Palmdale Water District Municipal Service Review (October 2012)

Acknowledgements Palmdale Water District Municipal Service Review Prepared for: Local Agency Formation Commission for the County of Los Angeles 80 South Lake Avenue, Suite 870 Pasadena, CA 91101 Prepared by: Hogle-Ireland, Inc. 2860 Michelle Drive, Suite 100 Irvine, CA 92606 Palmdale MSR August 2012 Page 1 Palmdale MSR Post Preparation Update of the MSR October 2012 At the time the Palmdale Water District MSR was prepared in July, 2012, the City of Palmdale and the Palmdale Water District were in litigation. This litigation has since been resolved. While the resolution of the litigation is positive, it in no way changes the outcome of the Report or the findings or recommendations presented in it. Page 2 Table of Contents Table of Contents 1. Executive Summary ................................................................................................................................ 6 1.1 Palmdale Water District MSR Summary ....................................................................................................... 7 2. Agency Profile ........................................................................................................................................ 12 2.1 History ................................................................................................................................................................... 13 2.2 Palmdale Water District - Today ................................................................................................................... 15 3. Key Findings and Research ................................................................................................................ 21 3.1 Affected Agency and Stakeholder Groups ................................................................................................... 21 4. Growth and Population Projections ................................................................................................ 25 4.1 Regional Summary ............................................................................................................................................. 25 4.2 Local Summary ................................................................................................................................................... 26 5. Infrastructure Needs and Deficiencies ............................................................................................ 28 5.1 Water Sources .................................................................................................................................................... 28 5.2 Water Supply and Demand ............................................................................................................................. 29 5.3 Existing and Proposed Supplies and Facilities .......................................................................................... 30 6. Financing Opportunities or Constraints ........................................................................................34 6.1 Revenues .............................................................................................................................................................. 34 6.2 Expenses ............................................................................................................................................................... 34 6.3 Financial Ability of Agency to Provide Services ........................................................................................ 34 7. Economies of Service ............................................................................................................................ 36 7.1 Cost Avoidance Opportunities .......................................................................................................................36 7.2 Surrounding Water Districts & Rates ..........................................................................................................36 7.3 Opportunities for Shared Facilities ............................................................................................................... 39 7.4 Evaluation of Management Efficiencies ....................................................................................................... 40 8. Government Structure Options ....................................................................................................... 42 8.1 Options ................................................................................................................................................................. 42 9. Local Accountability and Governance ........................................................................................... 44 10. Determinations and Findings ........................................................................................................... 46 10.1 Sphere of Influence (SOI) and District Recommendation ....................................................................... 53 Appendix A – Angeles National Forest Resolution ................................................................................ 55 Appendix B – SWP Contract ........................................................................................................................ 56 Appendix C – Agency Correspondence ..................................................................................................... 61 Palmdale MSR August 2012 Page 3 Page 4 Table of Contents Figures Figure 2-1: Vicinity Map .............................................................................................................................................................. 13 Figure 4-1: SCAG RTP Estimated Population Projections ................................................................................................ 27 Figure 5-1: Current and Planned Water Sources ................................................................................................................. 28 Figure 10-1: Census Tract Locations ......................................................................................................................................... 51 Tables Table 2-1: District Summary Chart ...............................................................................................................17 Table 2-1: District Summary Chart .............................................................................................................. 18 Table 3-1: Affected Agency and Stakeholder Groups ............................................................................. 22 Table 4-1: Cities of Palmdale and Lancaster Population Growth Projections ................................. 26 Table 4-2: District Population ...................................................................................................................... 26 Table 5-1: Service Area Water Supply and Demand ............................................................................... 30 Table 5-2: Service Area Water Supply and Demand .............................................................................. 33 Table 6-1: Palmdale Budget Summary .........................................................................................................34 Table 7-1: Palmdale Elevation Booster Surcharge .................................................................................... 38 Table 7-2: Water District Rate Comparison............................................................................................. 39 Table 9-1: Palmdale Water District Governance .................................................................................... 44 Table 10-1: District Population Projections ............................................................................................... 47 Table 10-2: Census Tract Annual Median Household Income ............................................................. 52 Palmdale MSR August 2012 Page 5 Palmdale MSR 1. Executive Summary A Municipal Service Review (MSR) is a comprehensive study to determine the adequacy of governmental services being provided by the local agencies under the Local Agency Formation Commission (LAFCO). The MSR is used by LAFCO, other governmental agencies, and the public to better understand and improve the provision of services and to identify opportunities for greater cooperation between service providers. The purpose of this MSR is to evaluate the Palmdale Water District (District) for Local Agency Formation Commission for the County of Los Angeles (LAFCO). An MSR allows the LAFCO to evaluate how agencies currently provide municipal services within the MSR study area and to evaluate the impacts on those services from future growth and other changes that may occur in the study area over the next 10 to 20 years. The MSR report is also required to identify potential opportunities to address any shortfalls, gaps, opportunities for increased efficiency and/or impacts on services and governmental structure that may currently exist or are anticipated in the future. MSRs are also required to be conducted prior to, or concurrent with, sphere of influence (SOI) updates. Beginning in 2001, Local Agency Formation Commissions (LAFCOs) were mandated to review and, as necessary, update the SOI of each city and special district. SOIs are boundaries, determined by LAFCO, which define the logical, ultimate service area for cities and special districts. No SOI can be updated, however, unless the LAFCO first conducts a MSR. The mandate to conduct MSRs is part of the Cortese-Knox-Hertzberg (CKH) Act of 2000. Per Section 56425 of the CKH Act, LAFCO must review and if necessary, update each SOI at least every five years. The MSR and SOI update are one of many LAFCO responsibilities, but is often considered the most important as it provides the mechanism to shape the orderly and logical development of the local government agencies. The MSR process consists of three primary processes: The Municipal Service Review Report reviews the