Eaast Malaga AAvenue in the north tto East Jeffferson Avennue in the south. Onlyy the
portion of the proposed facilityy location ssouth of Easst Americann Avenue is located ouutside
of the Citty’s SOI. The proposed location of the maintennance facility is shownn in Figure 221-1.
The City has exxpressed ann interest in providinng services to this faccility but iss not
otherwisse requestting addingg the terrritory to tthe Fresnoo SOI. NNotwithstannding,
authorizzation for a city or district to extennd services to a propoosed facility outside of their
SOI must be grantedd by LAFCo and by stattute must be supportedd by evidence of an exiisting
or pendiing threat too human heealth and saafety. In conntrast, it maay be more practical foor the
Fresno SSOI to be ammended to permit annexxation and sservice to thhis facility. Those decissions
will be aaddressed aat the time tthat the HSRR Authorityy announcess the locatioon of the faacility
in 2016.
Shouuld this areaa be includeed in the Citty’s SOI, it iss the City’s policy that residential uses
would bbe prohibitted. This would be accomplishhed by a GGeneral Plaan amendmment,
prezoninng, and anneexation of thhe territoryy for this usee.
Figure 21-1: High Sppeed Rail Maaintenance FFacility Studdy Area
Maintenaance
Facility SStudy
Areaa
Potential SOI
Expansionn Area
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SOI OOption #3: Expansionn to Includee Territoryy in the Friaant-Copperr Area
Althoough, the CCity does noot have anyy plans for SOI expannsion, the ddeveloper oof the
Copper RRiver Ranchh submittedd an applicattion propossal to Fresnoo LAFCo to revise the CCity’s
SOI by including twwo parcels of land owwned by thee County off Fresno and to annexx said
territoryy to the Cityy of Fresno.. The two parcels totall 37 acres aand are locaated on the west
side of FFriant Road at its interssection withh Copper Avvenue. The tterritory is ddesignated open
space inn both the CCounty and City Generaal Plan. Thhe SOI will potentially be amendeed to
include tthe Friant-CCopper areaa after the developer performs thhe requiredd environmental
review aand submitss an applicaation to LAFFCo. The afffected territtory is showwn in Figure 21-
2.
FFigure 21-2: Potential FFriant-Coppeer SOI Expansion Territory
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SOI OOption #4: Removal oof SEDA froom City’s SOOI
Fresnno LAFCo toook action tto add the SEDA to thee City’s SOII in anticipaation of pennding
specific pplanning off the area. TThe City hass since redirrected its Geeneral Plan focus on inffill in
the existting incorpoorated areaa and development of Growth Area 1; SEDAA is identifieed as
Growth Area 2. Immplementattion policiees place SEEDA in a suubordinate position inn the
sequence of deveelopment noting, “GGrowth Areea 2 needds critical infrastruccture
improveements, and the City dooes not anticcipate that ffunding for this area caan be commmitted
in the neear-term.”
This raises quesstion about keeping SEEDA within the Fresnoo SOI. LAFCo SOI Plannning
Horizon policy conssiders a SOII as the probbable physiical boundaaries of an aagency withiin 20
years of the SOI appproval. The undefined nature of “nnear-term” commitmennt given to SSEDA
is instruuctive given the MOU cconditions ((similar to LLAFCo SEGAA conditions) that stipulate
extensivve land usee and munnicipal servvice planninng, among other actiivities, prioor to
developmment in SEDDA. Conseqquently, the years-long planning effforts must commence long
before thhe plan areaa is ready too develop.
LAFCCo may deteermine to eiither retainn the SEDA SSOI in its exxisting statee and encouurage
the City to refine sequencing poolicies so thhat they betttter correspond to LAFCCo SOI policcy, or
may dettermine to remove all or part oof SEDA to better corrrespond too the expreessed
intentionns of the General Plan.113.
