LAFCO
San Rafael Regional Municipal Service Review and Sphere of Influence Update - October 2019
Read the report at Local Agency Formation Commissions ↗
Marin LAFCo
San Rafael Regional
Municipal Services Review
October 2019
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Marin LAFCo San Rafael Region
Final MSR October 2019
Marin Local Agency Formation Commission
Municipal Service Review
San Rafael Region
Final Adopted
Oct 10, 2019
Marin LAFCo San Rafael Region
Final MSR October 2019
PREFACE
This Municipal Services Review (MSR) documents and analyzes services provided by local
governmental agencies in the San Rafael region. Specifically, it evaluates the adequacy and
efficiency of local government structure and boundaries within the region and provides a basis for
boundary planning decisions by the Marin Local Agency Formation Commission (LAFCo).
Context
Marin LAFCo is required to prepare this MSR in accordance with the Cortese-Knox-Hertzberg
Local Government Reorganization Act of 2000 (Government Code Section 56000 et seq.), which
took effect on January 1, 2001. The MSR reviews services provided by public agencies—cities
and special districts—whose boundaries and governance are subject to LAFCo. The analysis and
recommendations included herein serve to promote and coordinate the efficient delivery of local
government services and encourage the preservation of open space and agricultural lands.
Commissioners, Staff, Municipal Services Review Preparers
Commissioners
Sashi McEntee, Chair City City of Mill Valley
Craig Murray, Vice Chair Special District Las Gallinas Valley Sanitary District
Damon Connolly County District 1 Supervisor
Dennis Rodoni County District 4 Supervisor
Sloane Bailey City Town of Corte Madera
Lew Kious Special District Almonte Sanitary District
Larry Loder Public Commission
Chris Skelton Public Alternate Commission
Tod Moody Special District Alternate Sanitary District #5
Matt Brown City Alternate City of San Anselmo
Judy Arnold County Alternate District 5 Supervisor
Staff
Jason Fried Executive Director
Candice Bozzard Commission Clerk
Jeren Seibel Policy Analyst
MSR Preparers
Marin LAFCo i San Rafael Region
Final MSR October 2019
Table of Contents
1.0 INTRODUCTION .........................................................................................................................1
1.1 ROLE AND RESPONSIBILITY OF LAFCO .................................................................................................1
1.2 MUNICIPAL SERVICE REVIEWS ...........................................................................................................2
1.3 MARIN LAFCO COMPOSITION ..........................................................................................................3
2.0 EXECUTIVE SUMMARY ...............................................................................................................4
2.1 AFFECTED PUBLIC AGENCIES .............................................................................................................4
2.2 PLANS, POLICIES, STUDIES ...............................................................................................................6
2.3 AGENCY AND PUBLIC PARTICIPATION ..................................................................................................7
2.4 WRITTEN DETERMINATIONS .............................................................................................................9
3.0 SERVICES EVALUATION AND DETERMINATIONS ....................................................................... 11
3.1 REGIONAL MUNICIPAL SERVICES ...................................................................................................... 11
3.2 MUNICIPAL SERVICE REVIEW DETERMINATIONS .................................................................................. 16
4.0 REGIONAL SETTING .................................................................................................................. 19
4.1 UNINCORPORATED ISLANDS ........................................................................................................... 23
4.2 GROWTH AND POPULATION ........................................................................................................... 28
4.3 REGIONAL PLANNING ................................................................................................................... 30
5.0 CITY OF SAN RAFAEL ................................................................................................................ 32
5.1 OVERVIEW ................................................................................................................................. 32
5.2 JURISDICTIONAL BOUNDARY ........................................................................................................... 32
5.3 POPULATION AND GROWTH ........................................................................................................... 33
5.4 LAND USE AND GEOGRAPHIC FACTORS ............................................................................................. 33
5.5 ORGANIZATION STRUCTURE ........................................................................................................... 35
5.6 ACCOUNTABILITY AND TRANSPARENCY ............................................................................................. 35
5.7 MUNICIPAL SERVICES .................................................................................................................... 36
5.8 FINANCIAL OVERVIEW ................................................................................................................... 43
5.9 SUSTAINABILITY ........................................................................................................................... 48
6.0 MARINWOOD COMMUNITY SERVICES DISTRICT ................................................................... 49
6.1 OVERVIEW ................................................................................................................................. 49
6.2 FORMATION AND DEVELOPMENT..................................................................................................... 52
6.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE ................................................................................ 52
6.4 POPULATION AND GROWTH ........................................................................................................... 52
6.5 MUNICIPAL SERVICES .................................................................................................................... 52
6.6 ORGANIZATIONAL STRUCTURE ........................................................................................................ 55
6.7 ACCOUNTABILITY AND TRANSPARENCY ............................................................................................. 57
6.8 FINANCIAL OVERVIEW ................................................................................................................... 57
6.9 SUSTAINABILITY AND WILDFIRE ....................................................................................................... 58
Marin LAFCo ii San Rafael Region
Final MSR October 2019
7.0 COUNTY SERVICE AREA NO. 6 – GALLINAS CREEK...................................................................... 59
7.1 OVERVIEW ................................................................................................................................. 59
7.2 FORMATION AND DEVELOPMENT..................................................................................................... 59
7.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE ................................................................................ 62
7.4 POPULATION AND GROWTH ........................................................................................................... 62
7.5 MUNICIPAL SERVICES .................................................................................................................... 62
7.6 ORGANIZATIONAL STRUCTURE ........................................................................................................ 63
7.7 ACCOUNTABILITY AND TRANSPARENCY ............................................................................................. 64
7.8 FINANCIAL OVERVIEW ................................................................................................................... 65
7.9 SUSTAINABILITY ........................................................................................................................... 65
8.0 COUNTY SERVICE AREA NO. 9 – NORTHBRIDGE ..................................................................... 66
8.1 OVERVIEW ................................................................................................................................. 66
8.2 FORMATION AND DEVELOPMENT..................................................................................................... 66
8.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE ................................................................................ 66
8.4 POPULATION AND GROWTH ........................................................................................................... 69
8.5 MUNICIPAL SERVICES .................................................................................................................... 69
8.6 ORGANIZATIONAL STRUCTURE ........................................................................................................ 70
8.7 ACCOUNTABILITY AND TRANSPARENCY ............................................................................................. 70
8.8 FINANCIAL OVERVIEW ................................................................................................................... 70
8.9 SUSTAINABILITY ........................................................................................................................... 71
9.0 COUNTY SERVICE AREA NO. 13 - UPPER LUCAS VALLEY ............................................................. 72
9.1 OVERVIEW ................................................................................................................................. 72
9.2 FORMATION AND DEVELOPMENT..................................................................................................... 72
9.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE ................................................................................ 75
9.4 POPULATION AND GROWTH ........................................................................................................... 75
9.5 MUNICIPAL SERVICES .................................................................................................................... 75
9.6 ORGANIZATIONAL STRUCTURE ........................................................................................................ 77
9.7 FINANCES .................................................................................................................................. 77
9.8 SUSTAINABILITY ........................................................................................................................... 78
10.0 COUNTY SERVICE AREA NO. 18 - LAS GALLINAS ..................................................................... 79
10.1 OVERVIEW ............................................................................................................................... 79
10.2 FORMATION AND DEVELOPMENT ................................................................................................... 79
10.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE .............................................................................. 83
10.4 POPULATION AND GROWTH ......................................................................................................... 83
10.5 MUNICIPAL SERVICES .................................................................................................................. 83
10.6 ORGANIZATIONAL STRUCTURE ...................................................................................................... 84
10.7 ACCOUNTABILITY AND TRANSPARENCY ............................................................................................ 85
10.8 FINANCIAL SUMMARY ................................................................................................................. 85
10.9 GOVERNANCE STRUCTURE OPTIONS ............................................................................................... 86
Marin LAFCo iii San Rafael Region
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11.0 COUNTY SERVICE AREA NO. 19 – SAN RAFAEL FIRE ................................................................... 87
11.1 OVERVIEW ............................................................................................................................... 87
11.2 FORMATION AND DEVELOPMENT ................................................................................................... 87
11.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE .............................................................................. 90
11.4 POPULATION AND GROWTH ......................................................................................................... 90
11.5 MUNICIPAL SERVICES .................................................................................................................. 90
11.6 ORGANIZATIONAL STRUCTURE ...................................................................................................... 91
11.7 ACCOUNTABILITY AND TRANSPARENCY ............................................................................................ 91
11.8 FINANCIAL OVERVIEW ................................................................................................................. 92
11.9 SUSTAINABILITY ......................................................................................................................... 92
12.0 COUNTY SERVICE AREA NO. 23 - TERRA LINDA ...................................................................... 93
12.1 OVERVIEW ............................................................................................................................... 93
12.2 FORMATION AND DEVELOPMENT ................................................................................................... 93
12.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE .............................................................................. 96
12.4 GOVERNMENTAL SERVICES ........................................................................................................... 96
12.5 ORGANIZATIONAL STRUCTURE ...................................................................................................... 96
12.6 FINANCIAL SUMMARY ................................................................................................................. 96
12.7 GOVERNANCE STRUCTURE OPTIONS ............................................................................................... 96
Figures List
FIGURE 2-1: SAN RAFAEL REGIONAL OVERVIEW MAP ............................................................................................................... 5
FIGURE 4-1: SAN RAFAEL REGIONAL SERVICES MAP ............................................................................................................... 21
FIGURE 4-2: POPULATION GROWTH TREND AND ESTIMATE ...................................................................................................... 30
FIGURE 5-1: CITY OF SAN RAFAEL BOUNDARY AND SOI ........................................................................................................... 34
FIGURE 5-2: CITY OF SAN RAFAEL GENERAL FUND EXPENDITURES ............................................................................................ 46
FIGURE 5-3: SAN RAFAEL LONG-TERM DEBT OBLIGATION ....................................................................................................... 47
FIGURE 6-1: MARINWOOD CSD BOUNDARY AND SOI ............................................................................................................. 50
FIGURE 6-2: MARINWOOD CSD LAND USE ........................................................................................................................... 51
FIGURE 6-3: MARINWOOD CSD ORGANIZATION CHART .......................................................................................................... 56
FIGURE 7-1: CSA NO. 6 BOUNDARY AND SOI ....................................................................................................................... 60
FIGURE 7-2: CSA NO. 6 LAND USE ..................................................................................................................................... 61
FIGURE 8-1: CSA NO. 9 BOUNDARY AND SOI ....................................................................................................................... 67
FIGURE 8-2: CSA NO. 9 LAND USE ..................................................................................................................................... 68
FIGURE 9-1: CSA NO. 13 BOUNDARY AND SOI ..................................................................................................................... 73
FIGURE 9-2: CSA NO. 13 LAND USE ................................................................................................................................... 74
FIGURE 9-3: LUCAS VALLEY PRESERVE MAP .......................................................................................................................... 76
FIGURE 10-1: CSA NO. 18 BOUNDARY AND SOI ................................................................................................................... 80
FIGURE 10-2: CSA NO. 18 LAND USE ................................................................................................................................. 81
FIGURE 10-3: CSA NO. 18 ZONE OF BENEFIT........................................................................................................................ 82
FIGURE 11-1: CSA NO. 19 BOUNDARY AND SOI ................................................................................................................... 88
FIGURE 11-2: CSA NO. 19 LAND USE ................................................................................................................................. 89
FIGURE 12-1: CSA NO. 23 BOUNDARY AND SOI ................................................................................................................... 94
FIGURE 12-2: CSA NO. 23 LAND USE ................................................................................................................................. 95
Marin LAFCo iv San Rafael Region
Final MSR October 2019
Tables List
TABLE 1-1: LAFCO'S REGULATORY POWERS............................................................................................................................ 2
TABLE 1-2: MANDATORY DETERMINATIONS ............................................................................................................................ 3
TABLE 1-3: MARIN LAFCO COMMISSION MEMBERSHIP ............................................................................................................ 3
TABLE 2-1: SAN RAFAEL REGIONAL MSR AGENCIES ................................................................................................................. 4
TABLE 2-2: SAN RAFAEL REGIONAL AGENCIES’ MEETING INFORMATION ....................................................................................... 8
TABLE 4-1: SAN RAFAEL STUDY AREA SERVICE PROVIDERS OVERVIEW ........................................................................................ 22
TABLE 4-2: UNINCORPORATED TERRITORY IN SAN RAFAEL STUDY AREA ..................................................................................... 24
TABLE 5-1: CITY OF SAN RAFAEL OVERVIEW .......................................................................................................................... 32
TABLE 5-2: CITY OF SAN RAFAEL POLICE DEPARTMENT SERVICE INDICATORS ............................................................................... 38
TABLE 5-3: CITY OF SAN RAFAEL PARKS AND RECREATION COMPONENTS ................................................................................... 41
TABLE 5-4: SAN RAFAEL FUND BALANCES ............................................................................................................................. 45
TABLE 6-1: MARINWOOD CSD OVERVIEW............................................................................................................................ 49
TABLE 6-2: MARINWOOD CSD REVENUES AND EXPENDITURES FOR FY 2017-18 AND FY 2018-19 ............................................... 58
TABLE 7-1: CSA NO. 6 OVERVIEW ...................................................................................................................................... 59
TABLE 7-2: GALLINAS CREEK PAST DREDGING VOLUMES ......................................................................................................... 63
TABLE 7-3: COUNTY OF MARIN BOARD OF SUPERVISORS ......................................................................................................... 64
TABLE 7-4: CSA NO. 6 ADVISORY BOARD MEMBERS .............................................................................................................. 64
TABLE 7-5: CSA NO. 6 FINANCIAL SUMMARY ....................................................................................................................... 65
TABLE 8-1: CSA NO. 9 OVERVIEW ...................................................................................................................................... 66
TABLE 8-2: CSA NO. 9 MAINTENANCE SCHEDULE SUMMARY ................................................................................................... 69
TABLE 8-3: CSA NO. 9 FINANCIAL SUMMARY ....................................................................................................................... 71
TABLE 9-1: CSA NO. 13 OVERVIEW .................................................................................................................................... 72
TABLE 9-2: CSA NO. 13 REVENUES AND EXPENDITURES FOR FY 2017-18 AND FY 2018-19 ........................................................ 78
TABLE 10-1: CSA NO. 18 OVERVIEW .................................................................................................................................. 79
TABLE 10-2: CSA NO. 18 PARKS, RECREATION AND OPEN SPACE ............................................................................................. 83
TABLE 10-3: CSA NO. 18 ADVISORY BOARD ......................................................................................................................... 85
TABLE 10-4: CSA NO. 18 REVENUES AND EXPENDITURES ....................................................................................................... 86
TABLE 11-1: CSA NO. 19 OVERVIEW .................................................................................................................................. 87
TABLE 11-2: CSA NO. 19 AREAS AND ACREAGE (1974) ......................................................................................................... 87
TABLE 11-3: CSA NO. 19 FINANCIAL SUMMARY ................................................................................................................... 92
TABLE 12-1: CSA NO. 23 OVERVIEW .................................................................................................................................. 93
Appendices
Appendix A – List of References with Web Links
Marin LAFCo v San Rafael Region
Final MSR October 2019
1.0 INTRODUCTION
1.1 ROLE AND RESPONSIBILITY OF LAFCO
Local Agency Formation Commissions (LAFCos) were established in 1963 and are political
subdivisions of the State of California responsible for providing regional growth management
oversight in all 58 counties. LAFCos’ authority is currently codified under the Cortese-Knox-
Hertzberg Local Government Reorganization Act of 2000 (“CKH”), which specifies regulatory
and planning powers delegated by the Legislature to coordinate and oversee the establishment,
expansion, and organization of cities and special districts as well as their municipal service areas.