agency/focus area of service delivery. Additionally, the agency’s infrastructure, governance functions, and capacity based on projected growth in the area are evaluated along with any identified issues, needs and/or deficiencies. The MSR process then requires responses to specific questions or “determinations” as described below: Executive Summary Page 6 Executive Summary Growth and population projections for the affected area. Present and planned capacity of public facilities and adequacy of public services, including infrastructure needs or deficiencies. Financial ability of agencies to provide services. Status of, and opportunities for, shared facilities. Accountability for community service needs, including governmental structure and operational efficiencies. Any other matter related to effective or efficient service delivery, as required by the LAFCO Commission. The location and characteristics of any disadvantaged unincorporated communities within or contiguous to the sphere of influence. The Stakeholder Input Process provides a forum for representatives from the stakeholder agencies, to provide information in preparation of the MSR and to identify issues gaps or opportunities for efficiencies not otherwise reflected in this report. A summary of the stakeholder input and comments are included in Section 3: Key Findings and Research. The Sphere of Influence Update is the third part of the MSR process. Based on the information in the MSR report, LAFCO Staff’s recommendation, and stakeholder input the LAFCO Commission will make a decision to retract, expand, or maintain the existing SOI boundaries. 1.1 Palmdale Water District MSR Summary This MSR evaluates the study area defined by the jurisdictional boundary of the District. The District is located within the Antelope Valley in Los Angeles County, approximately 60 miles north of the City of Los Angeles and 50 miles west of the City of Victorville. The entire District encompasses an area of approximately 140 square miles overlying more than thirty non-contiguous areas scattered throughout the southern Antelope Valley. In addition to the Primary Service Area, there is a federal land area of approximately 65 square miles upstream of Littlerock Dam in the Angeles National Forest. The District’s Sphere of Influence (SOI) is coterminous with the District’s service boundary. The District currently receives water from three sources including: groundwater, Littlerock Dam Reservoir, and imported water from the State Water Project (SWP). Groundwater is obtained from the Palmdale MSR August 2012 Page 7 Palmdale MSR Antelope Valley Groundwater Basin via 25 active wells scattered throughout the District. The District’s local surface water supply is from Littlerock Dam Reservoir. This water is transferred from the reservoir to Lake Palmdale for treatment and distribution. The District’s imported water is provided by the SWP and is conveyed to Lake Palmdale, which acts as a fore bay for the District’s 35 million gallon per day (mgd) water treatment plant. Lake Palmdale can store approximately 4,250 acre-feet (AF) of SWP and Littlerock Dam Reservoir water. The Antelope Valley Groundwater Basin is currently in an overdraft situation and is in the process of adjudication, which will limit and possibly decrease the allowable annual extraction of groundwater for the District and all other groundwater pumpers. The adjudication is still pending in Superior Court. Since the adjudication has not yet been completed, each groundwater pumper currently has an un-quantified right to pump water for beneficial use. At some future time, however, the court will determine all the water rights in the basin, and will order either the reduction of groundwater extractions to levels that will stabilize or reverse groundwater level declines, or the purchase of imported water to replace over extraction of groundwater, or both. Such adjudication proceedings can take from 10 to 15 years, or longer, to resolve. Given the ongoing water adjudication process and the analysis provided below, a recommendation has been made to maintain the District’s existing SOI and Service boundary. Please refer to Section 10.1: Sphere of Influence (SOI) and District Recommendation. Growth and population projections The District’s service area population is expected to more than double over the next 25 years, which is expected to more than double the District’s water demands. However, the District has developed a Strategic Water Resources Plan, which takes into consideration the projected future population, anticipated water demand, and anticipated future water supplies to ensure that the District is able to continue to provide a safe and reliable source of water. Present and planned capacity of public facilities including infrastructure needs or deficiencies The District is currently able to meet its water demands through a combination of groundwater, water obtained from the Littlerock Dam Reservoir, and imported water from the State Water Project. Executive Summary Page 8 Executive Summary The District currently does not have recycled water supplies, but is in the process of developing the use of non-potable water to offset potable water demand and to diversify its water supply options. Additionally, the District is developing new sources of supply via groundwater banking and anticipated new supplies from transfer and exchange opportunities, please refer to Section 5: Infrastructure Needs and Deficiencies. The ongoing Antelope Valley Groundwater Basin adjudication is expected to result in a reduction in the District’s ground water extractions or the purchase of imported water to replace groundwater level declines. Financial ability of agencies to provide services The District has the financial capacity to continue to provide services to its service area. Status of, and opportunities for, shared facilities The District currently has an emergency water interconnection with Antelope Valley East Kern (AVEK) and an agreement with Littlerock Creek Irrigation District (LCID) to provide water treatment to water that LCID receives from the SWP. The District was also a participant in the preparation of the “Antelope Valley Integrated Regional Water Management Plan” (AVIRWMP), which was a study that sought to identify how agencies in the Antelope Valley Groundwater Basin could achieve savings by using a basin- wide approach to water planning and facilities construction. Water supply is the only significant constraint to cost avoidance and financing opportunities. The supply issue is the paramount concern of the region, and this issue is greatly exacerbated by the fact that the groundwater basin is not adjudicated. Accountability of community service needs The District is governed by a five-member Board of Directors, each elected by voters within five separate voting divisions within the District. The governing board meets on the second and fourth Wednesday evenings of each month. The District’s board meetings are publicly notified through newspaper publications and the District’s Web site, and are open to the public. The District is proactive in ensuring that its operations and finances are made easily available to the public through its website (www.palmdalewater.org). The website is well designed making it easy to find information regarding the District’s board, Palmdale MSR August 2012 Page 9 Palmdale MSR water rates, upcoming events, water conservation measures and tips, development projects, planning reports, financial reports including past and present fiscal budgets and financial audits, and general contact information. Any other matter related to effective or efficient service delivery Based on the analysis provided in this report, the District appears to be well-regulated and an active and effective partner with other agencies in planning for the many challenges of this complex area. It is recommended that LAFCO take no action other than affirming the present SOI of the District, which is coterminous with the District’s service boundaries. The location and characteristics of any disadvantaged unincorporated communities within or contiguous to the sphere of influence Senate Bill 244, recently enacted on February 10, 2011, imposed state mandates on local governments, including cities, counties and LAFCOs. This bill requires LAFCO to make determinations regarding “disadvantaged unincorporated communities.” A “disadvantaged community” is defined as a community with an annual median household income that is less than 80 percent of the statewide annual median household income. “Severely disadvantaged community” means a community with a median household income less than 60 percent of the statewide average (Water Code Section 79505.5). The District’s Primary Service Area is generally located within 27 census tracts six of which are considered to be disadvantaged communities while five are considered to be severely disadvantaged communities. Please refer to Section 10: Determinations and Findings. Executive Summary Page 10 Executive Summary Palmdale MSR August 2012 Page 11 Palmdale MSR 2. Agency Profile The Palmdale Water District (District) is located within the Antelope Valley in Los Angeles County, approximately 60 miles north of the City of Los Angeles and 50 miles west of the City of Victorville. The City’s nearest neighbor, Lancaster, is approximately 10 miles to the north. The Antelope Valley Freeway (State Route 14) runs north-south and Pearblossom Highway (State Route 138) meanders in the east-west direction through the District. The entire District encompasses an area of approximately 140 square miles. The District’s “Primary Service Area” is located almost entirely within the jurisdictional boundaries of the City of Palmdale, and extends on its southern and eastern boundaries into the unincorporated areas of Los Angeles County that are within the City of Palmdale’s SOI. The District’s Primary Service Area encompasses approximately 47 square miles of mainly developed areas. In addition to the Primary Service Area, the District’s boundaries includes thirty