SOI OOption #5: Determinee a SOI for the Regionnal Water RReclamation Facility
The nnon-contiguuous territoory where the RWRF iss located haas not beenn included inn the
City’s SOOI in previouus SOI updaates. As the SOI presenttly exists, byy excludingg the wastewwater
facility laands it appears that LAAFCo is signnifying the eeventual deetachment oof this land from
the City; however, this is not thhe case. Insttead, the areea has histoorically remmained outsiide of
the City’’s SOI as a matter of ppractice givven that thee area is noon-contiguoous to the CCity’s
boundarries and the property iss owned andd used for ppublic purpooses by the CCity.
Optioons consideered were too continue tto not includde the RWRRF in the SOOI, and adoppting
a policy for the teerritory in qquestion too prevent mmisinterpreetation as to why it iss not
includedd in the Cityy’s SOI. Ulttimately, thhese alternaatives failedd to addresss the likelihood
that the city may in the future seek to exppand the RWWRF facility and need aannexation tto do
so. The most feasibble course oof action is ffor the Commission to determine aa SOI that mmeets
the intennt of a “plann for probabble physical boundariess” of this faccility.
SPHERE OF INFLUENCE ANALLYSIS
The timing andd certainty of the poteential SOI eexpansion needed by the HSR hheavy
maintenance facilityy is unknowwn at this timme.
A Granville Hommes represeentative reccently appeaared beforee Fresno LAAFCo requeesting
that the Friant-Coppper SOI exppansion be consideredd by the Coommission wwith the Frresno
MSR andd SOI determmination. If the SOI is eexpanded ass requestedd, the small area in question
113 Please rrefer to Fresnoo General Plan:: Chapter 3, Urrban Form, “Sooutheast Development Area ((SEDA);” Chaptter 12,
Implementation, “Strategic Sequencing off Development.”
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would be annexed iinto the Cityy and the deeveloper woould then bbe eligible foor fee creditts for
its recreation improovements inn the territory. No channges to landd use are prooposed.
Withh regard to SSEDA, the Ciity has directed its growwth and plaanning focuus to other aareas,
namely iinfill of the existing urbban area annd Growth AArea 1. Givven this channge and thee City
Council’ss Novemberr 2014, approval of an exception ffor a 20-acrre developmment in SEDAA (as
well as LLAFCo’s Sepptember, 20015 approvval of that pproposal), thhe developmment conditions
establishhed to ensure specific pplanning inn SEDA mayy need to bee reevaluateed in light oof the
passage of time sincce SEDA waas originallyy proposed and changiing market conditions. The
General PPlan mentioons SEDA annd addressees it at a higgh level, butt demonstraates few speecific
policies tto address ccurrent statte of planninng and deveelopment. TThe City’s Geeneral Plandoes
not appear to anticipate deveelopment wwithin SEDAA in the lonng term, wwith only paartial
developmment of the area occurrring in the nnext 20 yearrs.
SPHERRE OF INNFLUENCCE DETEERMINAATIONS AAND
RRECOMMMENDATTIONS
Present and pplannedd land uses, inccluding agriculttural annd
open-space laands
OOf parceled land withinn city limits, the largesst land use iis residential at 35 perrcent
(rresidential and rural residential uuses). Otheer significannt land usess within thee City
are for streeets and vacaant or agriccultural purrposes. Within the SOOI outside oof the
City limits, 29 percentt of land uuse is residdential andd 16 percent is vacannt or
agricultural.
WWhile agricuultural uses continue too dominatee much of thhe regional landscape, only
mmoderate ammounts of agriculturaal land remmains in prooduction wwithin the CCity’s
planned urban boundarry (primarilly in the eastern, southheastern annd southwesstern
areas). In 20011, there wwas approximately 16,8805 acres off agriculturaal or vacantt land
wwithin the Ciity and its sphere of inffluence. A mmajority of vvacant land along the uurban
edge was acctively cultivvated agriccultural landd at one timme, althouggh portions may
have been purchased inn anticipatioon of futuree urban exppansion. In some instaances,
agricultural use was diiscontinuedd along the fringes of the City inn anticipatioon of
urban use.
Policies in thhe General Plan were designed tto preservee farmland bby incentivvizing
new developpment withhin and adjaacent to alrready-urbannized land, only extennding
public utilities to new ddevelopmennt that adheres to the PPlan, and noot expanding the
City’s SOI.