Guiding LAFCos’ regulatory and planning powers is to fulfill specific purposes and objectives
that collectively construct the Legislature’s regional growth management priorities under
Government Code (G.C.) Section 56301. This statute reads:
“Among the purposes of the commission are discouraging urban sprawl,
preserving open space and prime agricultural lands, efficiently providing
governmental services, and encouraging the orderly formation and
development of local agencies based upon local conditions and
circumstances. One of the objects of the commission is to make studies and
to obtain and furnish information which will contribute to the logical and
reasonable development of local agencies in each county and to shape the
development of local agencies so as to advantageously provide for the
present and future needs of each county and its communities.”
LAFCo decisions are legislative in nature and not subject to an outside appeal process. LAFCos
also have broad powers with respect to conditioning regulatory and planning approvals so long as
not establishing terms that directly control land uses, densities, or subdivision requirements.
Regulatory Responsibilities
LAFCos’ principal regulatory responsibility involves approving or disapproving all jurisdictional
changes involving the establishment, expansion, and reorganization of cities and most special
districts.1 More recently LAFCos have been tasked with also overseeing the approval process for
cities and districts to provide new or extended services beyond their jurisdictional boundaries by
contract or agreement as well as district actions to either activate a new service or divest an existing
service. LAFCos generally exercise their regulatory authority in response to applications submitted
by the affected agencies, landowners, or registered voters.
Recent CKH amendments now authorize and encourage LAFCos to initiate on their own
jurisdictional changes to form, consolidate, and dissolve special districts consistent with current
and future community needs. LAFCo regulatory powers are described in Table 1.1 below.
1
CKH defines “special district” to mean any agency of the State formed pursuant to general law or special act for the local
performance of governmental or proprietary functions within limited boundaries. All special districts in California are
subject to LAFCo with the following exceptions: school districts; community college districts; assessment districts;
iMmparroinve LmAenFt dCisotr icts; community facilities districts; and air1 p ollution control districts. San Rafael Region
Final MSR October 2019
Table 1-1: LAFCo's Regulatory Powers
Regulatory Powers Granted by Government Code (G.C.) Section 56301
• •
• •
City Incorporations / Disincorporations City and District Annexations
• •
District Formations / Dissolutions City and District Detachments
• •
City and District Consolidations Merge/Establish Subsidiary Districts
City and District Outside Service Extensions District Service Activations / Divestitures
Planning Responsibilities
LAFCos inform their regulatory actions through two central planning responsibilities: (a) making
sphere of influence (“sphere”) determinations and (b) preparing municipal service reviews. Sphere
determinations have been a core planning function of LAFCos since 1971 and effectively serve as
the Legislature’s version of “urban growth boundaries” with regard to cumulatively delineating
the appropriate interface between urban and non-urban uses within each county. Municipal service
reviews, in contrast, are a relatively new planning responsibility enacted as part of CKH and are
intended to inform – among other activities – sphere determinations. The Legislature mandates,
notably, all sphere changes as of 2001 be accompanied by preceding municipal service reviews to
help ensure LAFCos are effectively aligning governmental services with current and anticipated
community needs.
1.2 MUNICIPAL SERVICE REVIEWS
Municipal service reviews were a centerpiece to CKH’s enactment in 2001 and are comprehensive
studies of the availability, range, and performance of governmental services provided within a
defined geographic area. LAFCos generally prepare municipal service reviews to explicitly inform
subsequent sphere determinations. LAFCos also prepare municipal service reviews irrespective of
making any specific sphere determinations in order to obtain and furnish information to contribute
to the overall orderly development of local communities. Municipal service reviews vary in scope
and can focus on a particular agency or governmental service. LAFCos may use the information
generated from municipal service reviews to initiate other actions under their authority, such as
forming, consolidating, or dissolving one or more local agencies.
All municipal service reviews – regardless of their intended purpose – culminate with LAFCOs
preparing written statements addressing seven specific service factors listed under G.C. Section
56430. This includes, most notably, infrastructure needs or deficiencies, growth and population
trends, and financial standing. The seven mandated service factors are summarized in the following
table.
Marin LAFCo 2 San Rafael Region
Final MSR October 2019
Table 1-2: Mandatory Determinations
Mandatory Determinations / Municipal Service Reviews
(G.C. Section 56430)
1. Growth and population projections for the affected area.
2. Location and characteristics of any disadvantaged unincorporated communities within or
contiguous to affected spheres of influence.
3. Present and planned capacity of public facilities, adequacy of public services, and infrastructure
needs or deficiencies.
4. Financial ability of agencies to provide services.
5. Status and opportunities for shared facilities.
6. Accountability for community service needs, including structure and operational efficiencies.
7. Matters relating to effective or efficient service delivery as required by LAFCo policy.
1.3 MARIN LAFCO COMPOSITION
Marin LAFCo is governed by a 7-member board comprising two county supervisors, two city
councilmembers, two independent special district members, and one representative of the general
public. Each group also appoints one “alternate” member. Each member must exercise their
independent judgment, separate from their appointing group, on behalf of the interests of all
residents, landowners, and the public. Marin LAFCo’s current commission membership is
provided below in Table 1-3.
Table 1-3: Marin LAFCo Commission Membership
Name Position Agency Affiliation
City of Mill Valley
Las Gallinas Valley Sanitary District
Sashi McEntee, Chair City
District 1 Supervisor
Craig Murray, Vice Chair Special District
District 4 Supervisor
Damon Connolly County
Town of Corte Madera
Dennis Rodoni County
Almonte Sanitary District
Sloane Bailey City
Commission
Lew Kious Special District
Commission
Larry Loder Public
Chris Skelton Public Alternate
City of San Anselmo
Tod Moody Special District Alternate Sanitary District #5
District 5 Supervisor
Matt Brown City Alternate
MJuadriyn A LrAnoFlCd o is independent oCfo luoncatyl gAoltveerrnnamtee nt and employs its own staff. It s offices are located
at 1401 Los Gamos Drive, Suite 220 in San Rafael. Information on Marin LAFCo’s functions and
activities, including reorganization applications, are available by calling 415-448-5877 by e-mail
to staff@marinlafco.org or by visiting www.marinlafco.org.
Marin LAFCo 3 San Rafael Region
Final MSR October 2019
2.0 EXECUTIVE SUMMARY
This study represents Marin LAFCo’s scheduled regional municipal service review local agencies
in the San Rafael region of eastern central Marin County. The underlying aim of the study is to
produce an independent assessment of municipal services in the region over the next five to ten
years relative to the Commission’s regional growth management duties and responsibilities. The
information generated as a part of the study will be directly used by the Commission in (a) guiding
subsequent sphere of influence updates, (b) informing future boundary changes, and – if merited
– (c) initiating government reorganizations, such as special district formations, consolidations,
and/or dissolutions.
2.1 AFFECTED PUBLIC AGENCIES
This report focuses on eight agencies operating in San Rafael Region as listed below and shown
in Figure 2.1.
Table 2-1: San Rafael Regional MSR Agencies
San Rafael Agency Name
City of San Rafael
Marinwood Community Services District
CSA No. 6 (Gallinas Creek)
CSA No. 9 (Northbridge)
CSA No. 13 (Upper Lucas Valley)
CSA No. 18 (Las Gallinas)
CSA No. 19 (San Rafael unincorporated area)
CSA No. 23 (Terra Linda)
Together, these agencies provide a range of municipal services to the communities in which they
serve, including:
Water
Water services include access to, treatment of and distribution of water for municipal purposes.
An in-depth review of countywide water services was prepared by Marin LAFCo in 2016.
Wastewater
Wastewater services include the collection, transmission, and treatment of wastewater. An in-
depth central Marin County wastewater services review was prepared by Marin LAFCo in
2017.
Fire Protection and Emergency Services
Fire protection and emergency services consist of firefighting and fire prevention, emergency
medical response, hospital service, ambulance, and rescue services. These services are
interrelated in nature and overlap in functional application.
Marin LAFCo 4 San Rafael Region
Final MSR October 2019
´
City of Novato £¤
Sonoma
101
CSA No. 13 Marin
Upper !
Marinwood
Lucas
CSD
Valley
CSA No. 6
Gallinas Creek
CSA No. 23 CSA No. 19 S a n
Terra Linda San Rafael
P a b l o
CSA No. 18
Las Gallinas B a y
CSA No. 9
Northbridge
CSA No. 19
CSA No. 19 CSA No. 19
Town of
San Anselmo
CSA
No. 19
Town of Ross
Ci t y of
San Rafael City Limits
CSA
Sa n Ra f a e l
Marinwood CSD No 19 §¨¦
CSA No. 6 Gallinas Creek 580
CSA No. 18 Las Gallinas
£¤
CSA No. 23 Terra Linda 101
CSA No. 13 Upper Lucas Valley
CSA No. 19 San Rafael City of
Larkspur
CSA No. 9 Northbridge
0 0.5 1Miles
£¤ Figure
Mapping provided by:
W Hwy 580
San Rafael Regional Service PrCoortev Maidedra ers
2-1
Mill Valley Tiburon Sources: Esri, USGS, NOAA
Map Date: 5/24/2019
Sources: Boundaries, Roads, Parcels: Marin Map GIS.
Parks and Recreation Services
Parks and recreation services include the provision and maintenance of parks and recreation
services.
Open Space Management
Open Space land is commonly set aside for recreation and stormwater management purposes,
as well as for natural resource protection, preservation of cultural and historic resources,
preservation of scenic vistas, and many other reasons.