non-contiguous areas scattered throughout the Southern Antelope Valley and a federal land area of approximately 65 square miles upstream of Littlerock Dam in the Angeles National Forest. Figure 2-1: Vicinity Map depicts the District’s service boundaries. The District’s service area customers include municipal, residential, irrigation, commercial, industrial, and institutional users. The District has meters on all residential, commercial, and landscape service connections and requires meters on all new connections. The District does not provide water service to any agricultural accounts. In 2010 the District served a population of approximately 109,395 persons through 26,041 service connections. The District’s SOI is coterminous with the District’s service boundaries. Agency Profile Page 12 Agency Profile Figure 2-1: Vicinity Map 2.1 History The Palmdale Irrigation District (renamed as the Palmdale Water District in 1973) was formed in 1918, in an effort to raise public funds for water infrastructure improvements. Following the provisions of Division 11 in the Water Code of the State of California, Palmdale Irrigation District was formed to irrigate over 4,500 acres of agricultural lands within its boundaries. Under this provision, the irrigation district can acquire, control, conserve, store, and distribute water for beneficial use within the district. One significant infrastructure improvement was the construction of Littlerock Dam and Reservoir. This improvement was completed in 1924 and held a water storage capacity of 4,200-acre feet. However over the years the design of the dam fell into controversy and was declared unsafe in 1932. In 1940 the reservoir could not maintain its water capacity due to a buildup of sediment. Standby water wells were developed to help provide additional water supplies. Palmdale MSR August 2012 Page 13 Palmdale MSR In the 1950’s the local aerospace industry emerged at “Air Force Plant 42”, and the shift from supplying agricultural water to supplying domestic water began. In 1962, it was recognized that some District owned and operated facilities are located on federally owned lands and that the water shed and drainage area that supplies said facilities is also located on federally owned land, both of which are in the Angeles National Forest. Under Section 26907 of the Water Code of the State of California, these publically held lands were included in the boundaries of the District to meet the interests of both the District and the public. On September 24, 1962 a resolution was adopted to include an approximately 65 square mile area of public land in the Angeles National Forest in the District’s boundaries. Please refer to Appendix A to view a copy of the resolution. To continue to meet the water demands of the District, the Irrigation District entered into an agreement with the State on February 2, 1963 to acquire water from the State Water Project (SWP), becoming a State Water Contractor. The capacity of Palmdale Lake was increased to handle the additional volume of water from the State Water Project and a water treatment facility was constructed. At the time, the Irrigation District’s boundaries were expanded to encompass about 34,000 acres. The 1963 contract with SWP included provisions to tie the contract to the District’s service boundaries. These provisions include Article 15 and Special Provision 45 (please refer to Appendix B). In particular, these provisions state: “While this contract is in effect no change shall be made in the Agency either by inclusion or exclusion of lands, by partial or total consolidation or merger with another district, by proceedings to dissolve, or otherwise, except with the prior written consent of the State or except by act of the Legislature.” In July 1963, approximately 88 private property owners filed landowner petitions to be annexed into the Palmdale Irrigation District (now the Palmdale Water District). The inclusion of these properties added the non-contiguous or “checkerboard” areas that are scattered throughout the Southern Antelope Valley. By 1966, the District was providing only municipal and industrial water. The name of the Irrigation District was changed to “Palmdale Water District” (PWD) in 1973 to reflect this new direction. From 1965 through 1985, the controversy over the seismic safety of Littlerock Dam continued, and water demands increased significantly. A 12 million-gallon per day water Agency Profile Page 14 Agency Profile treatment plant was constructed in 1987, and by 1993 had to be expanded to process 28 million gallons of water per day. In 1995 rehabilitation was completed to Littlerock Dam to provide seismic safety, increase water storage capacity, and renovate the recreation area. The rehabilitation efforts included raising the spillway height 12 feet to double the capacity of the Reservoir. The United States Forest Service maintains the recreation area at Littlerock Dam & Reservoir, and the District controls the level of the Reservoir and the operation of the Dam itself. 2.2 Palmdale Water District - Today Today, the District serves an area of approximately 140 square miles of land in northeastern Los Angeles County, consisting of more than 30 non-contiguous areas scattered throughout the Antelope Valley with the District’s Primary Service Area within the City of Palmdale. The District has, over 403 miles of pipeline, 24 active water wells, 14 pumping stations, and 22 water tanks with a combined total capacity of 52.6 million gallons of water. It is important to recognize that while the thirty non-contiguous areas scattered throughout the Southern Antelope Valley are within District’s boundaries, the District currently has no water infrastructure nor does it provide any water services to the area. These non-contiguous areas along with all properties within the district pay an assessment, based on property value, on their property taxes. This money goes to the District to pay for fixed assets related to the delivery of water from the SWP to the District. These properties have a proportionate share of entitlement to the District’s “Table A” allocation under the District’s SWP contract with the Sate Department of Water Resources. This contract between the District and the State Department of Water Resources extends to the year 2035, at which point the bonds used to fund the fixed assets related to the delivery of water from the SWP will be paid off. The benefit these non-contiguous property-owners receive is that they could be provided with water services in the future. They are entitled to the District’s water, which could be delivered in the following ways: Water from the District could be delivered to these non- contiguous property owners via another wholesaler in the area including but not limited to Antelope Valley East Kern (AVEK) or Littlerock Creek Irrigation District. If there were enough interested property owners to make it economically feasible, the District could build a turn-out to the Palmdale MSR August 2012 Page 15 Palmdale MSR nearby aqueduct, treat the water at a new treatment plant, and deliver it to the non-contiguous property owners. In 2009, the District expanded its water treatment plant to allow up to 35 million gallons of water per day (mgd) to be processed using state of the art disinfection methods. In addition, a plan to remove sediment from Littlerock Dam & Reservoir to increase its storage capacity is under way in conjunction with replacing water mains from the 1950’s through available grant funding. The District’s service area population is expected to more than double over the next 25 years, which is expected to more than double the District’s water demands. In order to meet the anticipated future water demands the District has prepared a Strategic Water Resources Plan, which takes into consideration the use of imported water from the State Water Project (SWP), groundwater, local runoff, recycled water, conservation, and water banking and considers and evaluates these options with respect to cost, reliability, flexibility, implementation, and sustainability. Agency Profile Page 16 Agency Profile Palmdale MSR August 2012 Page 17 Palmdale MSR Table 2-1: District Summary Chart Agency Information Service Area Information Address: 2029 East Avenue Q Service Area: 140 sq. miles Palmdale, CA 93550 2010 Population: 109,395 Contact: Dennis D. LaMoreaux Projected Population: Phone: (661) 947-4111 x 1017 2015 164,312 Website: www.palmdalewater.org 2020 195,404 2025 225,208 2030 253,791 2035 280,206 Financial Information (FY 2012) Revenues $22,053,600.00 Expenses: $22,053,600 (including interest income): Reserves at year $6,442,636.00 Capital Improvement & $102,600,00 end: Infrastructure Spending Budget System Information Number of Employees: 86 full time, 2 part time, and 1 contract emp Number of Connections: 26,041 Number of Connections per Employee: 292 Number of Groundwater Wells: 25 active wells Miles of Pipe: 400 Storage Capacity: 50 million gallons (mg) Typical Monthly Residential Water Bill (1” connection, 20 hcf, no elevation bo Surcharge, Tier 1 fees) Fixed Distribution $47.44 Water $17.40 Monthly and Customer Charge: Bill: Charge: Service Area Water Supply and Demand Water Supply Sources (AFY) 2010 2015 2020 2025 20 Groundwater 8,000 12,000 12,000 12,000 12 State Water Project (SWP) 9,800 12,800 12,800 12,800 12 Littlerock Dam Reservoir 2,000 4,000 4,000 4,000 4 Recycled Water 0 1,000 3,000 6,000 9 Groundwater Banking 0 2,600 4,100 5,100 8 Anticipated New Sources 0 2,600 4,100 5,100 8 Total Supply 19,800 35,000 40,000 45,000 55, Demand Projection 19,800 35,000 40,000 45,000 55 Total Demand 19,800 35,000 40,000 45,000 55, Table Notes: 1) All numbers are rounded to the nearest 100 AF 2) Assumes groundwater is available a the existing pumping rate 3) Projected groundwater pumping will consist of native groundwater, imported replenishm banked supplies 4) Projected SWP water delivery at 60 percent of Table A amount available 5) Palmdale Water District Urban Water Management Plan – June 2011 Agency Profile Page 18 Agency Profile Palmdale MSR August 2012 Page 19 Palmdale MSR Agency Profile Page 20 Key Findings and Research 3. Key Findings and Research The purpose and intent of municipal service review is to gather data and information to document an agencies capacity to provide efficient and cost-effective water services to property owners, residents, and businesses within the District’s service boundaries. To meet this requirement, Los Angeles County LAFCO and the Hogle-Ireland and Mocalis Group team prepared this service review based on sound, defensible data and information, with a focus on ensuring the future provision of safe and efficient water services, and through an open and inclusive process with input from the affected and surrounding agencies. In order to create a comprehensive, future-focused service review, the project team met with representatives from the District, City of Palmdale, and the Los Angeles County Waterworks District No. 40. The purpose of these discussions was to encourage the affected agency and stakeholder groups to: Identify new strategic approaches and joint opportunities for regional collaboration. Discuss service, infrastructure and governance efficiencies, deficiencies and/or opportunities for improvement. Introduce other pertinent information that may have been overlooked in the preparation and approval of this municipal service review report. 