TThe Californnia High Speeed Rail prooject is antiicipated to promote ecconomic andd job
growth withh the constrruction of tthe maintennance faciliity and dowwntown staation.
TThe City plaans to capiitalize on tthe project by creatinng a plan tto revitalizee the
DDowntown aarea surrounnding the prroposed staation.
TThe City hass expressedd an interesst in providding servicees to this faacility but iss not
otherwise reequesting addding the teerritory to the Fresno SOI. Authoorization foor the
ciity to extennd services to the propposed faciliity outside of the Fressno SOI must be
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granted by LAFCo and by statute must be supported by evidence of an existing or
pending threat to human health and safety. In contrast, it may be more practical for
the Fresno SOI to be amended to permit annexation and service to this facility.
Those decisions will be addressed at the time that the HSR Authority announces the
location of the facility in 2016.
Recommendation: Should Fresno County be selected as the site for the heavy
maintenance facility, the City should apply to LAFCo for an SOI amendment and
annexation in order that services can be provided to the facility.
Due to plans for a greater emphasis on infill and higher density land uses, the
General Plan allows an overall increase in residential density and development
intensity as compared to the 2025 General Plan.
General Plan policies for SEDA have changed substantially since this SOI was
determined. Though the City has incorporated SEDA land uses into its General Plan
as a part of Growth Area 2, the timing for implementing this growth area may not
correspond to LAFCo’s SOI policy.
Recommendation: that the SEDA SOI be retained at this time to allow for
the opportunity to properly address the policy concerns identified in this
report. Fresno LAFCo may define a period within which the City must report
back and provide the status of its efforts at conducting specific planning or
identifying a timeline for when specific planning will occur.
Recommendation: that LAFCo develop policies specific to SEDA that ensure
the area is developed in an orderly fashion and consistent with the City’s
development priorities in other areas.
The City of Fresno has partnered with 13 of the other 15 federally-defined
Urbanized Areas in the San Joaquin Valley as part of the Smart Valley Places
network, to plan and implement smart growth, livability, and sustainability through
revised land use and transportation systems in the respective cities within all the
Urbanized Areas in the eight-county Valley region.
The City has made efforts to meet with the City of Clovis regarding planning for
growth in areas of mutual interest, and has made plans to continue this practice.
The City has adopted several policies in its General Plan to ensure coordinated
development of certain infrastructure common between the City of Fresno and the
City of Clovis.
Fresno LAFCo has adopted a policy encouraging annexation of unincorporated
islands within city limits and requiring cities in Fresno County to develop plans to
annex these areas. To date, the City of Fresno does not have a plan in place to annex
these islands.
Recommendation: that the City develop a General Plan implementation
program that conforms with the Fresno LAFCo annexation program. This
implementation program can address annexation of the unincorporated islands
within the city limit; annexation of the urban edge that is impacted by irregular
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boundaries, and conflicting County land and comprehensive service transition
planning for affected agencies.
Recommendation: It is recommended that the City develop a comprehensive
plan for annexation of its urban fringe where rural residential parcelization has
heretofore hampered orderly and efficient growth of the City.
Present and probable need for public facilities and
services
The type of public services and public facilities required in the proposed SOI
boundary is not anticipated to change, although the level of demand will increase as
a result of infill and greenfield development.
Recommendation: It is recommended the Friant-Copper SOI proposal be
included in City’s SOI if it is also supported by the City.
In previous SOI updates, the non-contiguous land where the Regional Wastewater
Reclamation Facility is located has not been discussed for inclusion in the City’s SOI,
although the territory is within the incorporated city limits as an island as permitted
by CKH. By excluding the wastewater facility lands from the SOI, it could appear
that LAFCo is signifying the eventual detachment of this land from the City;
however, this is not the case. The practice of not including a city’s non-contiguous
public facility within an SOI is common for LAFCos, given that growth of public
facilities is relatively slow when compared with the market influences of the city
itself, and occurs generally in response to the territory needed to expand the public
facility.
Recommendation: That Fresno LAFCo determine a SOI for the City’s Regional
Wastewater Reclamation Facility.