Channel Maintenance
Channel maintenance includes periodic dredging of creek channels and disposal.
Roadway Services
Roadway services include construction, maintenance, planning of roads, and roadway lighting.
In the San Rafael region, streetlights are maintained by the Marin General Services Authority.
It is important to note that the Marin Municipal Water District and the Las Gallinas Sanitary
District provide water and sewer services to the study area and were reviewed in comprehensive
MSRs in 2016 and 2017, respectively. The San Rafael Sanitation District also provides sewer
service to the Central San Rafael area. While those services will not be reviewed in depth in this
study, a brief overview and consideration of their provision in the San Rafael region are crucial
for the regional scope of this study.
2.2 PLANS, POLICIES, STUDIES
Key references and information sources for this study were gathered for each district considered.
The references utilized in this study include published reports; review of agency files and databases
(agendas, minutes, budgets, contracts, audits, etc.); Master Plans; Capital Improvement Plans;
engineering reports; EIRs; finance studies; general plans; and state and regional agency
information (permits, reviews, communications, regulatory requirements, etc.). Additionally, the
consulting team, in coordination with the LAFCo Executive Officer, contacted each agency with
requests for information.
The MSR study area includes communities within the City as well as unincorporated areas adjacent
to the city. In the areas entirely outside of the City, Marin County has the primary authority over
local land-use and development policies (and growth). The City of San Rafael has authority over
land use and development policies within the City. City, County, and Community plans were vital
for the collection of baseline and background data for each agency. The following is a list of
documents used in this MSR preparation:
• City and County General Plans
• Specific Plans
• Community Plans
• Agency databases and online archives (agendas, meeting minutes, website information)
Marin LAFCo 6 San Rafael Region
Final MSR October 2019
2.3 AGENCY AND PUBLIC PARTICIPATION
Consistent with the approved scope of work, this MSR has been prepared with an emphasis on
soliciting outside public review and comment as well as multiple input opportunities from affected
agencies. This included an agency startup meeting hosted by Marin LAFCo staff with a
presentation by the consultants preparing the MSR, information requests sent to individual
agencies, draft agency profiles also sent to agencies, and review of the draft report prior to
Commission action.
The public was also invited to provide comments during a 30-day review period before the
Commission hearing on the MSR. During that time the public was very engaged and provided
comments to Marin LAFCo on various agencies. Of note were comments received on three
separate matters. The Los Ranchitos Improvement District expressed their desire to be removed
from the City of San Rafael’s Sphere of Influence and provided reasoning for remaining a part of
the County. The Greenbelt Alliance urged the Commission to designate areas as open space lands
or community separators. Lastly, several community members from CSA No. 18 expressed
concerns over changing the CSA boundary. The Commission appreciates this public involvement
and has noted these and other comments for future consideration.
This Final MSR is posted on the Commission’s website (www.marinlafco.org) and may also be
reviewed at the LAFCo office located at 1401 Los Gamos Drive, Suite 220 in San Rafael during
open hours.
Should members of the public wish to engage further in local government activities, the following
table provides information on San Rafael regional agencies’ meeting times and locations.
Marin LAFCo 7 San Rafael Region
Final MSR October 2019
Table 2-2: San Rafael Regional Agencies’ Meeting Information
Agency Governing Body Meeting Date/Time Meeting Location Televised/Streaming Website
Televised on Local Channel 27 and
San Rafael City Hall Council Chambers available as video and audio
1st and 3rd Mondays 1400 Fifth Ave - Room 203 recording online at City Council https://www.cityofsanrafael.or
City of San Rafael City Council at 7:00pm San Rafael, CA 94901 website. g/public-meetings/
Available online at Marinwood
Marinwood Community Center CSD YouTube Channel:
Marinwood Community 2nd Tuesday at 775 Miller Creek Road https://www.youtube.com/chann http://www.marinwood.org/ab
Services District Board of Directors 7:30pm San Rafael, CA 94903 el/UC0dvM2PvtsEzE25eRAf4Jmg out-us/board-agendas
Marin Center
Friends of Marin Center Room https://www.marincounty.org/
County Service Area No. 6 Advisory Board/ County Once per year or more 10 Avenue of the Flags depts/pw/divisions/public-
Gallinas Creek Board of Supervisors as needed San Rafael, CA 94903 N/A services/county-service-areas
County of Marin Civic Building
County Service Area No. 9 County Board of 2nd and 4th Tuesday 3501 Civic Center Drive - Suite 329 Webcasts available on Board of https://www.marincounty.org/
Northbridge Supervisors at 9:00am San Rafael, CA 94903 Supervisors website. depts/bs/meeting-archive
County of Marin Civic Building
County Service Area No. 13 County Board of 2nd and 4th Tuesday 3501 Civic Center Drive - Suite 329 Webcasts available on Board of https://www.marincounty.org/
Upper Lucas Valley Supervisors at 9:00am San Rafael, CA 94903 Supervisors website. depts/bs/meeting-archive
County of Marin Civic Building https://www.marincountyparks
County Service Area No. 18 Advisory Board/ County Twice per year or 3501 Civic Center Drive - Suite 260 .org/about-us/boards-and-
Las Gallinas Board of Supervisors more as needed San Rafael, CA 94904 N/A commissions/csa18
County of Marin Civic Building
County Service Area No. 19 County Board of 2nd and 4th Tuesday 3501 Civic Center Drive - Suite 329 Webcasts available on Board of https://www.marincounty.org/
San Rafael Fire Supervisors at 9:00am San Rafael, CA 94903 Supervisors website. depts/bs/meeting-archive
County of Marin Civic Building
County Service Area No. 23 County Board of 2nd and 4th Tuesday 3501 Civic Center Drive - Suite 329 Webcasts available on Board of https://www.marincounty.org/
Terra Linda (Inactive) Supervisors at 9:00am San Rafael, CA 94903 Supervisors website. depts/bs/meeting-archive
Marin LAFCo 8 San Rafael Region
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2.4 WRITTEN DETERMINATIONS
The Commission is directed to prepare written determinations to address the multiple governance
factors enumerated under G.C. Section 56430 anytime it prepares a municipal service review.
These determinations are similar to findings and serve as independent statements based on
information collected, analyzed, and presented in this study’s subsequent sections. The underlying
intent of the determinations is to identify all pertinent issues relating to the planning, delivery, and
funding of municipal services as it relates to the Commission’s role and responsibilities. An
explanation of these seven determination categories is provided below.
1. Growth and Population
This determination evaluates existing and projected population estimates for the City of
San Rafael and the adjacent unincorporated communities within the study area. The ability
of each provider to accommodate growth and demand projections is considered in Chapter
4, Agency Profiles.
2. Location and Characteristics of any Disadvantaged Unincorporated Communities
Within or Contiguous to the Sphere of Influence.
This determination was added by Senate Bill (SB) 244, which became effective in January
2012. A disadvantaged community is defined as an inhabited community of 12 or more
registered voters having a median household income of 80 percent or less than the
statewide median household income.
3. Capacity and Infrastructure
Also discussed is the adequacy and quality of the services provided by each agency,
including whether sufficient infrastructure and capital are in place (or planned for) to
accommodate planned future growth and expansions. This is detailed in Chapter 4 for each
provider.
4. Financing
This determination provides an analysis of the financial structure and health of each service
provider, including the consideration of rates and service operations, as well as other
factors affecting the financial health and stability of each provider. Other factors considered
include those that affect the financing of needed infrastructure improvements and
compliance with existing requirements relative to financial reporting and management.
5. Shared Facilities
Opportunities for districts to share facilities are described throughout this MSR. Practices
and opportunities that may help to reduce or eliminate unnecessary costs are examined,
along with cost avoidance measures that are already being utilized. Occurrences of
facilities sharing are listed and assessed for more efficient delivery of services.
6. Government Structure and Local Accountability
Accountability and governance are described in Chapter 4 for each provider. This
subsection addresses the adequacy and appropriateness of existing boundaries and spheres
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of influence and evaluates the ability of each service provider to meet its demands under
its existing government structure. Also included is an evaluation of compliance by each
provider with public meeting and records laws (Brown Act).
7. Other Matters Related to Effective or Efficient Service Delivery, as Required by
Commission Policy
Marin LAFCo has specified the sustainability of local agencies as a priority matter for
consideration in this MSR. Sustainability is not simply about the environment but can
consider the overall sustainability of an organization and its ability to continue to provide
services efficiently for many years to come. Sustainable local governments that take
practical steps to protect the environment and our natural resources through land
conservations, water recycling and reuse, preservation of open space and opting to use
renewable energy are the key players in determining the sustainability of the region.
In addition, other matters for consideration could relate to the potential future SOI
determination and/or additional effort to review potential advantages or disadvantages of
consolidation or reorganization.
A summary of determinations regarding each of the above categories are provided in Chapter 12
of this document and will be considered by Marin LAFCo in assessing potential future changes
to an SOI or other reorganization.
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3.0 SERVICES EVALUATION AND DETERMINATIONS
3.1 REGIONAL MUNICIPAL SERVICES
In conducting a service review, the commission shall comprehensively review the agencies that
provide the identified service or services within the designated geographic area. Services reviewed,
on a regional scale, provide LAFCo with a broader understanding of service adequacy and
efficiency. Evaluations consider service levels, service demand, financing challenges and
opportunities, infrastructure needs and deficiencies, opportunities for shared facilities, and
governance structure options. The commission may assess various alternatives for improving
efficiency and affordability of infrastructure and service delivery within and contiguous to the
sphere of influence, including, but not limited to, the consolidation of governmental agencies.
Written determinations address mandatory factors required under the statute.
Regional Considerations for Fire & Emergency Response Services
Fire protection and emergency response services in the San Rafael region are provided by the City
of San Rafael, Marinwood CSD, and the County of Marin (CSA No. 13 and CSA No. 19). The
ability to provide service, funding mechanisms and complex jurisdictional boundaries require
these agencies to closely work together to meet the service needs of the communities in the study
area. Several key issues have been identified as a part of this review process:
Regional Collaboration and Sustainable Fire Services
Marin County operates no fire stations in the San Rafael region and contracts with other local fire
service providers to meet the service needs of the unincorporated neighborhoods within CSAs No.
13 and No. 19. They contract for CSA No. 13 service with Marinwood CSD and for CSA No. 19
service directly with the City of San Rafael. San Rafael’s service partnerships with fire-service
providing agencies in the unincorporated San Rafael region designate the city department to be the
primary responder both within the city limits and in all areas of CSA No. 19. Additionally,
Marinwood CSD (and therefore also CSA No. 13) shares San Rafael’s Fire Chief and utilizes city
administrative capacity, training, supplies, and response support.
With the San Rafael Fire Chief serving as the de facto chief for all four service jurisdictions, the
City of San Rafael, in many ways, is functionally the fire service provider for the entire study area.
Such an arrangement allows for continuous service throughout the study area in the near future;
however, continued sustainability should be addressed through regional collaboration and
consideration of long-term agency reorganization options. Substantial planning activity should
occur at both the individual agency level and through regional collaboration of all fire-service
providing agencies in the study area. A regional fire-services working group could be established
with representation from each agency, other local stakeholders, and local decision-makers to lead
this process.
It would be beneficial to further study whether a structural reorganization of the fire service
providers into a single agency would improve the sustainability and efficiency of fire services to
the entire region. Such a reorganization could be achieved through the formation of a Joint Powers
Authority or the creation of a singular regional fire agency. A Joint Powers Authority would be a
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new, separate government organization created by the member agencies to provide fire service in
place of those agencies. The benefit of this type of agreement is the unification of fire responsibility
into one service provider, while still retaining the original member agencies should they need to
independently provide services to their jurisdiction in the future.
In contrast, the formation of a singular regional fire providing agency, through a merger or a new
district formation, would provide a singular fire service organization providing ensured long-term
cohesiveness of services to the entire region. Additionally, this would reduce the strain of
providing a complex and increasingly more costly service on smaller agencies, such as Marinwood
CSD.
Sustainability of Contractual Agreements
Historically, Marinwood CSD’s fire service agreements with other local agencies have constituted
a significant portion of their fire service revenue. Both the contract with CSA No. 13 and the
contract with City of San Rafael have relatively short-term termination periods. CSA No. 13 is
subject to renewal annually, and San Rafael’s may be terminated with a 90-day notice. While both
contracts could ostensibly be continued indefinitely, should either be terminated, Marinwood CSD
would have very little lead time as a government agency to establish other service options. Staffing,
budget, and service ability would potentially be challenging as was historically the case and
documented in the 2006 San Rafael Regional MSR. In addition to engaging in strategic and long-
term planning activities, the District may consider extending the notice of termination time period
for its contracts to provide it with more time to react and plan for significant changes to its budget
and service ability.