3.1 Affected Agency and Stakeholder Groups During May and June of 2012, the project team met with the following stakeholders: Palmdale MSR August 2012 Page 21 Palmdale MSR Table 3-1: Affected Agency and Stakeholder Groups Agency Representative Title Meeting Date Dennis D. LaMoreaux General Manager Palmdale Water District Matthew Knudson Engineering 5/24/2012 Manager David Childs City Manager City of Palmdale Michael J. Mischel City Engineer 5/17/2012 James Ledford Mayor Los Angeles County Adam Ariki Assistant Division 6/5/2012 Waterworks District No. Chief 40 During each of the meetings the affected agency and related stakeholders were presented a letter (please see Appendix C) to introduce the MSR process and have a frank discussion regarding the provision of existing and future water services. After each of the meetings, representatives were provided with a questionnaire to solicit additional information regarding growth and population projections, present and planned capacity of public facilities, opportunities for shared facilities, and any additional information that was not discussed during the in-person meetings. Copies of the completed questionnaires are included in Appendix C. The stakeholder agencies were able to provide valuable information about their past and present interactions with the District, interconnections between the stakeholder agencies and the District, existing and future population projections, and the operability of the District in relationship to their own water service provisions. Key findings from each of the stakeholder interviews include: Palmdale Water District (District) The District is one of three principal agencies that provide water services to the City of Palmdale along with Antelope Valley East Kern and Los Angeles County Waterworks District No. 40. Approximately 60% of the District’s service connections are located within the incorporated area of the City of Palmdale. Groundwater is obtained from the Antelope Valley Groundwater Basin via 25 active wells scattered throughout the District. Key Findings and Research Page 22 Key Findings and Research The Antelope Valley Groundwater Basin is currently not adjudicated. In 2004, the Los Angeles County Waterworks District No. 40 filed a civil complaint for the adjudication of all the groundwater rights in the Antelope Valley Groundwater Basin. The District later joined in the adjudication along with Rosamond Community Services District, Quartz Hill Water District, the City of Palmdale, and the City of Lancaster. The Antelope Valley Groundwater Basin has a safe yield of 110,000 AF. The District has been approached by the developer of the proposed Quail Valley project, which is located at the southwest area of the District’s service area. The development is partially inside the District service area and partially outside of the District’s service area. The developer has preliminarily requested service for the entire project the District. The District and the developer are still working through the feasibility of this proposal. The District is a member agency of the Antelope Valley State Water Contractors Association that continues to plan for joint conjunctive use projects in the Antelope Valley. The District has adopted a Strategic Water Resources Plan (SWRP) that identifies a recommended strategy that would increase potential water supplies in the District’s service area from 30,000 AFY to 65,000 AFY to meet projected demand in 2035. The District is scheduled to prepare an updated rate study prior to the end of 2014. City of Palmdale The City of Palmdale is not a water purveyor. The City of Palmdale relies on the Palmdale Water District, Los Angeles County Waterworks District No. 40, and Antelope Valley East Kern to provide water services to its jurisdictional boundaries. The City of Palmdale has had conflicts with the District over water rate increases and the development of recycled water opportunities. The City of Palmdale and the District are currently involved in litigation regarding each of the aforementioned conflicts. Palmdale MSR August 2012 Page 23 Palmdale MSR Both parties are confident that the litigation will be settled by the end of 2012. Key Findings and Research Page 24 Growth and Population Projections 4. Growth and Population Projections As previously discussed, the District’s Primary Service Area is located almost entirely within the jurisdictional boundaries of the City of Palmdale, and extends on its southern and eastern boundaries into the unincorporated area of Los Angeles County that are within the City of Palmdale’s SOI. The District is bordered to the south and west by the San Gabriel Mountain Range, to the north by the City of Lancaster, and to the east by the unincorporated community of Little Rock. The County of San Bernardino is located immediately to the east. The District’s Primary Service Area encompasses approximately 47 square miles of mainly developed area in the City of Palmdale and its surrounding SOI. 4.1 Regional Summary In accordance with the 2012 Southern California Association of Governments (SCAG) Regional Transportation Plan (RTP), the unincorporated area of Los Angeles County had a 2008 population of 1,052,800 persons and a projected 2035 population of 1,399,500 persons. This population increase of 346,700 represents a growth rate of approximately 32% percent from 2008 to 2035. It is important to recognize that the unincorporated area of Los Angeles County encompasses an approximately 2,600 square mile area. The unincorporated area of Los Angeles County is unofficially grouped into 137 non-contiguous areas, some of the unincorporated areas are as small as a few blocks, some are urban centers with more than 150,000 residents and some, with sparse populations, cover hundreds of square miles in the high desert. Given the vast size and varying demographics of the unincorporated area of Los Angeles County, a more realistic estimate of the future population projections of the District can be derived by evaluating the population projections of the Cities of Palmdale and Lancaster. Based on the SCAG RTP population, household, and employment projections the cities surrounding the District are projected to experience moderate to little growth over the next 23 years. Table 4-1: City of Palmdale and Lancaster Population Growth Projections provides a breakdown of the anticipated population, households, and employment projections for each of these two cities. Palmdale MSR August 2012 Page 25 Palmdale MSR Table 4-1: Cities of Palmdale and Lancaster Population Growth Projections SCAG 2008 SCAG 2020 SCAG 2035 Overall Regional RTP RTP Increase Transportation Projection Projection Plan (RTP) City of Palmdale Population 149,200 179,300 206,100 56,900 Households 41,900 51,300 58,800 16,900 Employment 32,700 38,900 47,200 14,500 City of Lancaster Population 154,500 174,800 201,300 46,800 Households 46,300 52,200 58,800 12,500 Employment 49,700 51,900 54,200 4,500 Table Notes: 1) Southern California Association of Governments (SCAG) 212 Regional Transportation Plan (RTP) Growth Forecast 4.2 Local Summary As previously discussed, the District’s Primary Service Area does not coincide with the boundaries of the City of Palmdale, therefore population projections prepared on an individual City basis cannot be directly used to estimate the population serviced by the District. The District’s projected population is based on the District’s Strategic Water Resources Plan (SSWRP), which uses SCAG data to estimate the projected population through 2035. It is projected that the District’s service area population is expected to more than double over the next 25 years, which is expected to more than double the District’s water Demands. Table 4-2: District Population provides a summary of the District’s anticipated population growth through 2035. Table 4-2: District Population 2010 2015 2020 2025 2030 2035 Palmdale Water 109,395 164,312 195,404 225,208 253,791 280,206 District Table Notes: 1) Strategic Water Resources Plan, Palmdale Water District, 2009 Growth and Population Projections Page 26 Growth and Population Projections Comparing the project population growth rates of the District to the Cities of Palmdale and Lancaster, it is anticipated that the District will experience a population increase of approximately 256%, the City of Palmdale will experience a population increase of approximately 138%, and the City of Lancaster will experience a population increase of approximately 131%. Figure 4-1: SCAG RTP Estimated Population Projections provides a comparison of the District’s anticipated growth rates compared to the Cities of Palmdale and Lancaster. Figure 4-1: SCAG RTP Estimated Population Projections Palmdale MSR August 2012 Page 27 Palmdale MSR 5. Infrastructure Needs and Deficiencies 5.1 Water Sources The District currently receives water from three sources including: Groundwater, Littlerock Dam Reservoir, and Imported water from the SWP. The District currently does not have recycled water supplies, but is in the process of developing the use of non-potable water to offset potable water demand and to diversify its water supply options. Additionally, the District is developing new sources of supply via groundwater banking and anticipated new supplies from transfer and exchange opportunities. The District’s current and planned sources of water are summarized in Figure 5-1: Current and Planned Water Sources below and further described in Section 5.3: Existing Supplies and Facilities. 