The development of the undeveloped areas of the City’s SOI will require a full range
of City services and community facilities, which could have an impact upon existing
City service levels and infrastructure.
Present capacity of public facilities and adequacy of public
services that the agency provides or is authorized to
provide
Present Capacity
Capacity of city departments has been constrained due to financial limitations which
have resulted in reorganization of several departments and a significant reduction
in staffing, resulting in limited capacity of all departments to maintain service levels.
Filling these managerial positions has had a positive effect on staff capacity.
Certain departments face more significant challenges to capacity than others. The
public safety departments have more readily identifiable capacity concerns,
compared to other departments, as defined by longer emergency response times.
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The City of Fresno Police Department had to implement significant organizational
changes to meet community needs with fewer resources, including priority
modification, staff reassignment, and restructuring of the operations. These
economic constraints, combined with other issues, such as parole reform and the
early release of prisoners, have required the Department to focus its resources on
the highest priority duties, resulting in longer response times.
The Fire Department has been unable to meet target response times, due to cuts in
the number of units available to respond. Additionally, due in part to the duplication
of services provide by American Ambulance, the Department has stopped
responding to serious medical emergency calls, and reduced availability for all
public education outreach.
The Parks, After School, Recreation and Community Services Department (PARCS)
has experienced deferred maintenance of infrastructure which is costly to maintain
and relies heavily on volunteers for maintenance work.
Service Adequacy
The City appears to provide adequate services based on the performance measures
assessed in this document. No significant deficiencies were identified that greatly
affect the overall level of services offered.
Typical of any public service provider, there is room for improvement in the level of
services offered by the City. Specifically, during the course of this review the
following highlighted recommended enhancements to service were identified to
address chronic/repetitive issues or public safety concerns:
Recommendation: that the City ensure that contract Fresno Convention &
Entertainment Center provider benchmarks are attained and subsidizing of
operations by general fund minimized to the greatest extent possible.
Recommendation: that the City plan as necessary to ensure sufficient capacity
at the Regional Wastewater Reclamation Facility appropriately address
population growth from development.
Recommendation: that the City continue to strive for lower response times by
public safety departments to meet goals and standards.
Recommendation: that the City continue to work to ensure an equal
distribution of park and recreation facilities throughout the City.
Existence of any social or economic communities of
interest
There exist social and economic conditions that cause interaction and
interdependence between the City of Fresno and the areas within the City’s SOI.
There are multiple unincorporated islands within the City of Fresno’s boundaries,
each of which is considered a community of interest. These land use patterns that
developed over several decades challenge service delivery efficiencies and also
create public confusion over jurisdictional boundaries and service responsibilities.
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The City abuts and overlaps several special districts, which also lie within the City’s
SOI. The operations of the City and plans for future growth impact the operations of
these agencies. There appears to be an opportunity for enhanced communication
between the City and other neighboring/overlapping special districts.
Recommendation: that the City’s annexation plan include outreach to these
special districts to ensure proper subregional planning of infrastructure and
coordinate the eventual transition of services as the City annexes the areas
served by the special districts.
Present and probable need for water, wastewater, and
structural fire protection facilities and services of any
disadvantaged unincorporated communities within the
existing sphere of influence
LAFCo staff has identified 20 DUCs within Fresno’s SOI and six DUCs within a one
mile distance outside the adopted SOI boundaries.
Locations identified as DUCs display characteristics of a DUC pursuant to Fresno
LAFCo’s Policy 106 and consistent with the CKH Act of 2000. Each identified DUC
area is designated with a number in Figure 7-3 and the corresponding community
description identifies: the location, number of properties within the DUC, its U.S.
Census Tract-Block Group number, and the MHI levels for the time period between
2006 and 2010.
At present time, a majority of these communities receive water, wastewater and fire
services through a combination of the City of Fresno and special district service
providers. No particular water, wastewater, or fire service infrastructure needs
were identified for these particular areas. The type of public services and public
facilities required in these areas is not anticipated to change, although the level of
demand will likely increase as a result of growth.
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WORKS CITED cÉÄ|vç VÉÇáâÄà|Çz TááÉv|tàxá? __V 234