Fire Contracts Outside Agency Boundaries
Effective January 1, 2016, G.C. Section 56134 requires that LAFCo approve fire protection
contracts or agreements for the exercise of new or extended fire protection services outside a public
agency’s jurisdictional boundaries. Marin LAFCo has defined that such a contract is eligible for
Commission review and approval if it:
a) Transfers responsibility for providing services in more than 25 percent of the area within the
jurisdictional boundaries of any public agency affected by the contract or agreement; or
b) Changes the employment status of more than 25 percent of the employees of any public agency
affected by the contract or agreement; or
c) A contract or agreement for fire protection services outside a public agency's jurisdictional
boundaries that, in combination with other contracts or agreements, would produce the results
described in either threshold (a) or (b) above.
Contracts or agreements for fire protection services entered into before December 31, 2015, or
recipient of LAFCo approval after December 31, 2015, do not require separate LAFCo approval
due to renewals or renegotiated terms so long as they do not constitute a new 25 percent change in
service area or employment status per the above conditions.
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Except for the specific situations exempted by G.C. Section 56134, a public agency may provide
new or extended services pursuant to a fire protection contract that meets the above-defined
thresholds only if it first requests and receives written approval from the Commission.
Marinwood CSD, the City of San Rafael, Marin County, and any other fire-service provider in the
region who enters into a contract to provide fire-services beyond its jurisdictional boundaries
should consult with the Marin LAFCo Executive Officer to determine whether any current fire
protection contracts or agreements are subject to Commission review and approval, if they have
not done so already.
Regional Considerations for Parks and Recreation Services
Parks and recreation remain an integral part of the communities in the San Rafael region. The
region has ample opportunity for recreation and better serve residents by considering better
funding mechanisms, conducting long-term planning, and researching alternative governance
structures and boundaries.
Funding
A lack of adequate park services funding in the region is leading to aging facilities, some of which
are in disrepair. The City of San Rafael maintains many parks that are heavily utilized and show
significant wear and tear, but there is currently not enough funding to cover CIP projects. CSA
No. 18 also lacks adequate funding for maintenance costs. Marinwood CSD currently has a
sustainable budget but has expressed interest in providing additional space for programs and needs
to repair its maintenance facility.
CIPs and long-range budget considerations could help identify future financial needs for the
agencies. Special assessments and consideration of boundary changes could provide better long-
term revenue sources allowing for a higher level of service for communities in the region. Grants
could also help provide funding for needed improvement projects.
Long-Term Planning
The City of San Rafael maintains a CIP that identifies needed projects for parks within the city.
Other agencies, such as CSA No. 18, could benefit from similar plans. This would enable the
agencies to plan for future financial needs and research potential funding options. Additional long-
term planning considerations include sea level rise and conservation measures.
According to the Marin Shoreline Sea Level Rise Vulnerability Assessment, several City Parks
are susceptible to Sea Level Rise including Pickleweed Park and Starkweather Shoreline Park.
Other recreation areas such as the San Rafael Canal and Gallinas Creek could see tidal flooding.
Options are being considered to protect park and recreation areas from inundation and should be
considered when conducting long-term planning.
The City has already outlined several conservation measures to address climate change. In the San
Rafael 2019 Climate Change Action Plan, they recommend replacing high water use plants and
inefficient irrigation systems with water-efficient landscaping, along with investigating synthetic
turf that uses organic infill for ball fields and parks to reduce water use, herbicide use, and
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maintenance costs. These steps should also be considered by other agencies that provide park and
recreation services.
Marin County Recreational Governance
Marin County owns and is responsible for recreational services to the Upper Lucas Valley open
space area within its jurisdictional boundaries. Adjacent to the area on three sides are other
properties within the responsibility of Marin County Parks and Open Space. Together, CSA No.
13 and Marin County Park and Open Space’s Lucas Valley preserve are functionally one
continuous area, even though they are not managed by the same County departments. Currently,
the County indicates that CSA No. 13’s open space is not managed as a part of the Park’s system
and does not receive the same management activity from the County as the adjacent preserve area.
The County noted that funding for managing the CSA No. 13 open space area was the primary
challenge to this. To better align with public perception and ensure recreation service
responsibilities are consistent within its responsibility areas, the County should explore options to
include CSA No. 13’s Upper Lucas Valley open space in its Parks and Open Space management
system.
Boundaries
Boundary changes could also help provide a higher level of service to residents of CSA No. 18.
The CSA operates within a zone of benefit in the existing boundary that excludes one of their park
facilities. The agency is currently looking at alternate boundary and funding options including
reducing the current boundary to an extent that would include all the parks and asking residents
outside of the current zone of benefit to vote on special assessment to fund park services.
Regional Considerations for Police Services
The City of San Rafael Police Department serves residents within and directly adjacent to the City’s
boundary. Unincorporated areas of the San Rafael region are served by the Marin County Sheriff
Office from their patrol unit’s Main Station in San Rafael and the California Highway Patrol.
The City of San Rafael Police Department maintains a full-service police force and runs a range of
community engagement efforts. The department has an annual budget of $25 million, which
accounts for a third of the City’s General Fund budget. The City reports increasing costs for services
that are not matched by current revenue sources. This has the potential to deplete the General Fund
reserves unless additional funding resources are considered.
Regional Considerations for Roads & Street Lighting Services
Road maintenance outside of the City of San Rafael is the responsibility of Marin County. Major
access roads to unincorporated areas include North San Pedro Road in Sana Venetia and Lucas
Valley Road in Marinwood. Major state roads include Highway 101 and Interstate 580 which are
maintained by Caltrans. Street lights in the region are managed by the Marin General Services
Authority.
Local neighborhood organizations also provide median maintenance in the region. The Santa
Venetia Neighborhood Association has a volunteer Board of Directors that oversees activities
within the neighborhood. There is a sub-committee and special fund for median strip maintenance
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in certain areas of the community. In addition to the fund, volunteers from the community
participate in work days once a month to maintain median and curb landscaping. This association
provides a valuable service to the community and has the opportunity to work closely with County
staff to convey the needs and desires of the community.
Funding
For street, road, and lighting needs throughout the region, there appears to be a difficulty with
revenue sources. The City of San Rafael maintains a large network of streets and street lighting;
however, there is not enough funding to support all necessary CIP projects. The Marinwood CSD
currently has enough funding to cover costs; however, it is projected that expenditures for services
will quickly out pace revenues. CSA No. 9 is part of a larger county maintenance contract with a
private landscaping firm but does not generate enough revenue to cover rising maintenance costs.
The residents of that area have also indicated a desire for better signage and maintenance.
The basic property tax and special taxes in place to provide revenue for the different agencies fall
short of anticipated expenditures. In areas where residents wish to see more maintenance to
provide a higher level of service, such as in CSA No. 9 - Northbridge, increased funding and/or
volunteer efforts will be needed.
Regional Considerations for Dredging Services
Dredging takes place in navigable canals, creeks, and rivers in the region. CSA No. 6 – Gallinas
Creek was formed in order to provide dredging services to maintain boating access for a small
portion of the community in Santa Venetia. Additional dredging in the region is conducted by the
US Army Corps of Engineers, Golden Gate Bridge Highway, and Transportation District, and local
marina and user associations.
Dredging has not occurred in Gallinas Creek since 1994. Residents suggest that more frequent
dredging would be beneficial and desirable. While regular maintenance dredging would simplify
the permitting process, current funding mechanisms do not provide enough revenue for this. Cost
sharing with restoration projects that can utilize the dredged sediment in their restoration activities,
such as with McInnis Park, could help ease costs for regular maintenance of the creek channel.
Additional long-term considerations include the potential for sea level rise. The Marin Shoreline
Sea Level Rise Vulnerability Assessment identifies Gallinas Creek as susceptible. With 10 inches
of sea level rise, impacts could be seen to shoreline edges and with 20 inches of sea level rise, the
area could see significant tidal flooding.
Long-term planning could be beneficial for CSA No. 6. A long-range planning document that
outlines a maintenance dredging schedule and takes into consideration potential sea level rise
complications would provide the CSA with a better understanding of future funding needs. In
order to cover funding needs, the CSA may want to consider alternative funding sources such as a
special assessment, cost sharing with restoration projects, and grants.
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3.2 MUNICIPAL SERVICE REVIEW DETERMINATIONS
1) Growth and population projections for the affected area.
a) Projected growth is expected to be moderate. The County’s population is expected to grow
approximately 13% by 2040, and the City of San Rafael population growth of
approximately 19% is expected in the same time period (an additional 7,900 people). This
is the highest projected population growth rate for the entire County.
b) The expected population and growth rate in unincorporated areas around the City of San
Rafael vary depending on the area. General Plan build-out capacity for some areas, such as
St. Vincent’s/Silveira, may have significant future development potential, subject to
additional planning, entitlement, and development in the County. The fully surrounded
island pockets within San Rafael, except for Upper Sun Valley, are predominantly built
out, with little relative future development potential.
2) The location and characteristics of any disadvantaged unincorporated communities
within or contiguous to the sphere of influence.
a) Within the Study Area, several census tracts covering the Canal neighborhood of San
Rafael meet the disadvantaged community criteria. However, given this neighborhood is
entirely within the San Rafael city limits, it does not qualify as a DUC. No other
communities within the Study Area have been identified as disadvantaged.
3) Present and planned capacity of public facilities, adequacy of public services, and
infrastructure needs or deficiencies including needs or deficiencies related to sewers,
municipal and industrial water, and structural fire protection in any disadvantaged,
unincorporated communities within or contiguous to the sphere of influence.
a) As noted above, there are no unincorporated communities within the Study Area that have
been identified as disadvantaged.
4) Financial ability of agencies to provide services.
a) The City of San Rafael, Marinwood CSD, and the County Service Areas all prepare annual
budgets and prepare financial statements in accordance with established governmental
accounting standards. The City Council, CSD Board, and County Board of Supervisors
may amend their budgets by resolution during the fiscal year in order to respond to
emerging needs, changes in resources, or shifting priorities. Expenditures may not exceed
appropriations at the fund level, which is the legal level of control.
b) The City Manager, CSD General Manager, and County Administrative Officer are
authorized to transfer budgeted amounts between accounts, departments or funds under
certain circumstances; however, the City Council, CSD Board, and County Board of
Supervisors must approve any increase in the operating expenditures, appropriations for
capital projects, and transfers between major funds and reportable fund groups. Audited
financial statements are also prepared for the City, CSD, and County by independent
certified public accounting firms.
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c) While additional revenues are needed to provide services and maintain infrastructure
covered in this MSR, the agencies meet their financial responsibilities to provide services.
5) Status of, and opportunities for, shared facilities.
a) Currently, the fire service providing agencies within the study area maintain a high -level
of shared services. The City of San Rafael and CSA No. 19 share a facility as a part of their
shared fire service agreement. Further opportunity to share fire service facilities should be
explored by Marinwood CSD, Marin County, and the City of San Rafael.
6) Accountability for community service needs, including governmental structure and
operational efficiencies.
a) Continued sustainability of fire services in the San Rafael region should be addressed
through future planning and consideration of long-term reorganization options. Substantial
planning activity should occur at both individual agency level and through a regional
collaboration involving all fire-service providing agencies in the study area. A regional
fire-services working group could be established with representation from each agency,
other local stakeholders, and local decision-makers to lead this process. Such a working
group could consider options to help ensure the sustainability of fire services in the region,
including but limited to revenue needs, the efficiency of services and costs to communities,
and reorganization options.
b) Marinwood CSD may consider extending the notice of termination time period for its fire-
service contracts with other agencies to provide it with more time to react and plan for
significant changes in the event a contract is terminated.
c) CSA No. 6 may consider a long-term planning document outlining maintenance dredging
and establishing additional funding sources for regular maintenance dredging such as
grants, cost-sharing, and/or a special tax.
d) Marin County should explore options to include CSA No. 13’s Upper Lucas Valley open
space in its Parks system management in order to better align with public perception and
ensure recreation service responsibilities are consistent within its areas of responsibility.
e) Continuing periodic Recreation Needs surveys will help guide the City of San Rafael
recreation services priorities.
f) Implementing the 2019 City Climate Change Action Plan measures to reduce municipal
water use should be considered by all park and recreation service providers in the region.
g) Plans to protect low lying park and recreation areas from sea level rise inundation should
be prepared and implemented by applicable service in the study area.