2010 2035 10% 7% 20% 32% Figure 5-1: 50% Current and Planned Water 40% Sources 21% 20% Littlerock Dam Reservoir Littlerock Dam Reservoir Groundwater Groundwater Imported Imported Alternative New Sources of Supply-Recycled Alternative New Sources of Infrastructure Needs and Deficiencies Supply-Other Page 28 Infrastructure Needs and Deficiencies 5.2 Water Supply and Demand As previously discussed, the District relies on a combination of groundwater, the Littlerock Dam Reservoir, and imported water from the SWP. Groundwater is obtained from the Antelope Valley Groundwater Basin via 25 active wells scattered throughout the District’s service area. The District’s local surface water supply is from Littlerock Dam reservoir. This water is transferred from the reservoir to Lake Palmdale for treatment and distribution. The District’s imported water is provided by the SWP and is conveyed to Lake Palmdale which acts as a fore bay for the District’s 35 million gallon per day (mgd) water treatment plant. Lake Palmdale can store approximately 4,250 AF of SWP and Littlerock Dam Reservoir water. Furthermore, due to the ongoing Antelope Valley Groundwater basin adjudication, the amount of water the District will be able to pump from the basin is currently unknown. However, it is anticipated that the court will determine all the water rights in the basin and will order either the reduction of groundwater extractions to levels that will stabilize or reverse groundwater level declines, or the purchase of imported water to replace over extraction of groundwater, or both. The District primarily delivers potable water to municipal, residential, irrigation, commercial, industrial, and institutional groups within its service area. In 2010 the District had 26,041 services connections, which generated a water demand of 19,800 AF. In 2035 it is anticipated that the district will have 79,007 service connections and an annual water demand of 60,000 AF. A summary of the District’s existing and future water supply and demand is provided in Table 5-1: Service Area Supply and Demand below. Palmdale MSR August 2012 Page 29 Palmdale MSR Table 5-1: Service Area Water Supply and Demand Service Area Water Supply and Demand Water Supply Sources (AFY) 2010 2015 2020 2025 20 Groundwater 8,000 12,000 12,000 12,000 12 State Water Project (SWP) 9,800 12,800 12,800 12,800 12 Littlerock Dam Reservoir 2,000 4,000 4,000 4,000 4 Recycled Water 0 1,000 3,000 6,000 9 Groundwater Banking 0 2,600 4,100 5,100 8 Anticipated New Sources 0 2,600 4,100 5,100 8 Total Supply 19,800 35,000 40,000 45,000 55, Demand Projection 19,800 35,000 40,000 45,000 55 Total Demand 19,800 35,000 40,000 45,000 55, Table Notes: 1) All numbers are rounded to the nearest 100 AF 2) Assumes groundwater is available a the existing pumping rate 3) Projected groundwater pumping will consist of native groundwater, imported replenishm banked supplies 4) Projected SWP water delivery at 60 percent of Table A amount available 5) Palmdale Water District Urban Water Management Plan – June 2011 5.3 Existing and Proposed Supplies and Facilities Existing Water Sources Groundwater Groundwater pumping currently makes up a significant portion of the District’s water supply portfolio, accounting for 40% of water supplies during a normal year. The District’s groundwater supply is the Antelope Valley Groundwater Basin where there are 25 active wells currently drawing from the aquifer. This water is treated with chlorine disinfection and pumped directly into the District’s potable distribution system. Since 1995, the District has produced on average 10,310 AF of groundwater per year. The availability of groundwater supply for the District does not vary throughout the course of a year, however due to the ongoing adjudication proceedings, the availability of groundwater may vary depending on the court’s determination. Historically the District’s groundwater supplies accounted for 33 to 41 percent of their overall water supplies between 2006 and 2010. Pumping in the Antelope Valley Groundwater Basin is expected to increase and remain at a constant 12,000 AF, based on pumping capacity and as shown in Table 5-1: Service Area Water Supply and Demand above. Given the District’s efforts to diversify its water supply portfolio in the next several years, groundwater levels are expected to be managed. Project Infrastructure Needs and Deficiencies Page 30 Infrastructure Needs and Deficiencies groundwater supplies will consist of a combination of native groundwater, imported replenishment, and other banked supplies. Local Surface Water Build in 1922 Littlerock Dam Reservoir provides the District’s local surface water supply source. This reservoir is located in the hills southwest of the District. Recent renovations to Littlerock Dam reservoir have increased its storage capacity to 3,500 AF, or 1.1 billion gallons of water. Littlerock dam reservoir is fed by natural run-off from snow packs in the local San Gabriel Mountains and from rainfall. The principal tributary streams to the District service area are Littlerock and Big Rock Creeks, which flow north from the San Gabriel Mountains along the southern District boundary. Numerous intermittent streams also flow into the service area, however run-off is meager. The Littlerock Dam Reservoir intercepts flows from the Littlerock and Santiago Canyons. Runoff from the 65 square mile watershed in the Angeles National Forest to the reservoir is seasonal and varies widely from year to year. The water is transferred from Littlerock Dam Reservoir to Palmdale Lake. Although Littlerock Creek flows mainly during winter and springs months, this influx is buffered somewhat by Littlerock Dam Reservoir, allowing this water to be available throughout the year. Imported Water Imported water form the SWP is the District’s current primary source of water supply, providing approximately 50% of the District’s water. The District is one of 29 contracting agencies entitled to receive water from SWP. The District has been able to take delivery of SWP water since 1985 from the East branch of the California Aqueduct, which passes through the District’s service area. The District receives its entitlement from a connection on the East Branch, where SWP water is conveyed to Lake Palmdale via a 30-inch diameter pipeline. Lake Palmdale acts as a fore bay for the District’s 35 mgd water treatment plant and stores approximately 4,250 AF of SWP water and Littlerock Dam reservoir water. The District is contractually entitled to receive 21,300 AF per year of SWP water. Availability of SWP water varies from year to year and depends on precipitation, regulatory restrictions, legislative restrictions, and operational conditions. It is important to Palmdale MSR August 2012 Page 31 Palmdale MSR recognize that water from the SWP have become more unreliable since the early 1990s as a result of significant droughts, water right issues, and environmental restrictions. The SWP supply must pass through California’s Sacramento-San Joaquin Delta (Delta), which is the largest estuary in the state and the source of many conflicts between urban, agriculture, and environmental interests. Due to endangered species act requirements, Delta water exports were significantly curtailed in recent years. The issues in the Delta are expected to continue unless a comprehensive solution is implemented restoring the Delta’s ecosystem and providing additional conveyance and storage to reduce impacts of water exports on fisheries and habitats. Over the last decade, the District has received between 41% and 77% percent of its 21,300 AF contractual amount. Future Water Sources Recycled Water The District currently does not have a recycled water program. However, due to current and anticipated growth, as well as increasing uncertainty of the District’s ability to meet local water demands with imported water and groundwater, the District is taking proactive steps towards expanding the use of non-potable water to meet a variety of non-potable and indirect potable uses. The District has been actively working with Los Angeles County Waterworks, City of Palmdale, City of Lancaster, and Los Angeles County Sanitation Districts to develop a regional recycled water system. The District’s municipal recycled and non-potable water opportunities represent the primary non-potable reuse potential for the District, which includes municipal/industrial, agricultural uses, and groundwater recharge. Though there currently aren’t any identified industrial uses for recycled water within the District, new developments in the future could use non-potable water. Groundwater Banking The District currently does not operate a systematic banking program but is actively pursuing this future water supply source. Groundwater banking will be an important strategy for the District to maintain and improve water supply reliability. The water to be banked will come from above-average year supplies or be purchased from other sources. The District is currently exploring banking opportunities within and outside the Antelope Valley. Transfer and Exchange Opportunities Infrastructure Needs and Deficiencies Page 32 Infrastructure Needs and Deficiencies The projected water demands for the District will exceed the existing available water supply in the foreseeable future. As such the District has evaluated various transfer and exchange opportunities that will aid in meeting projected water demands. Table 5-2 Projected Water Supply of Future Projects provides a summary of the District’s future water supplies. Table 5-2: Service Area Water Supply and Demand Potential Project 2015 2020 2025 2030 2035 Constraints Availability of supplies, water quality, and 1,000 3,000 6,000 9,000 12,000 regulatory requirements Regulatory requirements, outcome of adjudication, 2,600 4,100 5,100 8,600 9,600 and suitability of local geology Availability and price 2,600 4,100 5,100 8,600 9,600 6,200 11,200 16,200 26,200 31,200 Water District Urban Water Management Plan – June 2011 Palmdale MSR August 2012 Page 33 Palmdale MSR 6. Financing Opportunities or Constraints 6.1 Revenues The District’s operating revenue is generated through monthly water service charges, water sales, and related services. For the Budget year ending December 31, 2011, the District had total operating revenues of $21,660,444. 6.2 Expenses For the Budget year ending December 31, 2011, the District had total operating expenses of $20,480,879. Table 6-1: Palmdale Budget Summary Revenue Actual 2010 Budget 2011 Budget 2012 Total Revenue $21,640,582 $21,660,444 $22,053,600 Expenses Total Expenses $23,092,131 $20,480,879 $22,053,600 Table Notes: 1) Palmdale Water District – 2010, 2011, and 2012 Annual Budget 6.3 Financial Ability of Agency to Provide Services Based on the analysis provided above, the District has the financial capacity to continue to provide services on the same level as it has in the past and has the financial capacity to support anticipated future growth. Financing Opportunities or Constraints Page 34 Financing Opportunities or Constraints Palmdale MSR August 2012 Page 35 Palmdale MSR 7. Economies of Service Due to the multiplicity of agencies and jurisdictions in the Antelope Valley Groundwater Basin, and the very complex relationships of service facilities, no achievable economies of service were identified. 7.1 Cost Avoidance Opportunities Water supply is the only significant constraint to cost avoidance and financing opportunities. The supply issue is the paramount concern of the region, and this issue is greatly exacerbated by the fact that the groundwater basin is not adjudicated. The agencies in the Antelope Valley collaborated in the preparation of an area-wide study titled, “Antelope Valley Integrated Regional Water Management Plan” (AVIRWMP), which was prepared in 2007. The participating agencies included Antelope Valley-East Kern Water Agency; Antelope Valley State Water Contractors Association; City of Lancaster; City of Palmdale; Littlerock Creek Irrigation District; Los Angeles County Sanitation Districts No. 14 and 20; Los Angeles County Waterworks District No. 40; Palmdale Water District; Quartz Hill Water District; and Rosamond Community Services District. One of the basic purposes of the AVIRWMP study was to identify how agencies in the Antelope Valley Groundwater Basin could achieve savings by using a basin-wide approach to water planning and facilities construction. Effective collaboration between agencies has been frustrated by the fact that the basin is not adjudicated. A civil complaint was filed in 2004 by County of Los Angeles Waterworks District No. 40, later joined by Palmdale Water District, for the adjudication of all groundwater rights in the Antelope Valley Groundwater Basin. Litigation of this nature can take from 10 to 15 years, or longer, to resolve. A second litigation, involving the City of Palmdale and Palmdale Water District regarding Water Budget Rate Structure, is reportedly nearing resolution. Neither agency would share any details of what the resolution involves, citing issues of confidentiality. 7.2 Surrounding Water Districts & Rates Economies of Service Page 36 Economies of Service It is important to recognize that the District is both adjacent to and within close proximity to several competing water districts. These districts include Antelope Valley East Kern (AVEK) Los Angeles County Waterworks District No. 40 (LACWD No. 40), and the Littlerock Creek Irrigation district (LCID). Each of these water districts are briefly described below. Antelope Valley East Kern (AVEK) AVEK encompasses 2,300 square miles in the Mojave Desert of California, northeast of Los Angeles, and includes over twenty municipal users as well as Edwards Air Force Base, Palmdale Air Force, and U.S. Borax. AVEK is a wholesale water supplier that has the third largest water entitlement of the 29 SWP water agencies in California. Only the Metropolitan Water District and the Kern County Water Agency have larger entitlements. In addition to its service area, AVEK does provide water service to areas that are within the District’s boundaries that cannot currently be served directly by the District. The water service is provided under agreements with the District that allow for the exchanges of State Water project water. The water services are provided by AVEK due to the lack of infrastructure for the District to service the area directly. The District also provides similar water services to areas that are within AVEK’s boundaries that cannot currently be served directly by AVEK. An interconnection also exists between AVEK and the District for reciprocal emergency water supplies. AVEK does not directly provide water to residential consumers and therefore has not been included in the rate comparison show in Table 6-2 Water District Rate Comparison. Los Angeles County Waterworks District No. 40 (LACWD No. 40) The LACWD is a division of the Los Angeles County Department of Public Works that supplies water to approximately 200,000 people. LACWD is divided into five districts with LACWD No. 40 as the largest. LACWD No. 40 was established on November 4, 1993 and includes approximately 55,627 service connections and a population of approximately 173,494 persons. LACWD No. 40 – Region 34 is responsible for providing water services to a portion of the Cities of Palmdale and Lancaster as well as several unincorporated areas of Los Angeles County. LACWD No. 40 charges a fixed monthly charge of $43.95 for a 1” service connection, which includes the meter charge as well as a Palmdale MSR August 2012 Page 37 Palmdale MSR monthly allowance of 10 hundred cubic feet (hcf) of water. The quantity charge for each HCF of water used in a month in excess of the monthly allowance is $1.962. Littlerock Creek Irrigation District (LCID) The Littlerock Creek Irrigation District was formed in March 1892 and provides water services to an approximately 11,200 acre area. The LCID’s service area includes portions along the southeast corner of the City of Palmdale as well as the unincorporated area of Los Angeles County. From its formation until around 1980, LCID was largely a farming community. With the decline in agriculture and the increase in residential housing starting in the early 1980’s, the district saw a change in the type of water it needed to supply going from raw untreated surface water for agriculture to needing more potable clean healthy drinking water. The District now has a total of four deep water wells for residential use and five one-million gallon storage tanks. The LCID has an agreement with the District to take their SWP and Littlerock Dam water, process it through the District’s treatment plant and return it as potable drinking water. The LCID charges a fixed distribution and customer charge of $46.83 for a 1” service connection and $0.78 for each HCF of water used. Palmdale Water District (District) The Palmdale Water District calculates the water allocation differently for residential accounts then it does for commercial accounts. Residential users are charged $47.44 per month for a 1” service connection. Water usage charges are determined using an indoor 60 gallons per capita per day and outdoor allocations. The outdoor allocation is based on landscaped area, actual ET0 readings, and other related factors. The District also adds a $0.20 per HCF to fund water quality activities. In November of 2000, the District established a surcharge to pass on the increased costs of delivering water to customers in higher elevation zones. This District is divided into four elevation service zones. The northern most area is defined as the “Base Area”, while moving south the Zone structure includes “Area 1”, “Area 2”, and “Area 3”. The District’s elevation booster surcharge is based on each HCF of water consumed and is described in Table 7-1: Palmdale Elevation Booster Surcharge below: Table 7-1: Palmdale Elevation Booster Surcharge Economies of Service Page 38 Economies of Service Elevation Booster Area Surcharge ($/HCF) Base Area $0.00 Area 1 $0.16 Area 2 $0.35 Area 3 $0.70 Table Notes: 1) Palmdale Water District – 2010, 2011, and 2012 Annual Budget Table 7-2: Water District Rate Comparison provides a summary of the charges anticipated from the District, LACWD No. 40, and LCID assuming that 20 HCF of water is used at a single- family residence with a 1” connection. It is further assumed that for the District, there are no elevation booster surcharges and that the 20 HCF used falls under the Tier 1 rate fee. Table 7-2: Water District Rate Comparison LACWD 40 (Region 34) Rate Tier Rate as of 2012 Tier 1 (10 HCF + Monthly Service Charge) 10 @ $40.64 Tier 2 ( $1.304 * +11 HCF) 10 @ $1.962 = $19.62 Total $60.26 LCID Rate Tier Rate as of January 2012 Tier 1 20 @ $0.78 = $15.60 Fixed Distribution and $46.83 Customer Charge Total $62.43 Palmdale Water District Rate Tier Rate as of 2012c Tier 1 20 @ $0.67 = $13.40 Fixed Distribution and $47.44 Customer Charge Water Quality ($0.20 per HCF) $0.20 @ 20 = $4.00 Total $64.84 7.3 Opportunities for Shared Facilities Palmdale MSR August 2012 Page 39 Palmdale MSR The AVIRWMP study referenced above is far too lengthy to be attached hereto. 