7) Any other matter related to effective or efficient service delivery, as required by
commission policy.
a) Marinwood CSD, the City of San Rafael and Marin County all appear to be utilizing fire-
services contracts applicable to LAFCo Commission review per G.C. Section 56134 and
should consult with Marin LAFCo Executive Officer to ensure contract renewals and
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renegotiated terms do not require further Commission action, if they have not done so
already.
b) Within and adjacent to the City of San Rafael are communities substantially surrounded by
City jurisdiction and therefore considered to be “unincorporated islands.” Marin LAFCo
encourages unincorporated island annexations to the City of San Rafael when there is
resident interest. Whenever applicable, Marin LAFCo will consider making amendments
to city annexation proposals involving affected lands to further reduce and/or eliminate
islands to provide more orderly boundaries and cost-efficiencies.
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4.0 REGIONAL SETTING
The MSR study area consists of Marin County’s northern central 101 corridor serving the San
Rafael, Marinwood, San Venetia, and Lucas Valley communities. Eight public agencies, including
six County Service Areas (CSA), are included (See Figure 4.1). Not evaluated but located within
the study area are several agencies that have recently been evaluated by Marin LAFCo in prior
MSRs (See Table 4.2).
Many distinct communities lie within and adjacent to the San Rafael Study Area. These
communities are served by a number of municipal service providers that have been established
over time to meet local conditions and needs. While jurisdictional boundaries define the
geographical extent of an agency’s authority and responsibility to provide services, there are
several instances of overlapping boundaries and service responsibilities in the Study Area. These
service arrangements and relationships for providing fire protection, parks and recreation, open
space management, and other municipal services within the Study Area are described in this report.
Within the Study Area, all incorporated and unincorporated communities are within the current
boundary or service area of a fire protection and emergency medical service provider. The only
developed areas not provided sanitary sewer service are some parcels in unincorporated portions
of Santa Venetia, Country Club, and Bayside Acres. The Marin Municipal Water District provides
water for domestic use and fire-flow to the entire San Rafael Study Area (except some areas west
on Lucas Valley Road).
The City of San Rafael provides a full range of city services and community facilities within the
city’s corporate limits. As the largest incorporated city in Marin, San Rafael is the urban center
and county seat for the County of Marin. The City encompasses approximately 14,380 acres (22.5
square miles) within its boundary. The City’s sphere of influence (SOI) includes an additional 18.5
square miles and includes several pockets of unincorporated territory that are surrounded or
substantially surrounded by the city. These unincorporated islands are discussed in more detail
below.
Several County Service Areas (CSAs) have been established to fund services within and adjacent
to San Rafael. These CSAs are governed by the Marin County Board of Supervisors and
administered by County staff. CSAs provide a means of funding expanded service levels in areas
where residents are willing to pay for the extra service. For instance, CSA No. 6 provides Gallinas
Creek channel maintenance dredging for navigation purposes; CSA No. 9 provides parkway
(median strip) pedestrian easements and landscape maintenance for the unincorporated properties
in the Civic Center and Santa Venetia neighborhoods; CSA No.18 provides parks and recreation
facilities and services to the incorporated and unincorporated areas of northern San Rafael; and
CSA No. 19 provides fire protection services for the unincorporated island areas through contract
with the City of San Rafael Fire Department.
There are also several agencies that provide open space management and other services to the
northern portion of the Study Area. CSA No. 23 manages open space lands within the incorporated
Terra Linda community, which is entirely within the San Rafael city limits. Marinwood CSD is an
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independent special district governed by an elected board that provides open space management,
parks and recreation, street lighting, and fire protection services to the unincorporated community
of Marinwood and surrounding areas. Notably, Marinwood CSD has two distinct service areas that
are separated by CSA No. 13. These two service areas include various urbanized communities
including Marinwood, Lucas Valley, Casa Marinwood, Roundtree, Miller Creek Gardens, Miller
Creek Ranch, Lucas Valley Estates, and Las Gallinas Ranch. CSA No. 13 provides open space and
fire protection services to the Upper Lucas Valley territory between the two CSD areas. This
jurisdictional configuration ensures fire-related and open space services are available to the whole
region, whereas, parks and recreation and street lighting are only provided to areas within the
Marinwood CSD boundaries.
West of San Rafael and outside the Study Area lies the incorporated Town of San Anselmo to the
northwest and the Town of Ross to the southwest. Both cities have boundaries that partially adjoin
the City of San Rafael. Also outside the Study Area is the Sleepy Hollow Fire Protection District
(Sleepy Hollow FPD), which provides fire-related services to the unincorporated Sleepy Hollow
community. These communities will be evaluated in a separate regional MSR.
South of San Rafael and also outside the Study Area lies the City of Larkspur and the
unincorporated community of Kentfield, the latter of which is served by Kentfield Fire Protection
District (Kentfield FPD). Again, these communities will be evaluated in an upcoming regional
MSR. Both agency boundaries also partially adjoin the San Rafael city limits. Notably, the City of
Larkspur’s city boundary and SOI overlap the City of San Rafael’s SOI in a small region of about
4.5 acres in the Old Quarry Road North area.
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Figure 4-1: San Rafael Regional Services Map
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Table 4-1: San Rafael Study Area Service Providers Overview
Evaluated in this Year Area within LAFCo
Agency Services Provided Agency SOI
MSR? Formed Agency Boundary Considerations
Police
Fire
Unincorporated
Paramedic 11,820 acres
City of San Rafael 14,380 acres Islands,
Yes 1874 Parks & Recreation (18.5 sq. mi.)
Charter City (22.5 sq. mi.) Extraterritorial
Road Maintenance & Not coterminous
Services
Construction
Flood Control
Fire Protection Extraterritorial
1,464 acres 2,708 acres
Marinwood CSD Parks and Recreation services to CSA
Yes 1955 (2.3 sq. mi.) (4.2 sq. mi.)
Government Code 6100 Open Space Management 13, which is not
Not Coterminous
Street Lighting in SOI
CSA # 6 (Gallinas Creek) 309 acres Coterminous with
Yes 1964 Channel Maintenance
Government Code 25210, et seq. (0.48 sq. mi.) District boundary
CSA #9 (Northbridge) Parkway (median strip) 44 acres
Yes 1965 Coterminous
Government Code 25210, et seq. Landscape Maintenance (0.07 sq. mi.)
Overlapping
CSA #13 (Upper Lucas Valley) Fire Protection 624 acres Coterminous with
Yes 1967 service
Government Code 25210, et seq. Open Space Management (1 sq. mi.) District boundary
responsibilities
CSA #18 (Las Gallinas) 3,914 acres Coterminous with
Yes 1973 Parks & Recreation
Government Code 25210, et seq. (6.1 sq. mi.) District boundary
CSA #19 (San Rafael Serves
1,699.7 acres Coterminous with
unincorporated area) Yes 1974 Fire Protection unincorporated
(2.7 sq. mi.) District boundary
Government Code 25210, et seq. islands
CSA # 23 (Terra Linda) 2,350 acres Coterminous with Consider
Yes Open Space Management
Government Code 25210, et seq. (6.7 sq. mi.) District boundary Consolidation?
No, see LAFCo's
Las Gallinas Valley Sanitary Wastewater
Central Marin
District 1955 including collection, treatment, - - -
Wastewater Services
Health & Safety Code 6400 and disposal
Study (2017)
No, see LAFCo's
San Rafael Sanitation District Central Marin Wastewater
1949 - - -
Health & Safety Code 6400 Wastewater Services collection only
Study (2017)
CSA #31
No, see LAFCo's MSR
(unincorporated Marin County) 1994 Fire Protection - - -
Schedule
Government Code 25210, et seq.
Marin County Parks and Open Open Space Management Dependent
-
Space District Parks & Recreation District of County
Central Marin Sanitation No, see LAFCo's
Wastewater
Agency Central Marin
1979 including collection, treatment, - - -
Joint Powers Authority Wastewater Services
and disposal
Government Code 6500 Study (2017)
No, see LAFCo's
Marin Municipal Water District Central Marin Water (domestic)
1914 - - -
Government Code 6100 Wastewater Services Wastewater (recycling only)
Study (2017)
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4.1 UNINCORPORATED ISLANDS
The State Legislature has recognized that pockets of unincorporated territory which are surrounded
or substantially surrounded by incorporated cities, typically known as “islands,” create governance
and service delivery inefficiencies and deficiencies. Marin LAFCo’s Unincorporated Island policy
encourages annexations of islands to cities to further reduce and/or eliminate islands to provide
more orderly local governmental boundaries and cost-efficiencies. The City of San Rafael also
addresses already developed unincorporated islands in its General Plan, noting that annexation of
such lands “should be dependent on resident interest, the cost/revenue implications of the provision
of city services to the area, and the availability of city services”2.
There are six unincorporated islands within the City of San Rafael, including Bayside Acres,
California Park, Country Club, Los Ranchitos, Point San Pedro, Santa Venetia, and Upper Sun
Valley. Additionally, the Lucas Valley region between the two separate boundary areas of the
Marinwood CSD and the St. Vincent/Silveira region east of Marinwood merit consideration as
islands. Each of these neighborhoods are described in more detail in the discussion below (see
Table 4.2).
Bayside Acres
Bayside Acres is an unincorporated subdivision along Point San Pedro Road, primarily developed
with large single-family homes on hillside lots. Homes located west of Point San Pedro and along
the Bay are developed on smaller lots. It is a contiguous island and accessible by city streets. A
few Bayside Acres properties have been annexed into San Rafael over the years. This area is about
149 acres in area and is considered one of San Rafael’s less-dense neighborhoods.
The Bayside Acres subdivision was created from a ranch in the 1910s. The Bayside Acres
Homeowners Association (HOA) currently serves the subdivision. The HOA was formed when
the subdivision was established and all parcel owners were required to be members. However, the
mandatory requirement was dropped and it became voluntary in 19573.
Bayside Acres is currently receiving city fire protection services through CSA No. 19 and
wastewater through San Rafael Sanitation District. However, there are some parcels not hooked
up to the wastewater system, and instead utilize on-site septic systems. The County Sheriff office
provides law enforcement services, with the San Rafael police department responding to calls as
needed.
The San Rafael General Plan 2020 notes that growth in this unincorporated area is not expected;
however, the annexation of more properties into the city will remain a possibility4.
2 San Rafael General Plan 2020 / Land Use, Pg. 18.
3 Bayside Acres Home Owners Association. “A History”, accessed 1/16/18. https://baysideacres.org/
4 San Rafael General Plan 2020. Pg. 87
Marin LAFCo 23 San Rafael Region
Final MSR August 2019
Table 4-2: Unincorporated Territory in San Rafael Study Area
Fire/Emergency
Unincorporated, Substantially Medical
Unincorporated Area Acreage Surrounded Island? Development Potential Land Use Water Wastewater Response Police/Sheriff
CSA #19 /
Bayside Acres 149 Yes, 100% surrounded by San Rafael Predominantly built-out Residential only MMWD San Rafael SD County
San Rafael
Predominantly built-out, some
development potential CSA #19 /
California Parks 99 Yes, 75% surrounded by San Rafael Residential only MMWD San Rafael SD County
remaining on the Scheutzen San Rafael
parcels
CSA #19 /
Country Club 298 Yes, 100% surrounded by San Rafael Predominantly built-out Residential only MMWD San Rafael SD County
San Rafael
Residential, Parks and Las Gallinas CSA #19 /
Los Ranchitos 230 Yes, 100% surrounded by San Rafael Predominantly built-out MMWD County
Recreation Valley SD San Rafael
Significant future
development potential, but
dependent on additional Mineral Resource,
Point San Pedro (Quarry) 303 Yes, 100% surrounded by San Rafael MMWD None. CSA #31 County
planning and development Reclamation Area
under Marin County General
Plan
Residential,
Las Gallinas
Santa Venetia 1,220 Yes, 50% surrounded by San Rafael Predominantly built-out Commercial, and Open MMWD CSA #19 County
Valley SD
Space
Yes, shares boundaries with both San Undeveloped open space
CSA #31 /
Upper Sun Valley 148 Anselmo and San Rafael. Both cities' designated for multi-family Residential only MMWD San Rafael SD County
San Rafael
SOIs overlap part of island area residential development
No, primarily surrounded by Residential, Open CSA #13 /
Lucas Valley 3,322 MMWD None. County
Marinwood CSD Space Marinwood CSD
Significant future
development potential, but
No, developed area within dependent on additional Agricultural and Env Las Gallinas CSA #31 /
St. Vincent's/Silveira 1,929 MMWD County
Marinwood CSD's SOI planning and development Resource Valley SD Marinwood CSD
under Marin County General
Plan
Residential,
No, shares approx. 25% of boundary Las Gallinas
Marinwood 1,464 Commercial, Open MMWD Marinwood CSD County
with San Rafael Valley SD
Space
Marin LAFCo 24 San Rafael Region
Final MSR August 2019
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California Park
California Park is an unincorporated neighborhood located east of the Bret Harte neighborhood in
the southern portion of the San Rafael area. Though substantially surrounded by incorporated San
Rafael, this region’s southern border is the City of Larkspur.