7.4 Evaluation of Management Efficiencies The District, which became a public agency in 1918, has approximately 27,000 connections serving a population of 115,000 in an area of 187 square miles within over thirty non-contiguous areas. It is one of the 3 main agencies providing water to the City of Palmdale, where it serves a population of approximately 69,000 through 16,200 connections in the southwest portion of the City. The District provides water in the High Desert region to areas that are not capable of being served by the Antelope Valley-East Kern Water Agency and Los Angeles County Waterworks District No. 40 (LACWWDN40). The District is a State Water Project contractor that provides both wholesale and retail water and is also a processor of water to Littlerock Creek Irrigation District and AVEK. An evaluation of the District’s management efficiencies fails to reveal any gross deficiencies. To the contrary, the District employs an effective outreach program to its consumers, and is an active participant in regional planning efforts. It has reciprocal agreements with the Antelope Valley-East Kern Water Agency, Waterworks District No. 40, Littlerock Creek Irrigation District, and two private mutual water companies to improve efficiencies. Economies of Service Page 40 Economies of Service Palmdale MSR August 2012 Page 41 Palmdale MSR 8. Government Structure Options The purpose of evaluating government structure options as part of the Municipal Service Review (MSR) is to encourage the current and future orderly formation of local government agencies, create logical boundaries, and promote the efficient delivery of services. This MSR is an informational document that will be used by the Los Angeles County LAFCO staff and Commission, agencies and organizations, stakeholders, and the public to discuss future governance options for the District. One of the required components to be addressed in the MSR is a list of all possible government structure options including an analysis of all possible advantages and disadvantages of agency reorganization. There are several advantages and disadvantages that may occur from reorganization including: Advantages Reduction in cost or fees due to economies of scale Improved service delivery in terms of both water delivery and administrative functions including customer service and billing Simplification of jurisdictional boundaries. Disadvantages Political opposition Loss of local control and accountability No or limited cost savings Discontinuity of services during the reorganization process The LAFCO Commission is not required to implement any of the governmental structure options described in this report. However, the LAFCO Commission must update or reaffirm the sphere of influence of the District, which as it exists today is concurrent with the District’s boundaries. It is important to note that at the time this report was prepared, the District had no plans to expand or retract its sphere of influence or service boundary. 8.1 Options There doesn’t appear to be any options available at this time for restructuring the Palmdale Water District. In fact, there doesn’t appear to be any need for such restructuring. Even if it were suggested that restructuring might be in the public interest, the position of the District is that its boundaries cannot Government Structure Options Page 42 Government Structure Options be altered through the MSR process because of a contract dated February 2, 1963 between the District and the State of California Department of Water Resources, which reads in part: “15. AREA SERVED BY AGENCY. (b) State Approval of Change in Boundaries or Organization of Agency. While this contract is in effect no change shall be made in the Agency either by inclusion or exclusion of lands, by partial or total consolidation or merger with another district, by proceedings to dissolve, or otherwise, except with the prior written consent of the State or except by act of the Legislature.” If the District’s position is legally correct, it appears that the only viable option available to LAFCO is to maintain the status quo. Palmdale MSR August 2012 Page 43 Palmdale MSR 9. Local Accountability and Governance The District is governed by a five-member board of directors, elected from within each of the five electoral divisions in the District. Members for each of the divisions must reside in the division they represent and are elected by voters within that division. All board members serve a four-year term. Table 9-1: Palmdale Water District Governance below provides a summary of the governance and local accountability of the District. Table 9-1: Palmdale Water District Governance Date formed: 1918 Statutory Authorization: Irrigation District Act (California State Water Code Section 20500 et seq.) Board Meetings: Twice a Month Board of Title Compensation Directors Gordon Dexter President A Director’s fee averages $375.00 per Gloria Dizmang Vice President month. Other benefits provided to Robert E. Alvarado Secretary board members include health Kathy Mac Laren Treasurer insurance and travel expenses. Steve Cordova Board Member Table Notes: 1) Palmdale Water District Website, August 9, 2012 - http://www.palmdalewater.org/Board.aspx The governing board is responsible for a complete range of public governance actions and holds regularly scheduled meetings on the second and fourth Wednesday evenings to inform the public about the District and recent water activities. The District’s board meetings are publicly notified through newspaper publications and the District’s Web site, and are open to the public. The District evolved from several private water companies. The first water agency, the Palmdale Irrigation Company, was established in 1886 to acquire land and water, and then rent, lease, and sell both as they were developed. The District was originally named the Palmdale Irrigation District, and was formed Local Accountability and Governance Page 44 Local Accountability and Governance in 1918 by a public vote. In 1973 the name of the Irrigation District was changed to the Palmdale Water District. Palmdale MSR August 2012 Page 45 Palmdale MSR 10. Determinations and Findings California Government Code Section 56430 provides that LAFCOs, upon receipt and consideration of an MSR, are required to adopt written findings addressing each of the following six topics: 1. Growth and population projections for the affected area. 2. Present and planned capacity of public facilities and adequacy of public services, including infrastructure needs or deficiencies. 3. Financial ability of agencies to provide services. 4. Status of, and opportunities for, shared facilities. 5. Accountability of community service needs, including governmental structure and operational efficiencies. 6. Any other matter related to effective or efficient service delivery, as required by the LAFCO Commission. Below is a summary of what each determination will assess as well as an overview of the findings for each determination. 1. Growth and population projections for the affected area. This determination requires an analysis of current and future population and demographic characteristics related to city and special district service plans and delivery. Local and regional growth projections should be analyzed for compatibility with planned facilities. Population studies prepared by the City of Palmdale cannot be used directly to estimate the population served by the District, because the District’s Primary Service Area boundary does not coincide with the City boundary. The District’s projected population through 2035 is based on the District’s Strategic Water Resources Plan (SWRP) which used Southern California Association of Governments (SCAG) data. It is estimated that the population within the District will reach approximately 164,312 by 2015 and 280,206 by 2035. Table 10-1: District Population Projections provides the current and projected future population for the District’s service area. Determinations and Findings Page 46 Determinations and Findings Table 10-1: District Population Projections 2010 2015 2020 2025 2030 2035 e Water 109,395 164,312 195,404 225,208 253,791 280,206 tes: gic Water Resources Plan, Palmdale Water District, 2009 2. Present and planned capacity for public facilities and adequacy of public services, including infrastructure needs or deficiencies. The purpose of this determination is to evaluate existing infrastructure to determine existing sufficiency and future demand. The analysis will address future planned expansions within the MSR study area, both locally and regionally. The District’s service area customers include municipal, residential, irrigation, commercial, industrial, and institutional users. The District has meters on all residential, commercial and landscape service connections in the service area and requires meters on all new connections. The District provides potable water service to its residential, commercial, industrial, and institutional customers within its service area, and serves supplemental water to several customers outside its Primary Service Area in accordance with agreements made with the Antelope Valley East Kern Water Agency (AVEK). The District currently receives water from three sources: Groundwater, Littlerock Dam Reservoir, and imported water from the State Water Project. The ability of the District to reliably meet future water demands with its current water supplies is not certain. Therefore the District is diversifying its water supply sources to meet its service area’s future water demands by using three new sources: 1) recycled water, 2) groundwater banking, and 3) anticipated new sources. Anticipated new sources consist of transfer and exchange opportunities that will be used to meet future water demands with the District’s service area. Palmdale MSR August 2012 Page 47 Palmdale MSR 3. Financial ability of agencies to provide services. The purpose of this determination is to analyze the present and future ability of the District to financially support the current and long-term municipal service needs. When significant conservation programs are undertaken, a budget deficit is likely to occur. If and when this occurs, the District would need to take corrective action to balance the public benefits of conservation programs against the demands of a balanced budget. The District has annual revenue of approximately twenty million dollars. Surplus revenues are carried over in a reserve fund for maintenance, capital improvement and budget deficits. The District has the financial capacity to continue to provide services to its service area. 4. Status of, and opportunities for, shared services. The purpose of this determination is to analyze potential opportunities, if any, for enhancing operational efficiencies by sharing services and/or facilities. Water supply is the only significant constraint to cost avoidance and financing opportunities. The supply issue is the paramount concern of the region, and this issue is greatly exacerbated by the fact that the groundwater basin is not adjudicated. As cited earlier, the agencies in the Antelope Valley collaborated in the preparation of an area-wide study titled, “Antelope Valley Integrated Regional Water Management Plan” (AVIRWMP), which was prepared in 2007. One of the basic purposes of the AVIRWMP study was to identify how agencies in the Antelope Valley Groundwater Basin could achieve savings by using a basin-wide approach to water planning and facilities construction. Effective collaboration between agencies has been frustrated by the fact that the basin is not adjudicated. 