The 99-acre California Park neighborhood consists of single-family homes and apartments. It
includes the undeveloped Scheutzen Subdivision, which is located along Auburn Street and
consists of very small lots within a wetland area. The San Rafael General Plan 2020 notes that this
neighborhood has some development potential remaining on the Scheutzen parcels5.
California Park is currently receiving city fire protection services through CSA No. 19 and
wastewater through San Rafael Sanitation District. The County Sheriff office provides law
enforcement services, with the San Rafael police department responding to calls as needed.
Initial consideration has been given to this area for annexation into the City of San Rafael due to
expressed landowner interest. However, Marin LAFCo considers resident interest and cost of
providing services in annexation proposals.
Country Club
The Country Club neighborhood is located within San Rafael east of Highway 101 off of Point
San Pedro Road. It is a contiguous island exclusively accessible from city streets. The
neighborhood features large single-family homes on hillside lots, with unincorporated portions
along the San Rafael Creek that are developed with single-family homes and multi-family
development. Consisting of 298 acres, with an estimated 300 homes, as an older, fully developed
neighborhood, minimal future growth is anticipated.
This neighborhood currently receives city fire protection services through CSA No. 19 and through
San Rafael Sanitation for sewer. However, the residences in the area predominantly utilize on-site
septic systems. The County Sheriff office provides law enforcement services, with the San Rafael
police department responding to calls as needed. The San Rafael General Plan 2020 notes that
annexation of some properties into the City may occur consistent with LAFCo policies6.
Los Ranchitos
Los Ranchitos is located west of Highway 101 and north of San Rafael Hill. It is a contiguous
island exclusively accessible from city streets. The unincorporated 225-acre Los Ranchitos
community features single-family homes on 1-acre minimum lots zoned for agricultural uses
including horses and other livestock. The current Marin County General Plan allows low-density
development, designating the neighborhood as single-family residential at 1 unit per 1 to 5 acres,
and planned residential at 1 unit per 1 to 10 acres. The community is nearly completely built out.
The hilly terrain of Los Ranchitos, near the ridgeline, is under the County’s Ridge and Upland
Greenbelt (RUG) overlay. The Marin Countywide Plan designates these areas as “visually
5 San Rafael General Plan 2020. Land Use (NH47), Pg. 18.
6 San Rafael General Plan 2020. pg. 100, County Club callout box.
Marin LAFCo 25 San Rafael Region
Final MSR October 2019
prominent ridgelines” and are considered “community separators”7,8. Preservation is encouraged
in these areas to help maintain contiguous greenbelt areas.
The Los Ranchitos Improvement Association, established in 1952, represents the homeowners and
residents of the Los Ranchitos community. The LRIA mission is to maintain the spirit of the
neighborhood and to help its residents preserve their very special way of life.9 The LRIA has
continually expressed interest in preventing annexation to the City of San Rafael, citing that Los
Ranchitos acts as an urban separator between the City and the Terra Linda Valley/Sleepy Hollow
Open Space. A 2015 proposal to LAFCo clearly indicates LRIA’s objective to maintain Los
Ranchitos as an unincorporated community separate from the City of San Rafael. In 2018 as the
Commission was initiating the San Rafael Area MSR, the LRIA leadership met with staff to
reiterate their interest in not being incorporated into the City of San Rafael. Additionally, the San
Rafael General Plan 2020 does not identify any specific future vision for this area.
Point San Pedro
Point San Pedro is a 300-acre unincorporated area located on the east side of Highway 101 down
Point San Pedro Road along the San Pablo Bay Peninsula. It is contiguous with the city on one
side with the rest of the area being bordered by San Pablo Bay. The primary uses in the area are
the San Rafael Rock Quarry and McNear’s Brickyard site. Both are currently operational;
however, the Marin County General Plan designation intends for the ultimate reclamation of the
San Rafael Rock Quarry and McNear’s Brickyard site at the time the quarrying operations cease.
Currently, a small portion of the site’s northeast quadrant is undergoing reclamation, while
operations continue.
The reclamation plan allows for mining operations through 2024. However, in December 2018 the
quarry filed an application with the County to amend its reclamation plan to allow mining through
the end of 203910. The future of the Quarry site is now a matter for consideration by the Marin
County Board of Supervisors, as well as the City of San Rafael in developing its 2040 General
Plan. The Marin County General Plan assumes that at such time as reclamation of the site occurs,
it would be annexed to the City of San Rafael. However, should annexation not take place, the
General Plan contemplates development under the County’s jurisdiction through a Specific or
Master Plan to determine residential densities, commercial floor area, and habitat protection areas.
In general, uses would be primarily residential, a marina, and limited supporting commercial11.
Currently, fire services are provided by CSA No. 31. The County Sheriff office provides law
enforcement services, with the San Rafael police department responding to calls as needed.
Santa Venetia
Santa Venetia is a 1,200-acre neighborhood of over 1,600 homes centrally located in
unincorporated Marin County immediately to the east of Highway 101 and is bordered by the City
of San Rafael to the north, south, and west. The community is surrounded by a variety of natural
7 Marin GeoHub, Ridge and Upland Greenbelt, August 7, 2019.
8 Marin Countywide Plan, Glossary, “Community Separator”, pg. 5-27 and Map 2.6 Los Ranchitos Land Use Policy Map.
9 http://www.losranchitos.org/
10 Point San Pedro Road Coalition. Quarry FAQs. Accessed January 28, 2019. https://sprcoalition.org/quarry/faq/
11 Marin County General Plan pg. 3-45
Marin LAFCo 26 San Rafael Region
Final MSR October 2019
features and open space areas, primarily composed of County managed open space and China
Camp State Park. Although primarily residential in character, the community supports several
small commercial areas as well as educational and religious uses.
Santa Venetia has its own community plan, adopted by the County in 2017. Much of Santa Venetia
was built out by the 1980s and the potential for additional development in the community is
limited. Annexation is not addressed in Santa Venetia’s Community Plan, nor San Rafael’s
General Plan 2020; However, sea-level rise12, seismic hazards, and urban services costs associated
with area infrastructure conditions suggest annexation to be unlikely in the near future.
The Santa Venetia neighborhood is currently receiving fire protection services through CSA No.
19. Santa Venetia receives wastewater service from Las Gallinas Valley Sanitary District.
St. Vincent’s/Silveira
The St. Vincent’s and Silveira area consists of approximately 1,110 acres east of Highway 101 in
the unincorporated area of the County between the cities of San Rafael and Novato. The area
includes two properties: the 770-acre Catholic Youth Organization/St. Vincent’s School for Boys
and the 340-acre Silveira Family ranch. There are a number of protected resource areas on the St.
Vincent’s and Silveira lands, which include: tidelands; diked baylands, of which a portion is owned
by the Las Gallinas Valley Sanitary District and used for wastewater ponds and irrigation; Miller
Creek and its riparian corridor; lands within the 100-year floodplain; and hills leading up to
Pacheco Ridge at the northern boundary of the site13.
The Marin Countywide Plan, first adopted in 1973, effectively designated urban reserve area
properties to be considered for suburban or urban development upon eventual annexation to the
City of San Rafael. In 2003, the San Rafael City Council decided not to annex the properties and
submitted a request to LAFCo to remove these lands from the City’s SOI. In June 2006, LAFCo
removed the properties from San Rafael’s SOI based on the isolation of these areas from the city’s
existing public safety facilities and due to limited street access between these areas and the city. 14
Today the area serves as a physical and visual separator between the cities of Novato and San
Rafael. This area is currently in institutional and agricultural use. The County of Marin General
Plan provides for urban development of a portion of St. Vincent’s/Silveira west of the Northwest
Pacific rail line and for continued urban use, which is now within the Marinwood CSD’s SOI.
The St. Vincent’s/Silveira neighborhood is currently receiving services through CSA No. 31 via a
contract with Marinwood CSD for fire protection. The County Sheriff office provides law
enforcement services, with the San Rafael police department responding to calls as needed.
Upper Sun Valley
The unincorporated portion of the Sun Valley neighborhood centers around the Mount Tamalpais
Cemetery. The cemetery itself was incorporated into San Rafael in 2010, which left the remaining
unincorporated Sun Valley territory within San Rafael’s SOI split into two small islands, one north
12 Marin County General Plan pg. 2-80
13 Marin County General Plan pg. 3-224
14 Marin LAFCo Resolution 06-06, Resolution Amending the Sphere of Influence of
The City of San Rafael.
Marin LAFCo 27 San Rafael Region
Final MSR October 2019
and one south of the cemetery. Additional unincorporated territory is contiguous with the above-
mentioned southern Sun Valley island; however, it is included within San Anselmo’s SOI.
The southern island (within San Rafael’s SOI) is comprised of two parcels, both of which are
zoned multi-family residential but are currently undeveloped. The northern island consists of 6
primarily undeveloped parcels also designated for multi-family residential development.
The County General Plan notes that the farm adjacent to the cemetery should be annexed to the
City of San Rafael at such a time that it is developed15.
Sun Valley receives city fire protection services through CSA No.19 (northern portion) and CSA
No. 31 (southern portion). The County Sheriff office provides law enforcement services to the
entirety of the area, with the San Rafael police department responding to calls as needed.
Upper Lucas Valley
This 3,322-acre unincorporated neighborhood is located in north San Rafael west of Highway 101
on Lucas Valley Road. This neighborhood is a within the separate and distinct Lucas Valley area,
with its southernmost development contiguous with the San Rafael city limits. The east and west
sides of the neighborhood are contiguous with Marinwood CSD. The area is developed with
around 800 single-family homes on large lots and some retail. Famously, this area’s homes are the
work of modernist builder/developer Joseph Eichler. His highly recognizable and stylish homes
can be found throughout Lucas Valley and Eastern Marinwood. The Upper Lucas Valley
subdivision was the final Eichler project in Lucas Valley and maintains its own Association, the
Lucas Valley Homeowners Association.
CSA No. 13 entirely encompasses the Upper Lucas Valley Neighborhood. Refer to Chapter 4
(CSA No. 13 profile) for further discussion of the Upper Lucas Valley and services provided to
the community.
4.2 GROWTH AND POPULATION
LAFCo is required to make a determination in this MSR on growth and population. When planning
for the provision of future services and infrastructure it is important to have ready access to
accurate growth and population projections. This MSR also identifies and considers disadvantaged
communities and growth and population data contribute to that analysis. The region’s growth rates
are based on historical development patterns, the County and San Rafael’s general plans, regional
estimates from the Association of Bay Area Governments and California Department of Finance,
and information provided by special districts.
Land Use
Marin County is generally considered an “infill” county, with new development guided to existing
urbanized areas. The Marin Countywide Plan (2007) serves to guide County conservation and
development through policies that protect open space and “community separators” in the city-
centered corridors. Marin County’s 520 square miles is only 11% developed with urban uses, and
only 5% of the remaining land is potentially developable under existing policies. Agricultural lands
15 Marin County General Plan pg. 3-231
Marin LAFCo 28 San Rafael Region
Final MSR October 2019
make up 36% of the County’s total area, parklands 33%, and the remaining 15% in public or
private open space use16.
Within the Study Area, the City of San Rafael is the predominant feature and growth driver. It
encompasses about 22 square miles of land area and contains another five square miles of water
and tidelands associated with San Rafael Bay. More than 55% of the city’s land is vacant, open
space, parks, or public lands; however, very little of this land is available for development17.
Increasingly, the region’s communities rely on the reuse of underutilized land to meet land use and
housing needs. Remaining developable vacant lands in the Study Area are in the St. Vincent’s,
Silveira Ranch, Canalways, East San Rafael, and other localized areas.
Current Population
Marin County experienced progressive growth between 1950 and 1960 when the population
jumped substantially from 85,619 to 146,820, an increase of 72%. Compared to other Bay Area
counties, Marin County has since experienced slow population growth rates between three and
five percent18. Overall Marin remains the slowest growing county in the Bay Area.
Within the Study Area, many of the unincorporated areas have already extensively been developed,
as discussed in Table 4.2. Several of the larger communities within the Study Area have Census
population data available.
Projected Growth and Development
Projected growth in the study area is expected to be moderate. While the County’s population is
expected to grow approximately 13% by 204019, the City of San Rafael expects population growth
of approximately 19% in the same time period (an additional 7,900 people). Such growth is
estimated to be the highest population growth rate within Marin County and represent
approximately one-third of the projected growth countywide20. For further population discussion
for the City of San Rafael, see Chapter 4 Agency Profiles.
The amount and rate of population growth expected in unincorporated areas within the city’s SOI
varies significantly from area to area. General Plan build-out capacity for some areas, such as St.
Vincent’s/Silveira and San Rafael Quarry have significant future development potential, but such
development is subject to additional planning and development and redevelopment under the
jurisdiction of Marin County. With respect to the fully surrounded island pockets within San
Rafael, except for Upper Sun Valley, they are predominantly built out, with little relative future
development potential. See Table 4.2 (islands) for further details.
16 Marin LAFCo. San Rafael Regional Municipal Service Review. 2006.
17 Marin LAFCo. San Rafael Regional Municipal Service Review. 2006.
18 Marin LAFCo. San Rafael Regional Municipal Service Review. 2006.
19 City of San Rafael. San Rafael General Plan 2020. Pg. B1-9.
20 Ibid.
Marin LAFCo 29 San Rafael Region
Final MSR October 2019
Figure 4-2: Population Growth Trend and Estimate
Historic Population estimates sources from U.S. Census data. San Rafael projected growth rates sourced from ABAG
Projections in San Rafael General Plan 2020, Pg. B1-9. Marin County growth estimates sourced from CA Dept.
of Finance. County Growth Projections
Disadvantaged Unincorporated Communities
LAFCo is required to evaluate disadvantaged unincorporated communities (DUCs) as part of this
review, including the location and characteristics of any such communities within or contiguous
to the SOIs established in the Study Area. A DUC is an unincorporated geographic area with 12
or more registered voters with a median household income of 80% or less of the statewide median
household income. The identification of DUCs is to ensure that the needs of these communities
are addressed when considering service extensions and/or annexations to unincorporated areas.
Within the Study Area, several census tracts covering San Rafael’s Canal neighborhood meet the
disadvantaged community criteria. However, given this neighborhood is entirely within the San
Rafael city limits, it does not qualify as a DUC. No other communities within the Study Area have
been identified as disadvantaged.
4.3 REGIONAL PLANNING
Sustainability
Historically, Marin County has prioritized efforts to support healthy, safe, and sustainable
communities while maintaining the county’s unique environmental heritage. More recently in
2018, the County developed Drawdown: Marin, a community-driven campaign to reduce
greenhouse gas emission and to prepare for climate change impacts. The County, with substantial
community input, is working to eliminate fossil fuel use and “drawdown” carbon emissions.
Marin LAFCo 30 San Rafael Region
Final MSR October 2019
Sustainability practices that seek to enhance the mutually supportive relationship between the
natural and built environments vary across local governments. Local public agencies play a critical
role in managing natural resources and protecting the environment through land conservation, open
space preservation, and renewable energy projects. By taking advantage of opportunities to invest
in energy efficiency, renewable energy, water conservation, wastewater reuse, and other
sustainability practices, local agencies can improve the fiscal health of their organizations and the
economic prosperity of the residents and businesses they serve.
Within the Study Area, agencies are working to promote sustainability and resiliency.
Marin LAFCo 31 San Rafael Region
Final MSR October 2019
5.0 CITY OF SAN RAFAEL
5.1 OVERVIEW
The City of San Rafael is located 17 miles north of San Francisco in Marin County and is situated
along Highway 101 between the community of Marinwood and the City of Larkspur, with its
southernmost border meeting the northern end of the Richmond Bridge. Set along the shore of San
Pablo Bay, the City enjoys a mild Mediterranean-like climate year-round. It encompasses 22.5
square miles with an estimated population of 60,651. As the County’s largest city, San Rafael is
the urban center and county seat for Marin.
San Rafael provides a range of municipal services, including police, fire protection and emergency
response, parks and recreation, road maintenance, flood control, and street lighting. Water and
wastewater services to the region are provided by several special districts. See Municipal Services
section below.
Table 5-1: City of San Rafael Overview
City of San Rafael
City Manager: Jim Schutz
Main Office: 1400 Fifth Avenue, San Rafael, California
Formation Date: 1874
Services Provided: Fire, Police, Paramedic, Parks & Recreation, Road
Maintenance & Construction, Flood Control
City Boundary: 22.5 sq. mi. city limit; 18.5 sq. mi. SOI
Population Served: 60,651
Budget: $148,829,258
5.2 JURISDICTIONAL BOUNDARY
Incorporation and City Boundary
Originally the site of several Coast Miwok peoples’ villages and then the San Rafael Arcángel
(1817) Mission, San Rafael became Marin County’s first incorporated city in 1874. Early
population growth stemmed from the city’s proximity to San Francisco, the San Rafael connection
to the North Pacific Railroad, and the establishment of a U.S. Navy degaussing site (operated
through World War II)21. Growth radiated outward from San Rafael’s downtown areas, with the
northern neighborhoods annexed in the 1950s, ‘60s, and ‘70s. With the city’s proximity to the Bay
Area, moderate climate conditions, and relative rural character, the area continues to attract
residents and businesses. Today, the City of San Rafael’s jurisdictional boundary is 22.5 square
miles (14,8311 acres), 75% of which is land and 25% bay and tidelands. See Figure 5-1.
Sphere of Influence
San Rafael’s Sphere of Influence (SOI) extends 18.5 square miles beyond its jurisdictional
boundary and includes the unincorporated neighborhoods of Santa Venetia, Bayside Acres, Los
21 SanRafael.com. “The History of San Rafael, California”. http://www.sanrafael.com/channel/History-Of-San-
Rafael/6200
Marin LAFCo 32 San Rafael Region
Final MSR October 2019
Ranchitos, California Park, Country Club, as well as large extents of San Pablo Bay, as shown in
Figure 1 (See Section 1, Regional Setting, for full discussion of San Rafael area unincorporated
neighborhoods). The SOI was originally established by LAFCo in 1982 and was last reviewed and
updated in 2006 . Notably, the 2006 update excluded three areas (Lucas Valley, Marinwood, and
St. Vincent’s/Sil2v2eira) from the City’s SOI. They are now included within Marinwood CSD’s SOI.
Out of Agency Services
G.C. Sections 56133 & 56134 set forth LAFCo’s out of agency services oversight role. San Rafael
currently provides fire and emergency response services by contract outside of its boundary within
its SOI and support services to Marinwood CSD and Upper Lucas Valley Areas. Further fire
services discussion is in Section 5.7 (Fire and Emergency Response).
5.3 POPULATION AND GROWTH
As discussed in the Regional Setting, San Rafael experienced significant growth between 1950
and 1970. Since then, the city has continued to grow, but at a slower rate. Currently, San Rafael
has an estimated population of 60,65123. The Association of Bay Area Governments (ABAG)
projects that San Rafael will continue to experience the highest population growth rate within
Marin County (0.5%)24. ABAG estimates the city's population will increase by nearly 11,000 from
the 2010 population, to reach a projected 2040 population of 68,700, representing approximately
one-third of the projected growth for the entire county.
5.4 LAND USE AND GEOGRAPHIC FACTORS
When reviewing municipal services and making a sphere determination, LAFCo evaluates current
and future land uses in the area, including agricultural and open space.
Land Use
San Rafael’s General Plan 2020 serves as the key visioning document for the City’s desired land
use and related management policies. The primary land use designations within city limits include
Parks/Open Space (43%), Single-Family Residential (35%), Industrial/Light Industrial and
Public/Quasi-Public (13%), Multifamily Residential (5%), and Commercial & Office (4%). A land
use map is provided in Figure 4-2.
Open Space
Natural features and resources have shaped San Rafael’s urban growth and form. Resident
planning interests have enabled large swaths of protected open space to remain within city limits.
The City of San Rafael General Plan 2020 recognizes the benefits of maintaining open space and
natural resources for their economic, recreational, and ecological value. Both the General Plan
Open Space and Conservation Elements include policies that address public uses, restoration, and
resource management.
22 Marin LAFCo Resolution 06-06
23 California Department of Finance. DOF Population Projection Press Release “New Demographic Report Shows
California Population Nearing 40 Million Mark with Growth Of 309,000 In 2017”. Published May 1, 2018.
24 City of San Rafael. San Rafael General Plan 2020. Pg. B1-8.
Marin LAFCo 33 San Rafael Region
Final MSR October 2019
´
Sonoma
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101
Novato !
Marinwood
CSD
St. Vincent's/
CSA 13 Marinwood CSD Silveira
Santa S a n P a b l o B a y
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Los
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Valley Acres San Pedro
Town of
San Anselmo
Country
Club
Town of
Ross
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Park
City of
Larkspur
§¨¦
580
San Rafael City Limits
San Rafael SOI
£¤
101
Marinwood CSD
Town of
CSA #13 Upper Lucas Valley Corte Madera
CSA #19 San Rafael
Tiburon
Parcel Boundaries 0 0.5 1Miles
Figure
City of San Rafael
Sources: Esri, USGS, NOAA
5-1
Date: 3/21/2019
Sources: Boundaries, Roads, Parcels: Marin Map GIS.
San Rafael actively owns and maintains much of the open space within the city boundary. In 1972,
San Rafael voters approved a bond measure to purchase open space. Since then San Rafael has
secured over 3,285 acres of open space within the city limits.
5.5 ORGANIZATION STRUCTURE
Governance
San Rafael is a charter city operating under a council-manager form of government, in which
legislative and policy functions are vested in the City Council, while the City Manager conducts
the day-to-day city business. There are four councilmembers and an elected Mayor. Starting in
2020, the city will utilize a district-based election system for each of the four council seats.
Councilmembers are required to live in the district they represent and are elected only by the
registered voters of that district. The Mayor is elected at-large. All members serve four-year terms.
City Council duties include establishing legislation and policies governing the city; adopting all
ordinances, resolutions, and major contracts; approving and modifying annual budgets; making
appointments to advisory boards; commissions and committees; and appointing the City Manager
and City Attorney. City Council meetings are scheduled the first and third Mondays every month
at 7:00 p.m. in the San Rafael City Hall Council Chambers located at 1400 Fifth Avenue.
Administration
The City Manager is appointed by the City Council and is responsible for city operations
management and policy implementation on behalf of the City Council. The City Manager is an at-
will employee and administers the City of San Rafael’s departments. The City is in the process of
reorganizing and a new organization chart will be prepared. The current staffing level is 410.5
Full-Time Equivalent (FTE) positions.
5.6 ACCOUNTABILITY AND TRANSPARENCY
When conducting service reviews and reviewing proposals, LAFCo considers an agency’s
accountability for community service needs, including governmental structure, operational
efficiencies25 , financial resources, and promoting public access26.
The City offers multiple ways to keep citizens informed about services, meetings, finances and
decision-making processes. Public notices are posted on the website. Past meeting agendas and
meeting minutes may be found in the Public Meetings section of the City’s website. The public
may also provide verbal comments or complaints by phone or in person at City Hall during
business hours and/or at City Council meetings during the public comment period. City Council
meetings are also available to view on the local government channel and can be streamed online
from the City’s website.
25 CA G.C. 56430(6)
26 CA G.C. 56881(2)
Marin LAFCo 35 San Rafael Region
Final MSR October 2019
5.7 MUNICIPAL SERVICES
San Rafael provides a range of municipal services, including police, fire protection and emergency
response, parks and recreation, road maintenance, flood control, and street lighting. The City also
partners with outside agencies for the provision of certain municipal services, including water
treatment and distribution, wastewater collection, treatment and disposal, and garbage collection.
A description of these services is provided below.
Fire and Emergency Response
Fire-related services for San Rafael are provided by the San Rafael Fire Department. They provide
a full range of fire protection services, including fire suppression, rescue, advanced life support
(ALS) and emergency medical services, hazardous material control, and fire prevention services.
Projected general fund expenditures for FY 2018-19 are $18. 7 million (25% of the General Fund
expenditures), up from the $18.3 million approved for the previous year.
The San Rafael Fire Department works closely and cooperatively with neighboring fire
departments to provide service to its community and surrounding areas. It maintains shared
services agreements with Marinwood CSD, and CSA No. 19.