5. Accountability for community service needs, including governmental structure and operational efficiencies. Determinations and Findings Page 48 Determinations and Findings The purpose of this determination is to evaluate the current and alternative government structure of the District. This evaluation includes opportunities for public participation provided by the District. The District is governed by a five-member Board of Directors, each elected by voters within five separate voting divisions within the District. The governing board is responsible for a complete range of public governance actions and holds regularly scheduled meetings on the second and fourth Wednesday evenings of each month, to inform the public about the District and recent water activities. The District’s board meetings are publicly notified through newspaper publications and the District’s Web site, and are open to the public. The District is proactive in ensuring that its operations and finances are made easily available to the public through its website (www.palmdalewater.org). The website is well designed making it easy to find information regarding the District’s board, water rates, upcoming events, water conservation measures and tips, development projects, planning reports, financial reports including past and present fiscal budgets and financial audits, and general contact information. 6. Any other matter related to effective or efficient service delivery, as provided by Commission policy. The purpose of this determination is to provide an analysis of any other matters as related to the data analysis provided in the previous sections of this report, the affected and stakeholder agency interviews, and distributed questionnaires. Please refer to Section 10.1: Sphere of Influence (SOI) and District Recommendation below. 7. The location and characteristics of any disadvantaged unincorporated communities within or contiguous to the sphere of influence. Senate Bill 244, recently enacted on February 10, 2011, imposed state mandates on local governments, including cities, counties and LAFCOs. This bill requires LAFCO to make determinations regarding “disadvantaged unincorporated communities.” Disadvantaged Palmdale MSR August 2012 Page 49 Palmdale MSR unincorporated communities are defined as territory that constitutes all or a portion of a “disadvantaged community” including 12 or more registered voters or some other standard as determined by the LAFCO Commission. A “disadvantaged community” is defined as a community with an annual median household income that is less than 80 percent of the statewide annual median household income. “Severely disadvantaged community” means a community with a median household income less than 60 percent of the statewide average (Water Code Section 79505.5). The legislation will impact LAFCO operations in three respects: 1. Municipal Service Review (MSR) determinations. 2. Sphere of Influence updates on or after July 1, 2012 3. Annexation approval restrictions of territory adjacent to disadvantaged communities. Item numbers one and two are further described below, however as this MSR does not concern the approval of an annexation, item number three will not be discussed in this report. 1. Municipal Services Reviews - §56430 The Commission is required to prepare specific written determinations on infrastructure needs or deficiencies related to sewer, water, and fire protection services in any disadvantaged unincorporated community within or contiguous to the sphere of influence of a city or special district that provides those services. 2. Spheres of Influence - §56425 After July 1, 2012 the Commission is required to adopt additional determinations for an update of a sphere of influence of a city or special district that provides public facilities, or services related to sewer, water, or fire protection. The Commission must make determinations regarding the present and probable need for those public facilities and services in any disadvantaged unincorporated communities within the existing sphere of influence. In accordance with the 2010 United States Census, the median statewide household income is $54,459. Eighty percent of the median statewide household income is $43,567. As the District does not conform to city Determinations and Findings Page 50 Determinations and Findings boundaries, census tracts were used to determine the median household income. The Primary Service Area of the District includes 27 census tracts. It is important to note that these census tracts are not contiguous with the District’s service boundary as shown in Figure 10-1: Census Tract Locations below. Of the 27 census tracts six are considered to be disadvantaged communities while five are considered to be severely disadvantaged communities. Each of the 27 census tracts are further described in Table 10-2: Census Tract Annual Median Household Income below. Figure 10-1: Census Tract Locations Palmdale MSR August 2012 Page 51 Palmdale MSR Table 10-2: Census Tract Annual Median Household Incom Annual Percentage of Statewide Annual Median Annual Statewide Census Tract Median Income Household Annual Median Income Income 9101.01 $21,583.00 40% 9102.01 $49,730.00 91% 9102.05 $87,022.00 160% 9104.01 $70,000.00 129% 9104.02 $28,016.00 51% 9104.03 $28,510.00 52% 9104.04 $45,083.00 83% 9105.01 $21,570.00 40% 9105.02 $30,740.00 56% 9105.04 $38,388.00 70% 9105.05 $52,396.00 96% 9106.01 $40,052.00 74% 9106.02 $34,258.00 63% 9106.03 $54,459.00 $52,295.00 96% 9106.05 $54,063.00 99% 9106.06 $67,670.00 124% 9107.05 $66,064.00 121% 9107.06 $61,172.00 112% 9107.07 $38,690.00 71% 9107.09 $88,229.00 162% 9107.11 $48,739.00 89% 9107.12 $67,292.00 124% 9107.13 $57,803.00 106% 9107.14 $48,488.00 89% 9107.15 $48,089.00 88% 9107.16 $66,914.00 123% 9108.12 $105,568.00 194% Table Notes: 1) 2010 United States Census Determinations and Findings Page 52 Determinations and Findings 10.1 Sphere of Influence (SOI) and District Recommendation Because the District appears to be well-regulated and an active and effective partner with other agencies in planning for the many challenges of this complex area, it is recommended that LAFCO take no action other than affirming the present SOI of the District. This determination is influenced by the following findings: There is existing on-going litigation that may have a substantial effect upon the District and the other agencies within the Antelope Valley Groundwater Basin. The details of the litigation are not known to the project team, because the litigants cited issues of confidentiality when queried about the details, but there was agreement between the parties that the litigation is very important. Because the litigation may have the possibility of changing some basic relationships, it seems appropriate to not make any substantive changes at this juncture. The agencies within the Basin are actively addressing the problems in the area, and nothing has become evident that might result in negative outcomes if the only action that LAFCO takes is to reaffirm that the District’s SOI remains coterminous with the District’s boundaries. Palmdale MSR August 2012 Page 53 Palmdale MSR Determinations and Findings Page 54 Appendix A – Angeles National Forest Reso Appendix A – Angeles National Forest Resolution Palmdale MSR August 2012 Page 55 Palmdale MSR Appendix B – SWP Contract Appendix B – SWP Contract Page 56 Appendix B – SWP Contract Palmdale MSR August 2012 Page 57 Palmdale MSR Appendix B – SWP Contract Page 58 Appendix B – SWP Contract Palmdale MSR August 2012 Page 59 Palmdale MSR Appendix B – SWP Contract Page 60 Appendix C – Agency Correspondence Appendix C – Agency Correspondence Palmdale MSR August 2012 Page 61 Palmdale MSR Appendix C – Agency Correspondence Page 62 Appendix C – Agency Correspondence Palmdale MSR August 2012 Page 63 Palmdale MSR Appendix C – Agency Correspondence Page 64 Appendix C – Agency Correspondence Palmdale MSR August 2012 Page 65 Palmdale MSR Appendix C – Agency Correspondence Page 66 Appendix C – Agency Correspondence Palmdale MSR August 2012 Page 67 Palmdale MSR Appendix C – Agency Correspondence Page 68 Appendix C – Agency Correspondence Palmdale MSR August 2012 Page 69 Palmdale MSR Appendix C – Agency Correspondence Page 70 Appendix C – Agency Correspondence Palmdale MSR August 2012 Page 71 Palmdale MSR Appendix C – Agency Correspondence Page 72 Appendix C – Agency Correspondence Palmdale MSR August 2012 Page 73 Palmdale MSR Appendix C – Agency Correspondence Page 74 Appendix C – Agency Correspondence Palmdale MSR August 2012 Page 75 Palmdale MSR Appendix C – Agency Correspondence Page 76 Appendix C – Agency Correspondence Palmdale MSR August 2012 Page 77