The Department operates an administrative office and seven fire stations located throughout the
City. Currently, they employ paid personnel including a Fire Chief, Deputy Chief and Battalion
Chiefs, Fire Captains, Fire Engineers, Firefighters/Paramedics, Emergency Manager,
Environmental Manager, Fire Prevention and Administrative Staff, and a Fire Mechanic. They
also have volunteer staffing (but does not include Firefighter volunteer staffing). Most calls for
Department service are medical in nature.
The San Rafael Fire Department receives additional support from the San Rafael Fire Foundation,
a community nonprofit organization formed in 2014. The organization supports San Rafael
firefighters and paramedics by funding technology, equipment, training, and public outreach
through donations.
Agreement Between the City of San Rafael and Marinwood CSD
The City of San Rafael Fire Department and Marinwood CSD have entered into a number of
contractual fire service agreements dating back as far as 1973 to provide shared services in the
northern extent of San Rafael and Marinwood CSD’s service area. Through the most recent
agreement, a Joint Exercise of Powers Agreement (JPA) initiated in April 2014, San Rafael
provides the District with administrative capacity, training, supplies, and response support. In
return, the District provides primary service call response in the City’s northern neighborhoods
(over 50% of District’s total annual service calls), giving faster response times for area residents.
The agreement remains in place unless terminated by one of the parties, with a 90-day notice.
In October 2018, longtime Marinwood CSD fire Chief Tom Roach retired. To fill the open
position, the District amended its existing JPA with San Rafael to include Fire Chief Officer
Services to be provided by the City at a $96,320.00 annual District cost (includes a 3% annual
escalator for first 5 years then a City re-evaluation). Such an agreement further codifies the shared
services partnership between the two agencies.
Marin LAFCo 36 San Rafael Region
Final MSR October 2019
Agreement Between San Rafael and CSA No. 19 – Unincorporated San Rafael Neighborhoods
Marin County and San Rafael have had an ongoing agreement since 1976 to provide fire protection
services to the unincorporated neighborhoods within CSA No. 19, including: Santa Venetia, Los
Ranchitos, Country Club, Bayside Acres, and California Park27. San Rafael provides a primary
response to calls within CSA No. 19’s jurisdiction, and the County (CSA No. 19) leases land at
3530 Civic Center Drive (Station 57) to the City. The “Lease Agreement” and “Fire Protection
Services Agreement,” each has a 10-year term and were last renewed in 2016. Under these
agreements, the City pays market value to lease the land where Fire Station 57 is located, and the
County compensates the City for fire protection services from a negotiated $1.3 million “base
rate”. This amount increases each year by the same salary increase percentage set by the firefighter
collective bargaining agreement. Station facility maintenance and renovation costs are split
between the two agencies.
Law Enforcement
The City of San Rafael provides law enforcement and dispatch services to all areas within the city
limit and response to nearby unincorporated neighborhoods as necessary. The San Rafael Police
Department is located on the lowest level of City Hall, at 1400 Fifth Avenue in San Rafael.
Projected expenditures for 2019 are 25 million (33% of the General Fund expenditures)28, similar
to the 2017-18 adopted budget. The Police Department employs 92.8 full-time equivalents (FTE)
positions, including 63 sworn officers. This equates to 1.07 full-time sworn officers per 1,000
population. The national average in 2016 (most recent available) was 2.17 full-time sworn officers
per 1,000 population29.
Over the last ten years, the San Rafael police calls for service have increased by 21%, while
physical arrests (adult and juvenile) have decreased by 55%. Traffic and parking violations are
also down for the same time period, by 52% and 19% respectively. See Table 5-2 below for further
calls for service and law violation details.
Department community engagement efforts include “Coffee with a Cop” meet-and-greets,
National Night Out, Camp Chance, a youth academy at Davidson Middle School, and use of social
media to connect with constituents. Recently, the Department merged its Crisis Response Unit
with Novato, in an effort to reduce costs and leverage shared resources.
27 City of San Rafael. City Council Staff Report. Topic: County Service Area 19 Fire Protection and Lease Agreement.
June 20, 2016.
http://cityofsanrafael.granicus.com/DocumentViewer.php?file=cityofsanrafael_ea23def85a6f192655493a2667a34
92c.pdf
28 City of San Rafael. San Rafael City Council Agenda Report, Agenda Item 7.d. Final City-Wide Proposed Budget for
Fiscal Year 2018-2019 And Legal Spending Limit. June 18, 2018.
29 United States Bureau of Justice. Full-Time Employees in Law Enforcement Agencies, 1997 -2016. Shelley Hyland,
BJS Statistician. Published August 28, 2018. https://www.bjs.gov/content/pub/pdf/ftelea9716.pdf
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Table 5-2: City of San Rafael Police Department Service Indicators
2009 2010 2011 2012 2013 2014 2015 2016 2017 2018
Calls for 42,227 42,227 39,512 39,537 42,707 51,261 55,805 57,026 53,567 51,013
service
Crimes (type: 2,352 2,352 2,180 2,101 2,523 2,289 2,533 2,523 2,392 2,326
Part I)
Arrests (adult 4,487 4,487 3,102 2,981 2,951 3,227 3,450 3,453 2,526 2,019
& juvenile)
Traffic 5,777 5,777 8,190 4,048 3,448 4,498 4,168 3,252 3,341 2,758
violations
Parking 44,913 42,806 34,590 32,492 30,881 38,814 36,398 34,803 36,169 36,208
violations
Source: City of San Rafael: Comprehensive Annual Financial Report for the Fiscal Year Ending June 30, 2018. Pg. 167-168
Public Works
The Public Works Department’s municipal service responsibilities include developing and
maintaining city facilities, parks, and infrastructure; street lighting; flood control, and roads. The
Department employs 63 full-time equivalents (FTE) positions and maintains over 30 facilities,
including parking lots, 173 miles of road, 20 parks, 89 traffic signals, 4,435 street lights, and
extensive stormwater drainage systems30. Much of this infrastructure was built in the 1950s and
1960s, and the Department reports that the public facilities, such as community centers, playing
fields, and parks are heavily utilized and show significant wear and tear. The City’s stormwater
and road system are also reported as aging31.
Projected departmental expenditures for 2018-19 are 11.8 million (16% of the General Fund
expenditures), a slight increase from 11.5 million in the 2017-18 adopted budget. Projects
completed by the Department as a part of their Capital Improvement Program (current cycle: FY
2018-19 to 2020-21) are funded separately from the General Fund. Approximately 13. 8 million
has been budgeted through the program for the 2019-20 fiscal year.
The City reports that needed long-term capital and infrastructure improvements for City-owned
property far exceeds $500,000 per year and stormwater infrastructure needs exceed $850,000 per
year32. The City utilizes a Capital Improvement Program (CIP), updated every three years to
prioritize projects. The Program reports that identified projects exceed available funding, which
means the City must defer a considerable number of projects until additional funding sources are
available. To address the funding shortfall, the City reports it is actively seeking better long-term
funding strategies for these projects, including:
• More aggressive pursuance of grant funding for non-Right of Way capital projects.
• Ballot measure to raise current per-parcel Stormwater Assessment.
30 City of San Rafael: Comprehensive Annual Financial Report for the Fiscal Year Ending June 30, 2018. Pg. 170.
31 City of San Rafael Department of Public Works. 3- Year Capital Improvement Program, FY 2018-19 to FY 2020-21.
Published June 18, 2018.
32 City of San Rafael. San Rafael City Council Agenda Report, Agenda Item 7.d. Final City-Wide Proposed Budget for
Fiscal Year 2018-2019 And Legal Spending Limit. June 18, 2018.
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• Alternative funding mechanisms: assessment districts or public-private partnerships.
Recent projects completed by the Department include:
• Completed Fire Station 52 and nearing completion of Fire station 57.
• Started construction of new Public Safety Center. Completion anticipated in summer 2020.
• Completed Downtown San Rafael improvements for SMART including coordinated traffic
signals, queue cutters, wider sidewalks, and crosswalk changes.
• Completed installation of solar on the Boro Community Center and Public Works building.
• City Hall and Terra Linda Community Center Roof Replacement.
• Boyd Gate House – Exterior Painting and other improvements.
• Mission and E Street Parking Lot Resurfacing (Menzies).
• Freitas Las Gallinas Intersection Improvements.
• Second and Grand Avenue Intersection Improvements
• 3rd and Irwin Intersection Paving Improvements.
• G Street Drainage and Roadway Improvements.
• Falkirk Cultural Center - Reroofing.
• Tera Linda Community Center – Floor replacement.
Major new projects identified in the FY 2018-19 to FY 2020-21 CIP include:
• Innovative Deployment of Enhanced Arterials (IDEA).
• Rice Drive to 2nd Street Multi-use Path Phase 2.
• Terra Linda Community Center HVAC replacement.
• 5th Avenue and C Street Garage seismic repair.
• 3rd Street and Lootens Place seismic repair.
• 3rd Street and A Street Garage seismic repair.
• 3rd Street and C Street Garage seismic repair.
• Southern Heights Boulevard bridge replacement.
• 3rd Street and Hetherton Street intersection improvements.
• Francisco Boulevard East sidewalk widening.
• 3rd Street rehabilitation.
Parks and Recreation (Community Services Department)
The Community Services Department (CSD) has oversight of City park and recreation facilities,
programs, special events, classes, and child care services. The CSD employs 21 full-time
equivalents (FTE) positions and oversees the operations of a range of facilities. The Recreation
and Childcare Funds, operated by the CSD have budgeted $4.9 million (6% of the General Fund
expenditures) and $3.8 million, respectively, for the 2018-19 fiscal year. Fee income covers
approximately 63% of the Recreation budget, 100% of the Childcare budget, and 75% of the
Preschool program33.
33 City of San Rafael. San Rafael City Council Agenda Report, Agenda Item 7.d. Final City-Wide Proposed Budget for
Fiscal Year 2018-2019 And Legal Spending Limit. June 18, 2018.
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City park facilities include 142 acres of parks at 25 park sites, three community centers, one
cultural center, a community pool, and athletic facilities. In its 2020 General Plan, the City notes
that it has an abundance of citywide, regional park and open space land; however, there are several
neighborhoods inadequately served by local recreation facilities34. The City utilizes several
standards to monitor how park and recreation services are meeting community needs, including:
Standards:
o
• Maintaining, and where possible exceeding, a recreation standard of three acres of
park and recreation facilities per 1,000 residents.
Currently, based on population estimates and 393 developed parkland in
city limits35, there are 6.5 acres of parkland per 1,000 residents.
Park Development Criteria (used as a guide to improving the park system):
o
• Neighborhood parks should serve populations of at least 3,000 within a radius of
one-half mile and have a minimum size of three acres.
• Community parks should serve a population of 10,200 to 30,000 within a radius of
three to five miles
Neighborhood Recreational Needs
o
• Serve all neighborhoods with parks that meet the needs of the community. Priority
areas should include Canal, Dominican, and Montecito neighborhoods.
City Recreational Needs
o
• Provide opportunities for recreational activities for boys and girls, teens, and adults
through the creation of additional facilities.
Review of Needs
o
• Conduct a review of San Rafael’s recreational, facility, and program needs as part
of the five-year update to the General Plan and amend policies as needed.
Park facility improvements are planned for and accomplished through the City’s CIP, which
includes $3.7 million over the three-year planning period for park infrastructure and facilities. The
program also identifies another $535,200 in unfunded projects. These projects account for 12% of
the total CIP funding. There are no Park Master Plan updates currently scheduled.
34 City of San Rafael. San Rafael General Plan 2020. Pg. 251.
35 City of San Rafael: Comprehensive Annual Financial Report for the Fiscal Year Ending June 30, 2018. Pg. VI.
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Table 5-3: City of San Rafael Parks and Recreation Components
Component Count
Recreation class participants (2018) 12,842
City parks 25
City parks acreage 142
Playgrounds 14
City trails 20
Community gardens 2
Community centers 3
Cultural Center 1
Swimming pools 1
Tennis courts 10
Basketball courts 5
Baseball/softball diamonds 5
Soccer/football fields 2
Source: City of San Rafael: Comprehensive Annual Financial Report for the Fiscal Year Ending June 30, 2018. Pg. 167-168
Wastewater
Wastewater services to the City of San Rafael are provided by several local agencies. Within the
majority of the City, wastewater is collected and transported by the San Rafael Sanitation District
(SRSD) to the Central Marin Sanitation Agency (CMSA) for treatment and disposal. In the north-
eastern area of San Rafael, generally in the Terra Linda neighborhood, wastewater services are
provided through the Las Gallinas Valley Sanitary District (LGVSD). LGVSD independently
collects, treats, and disposes of wastewater within its jurisdiction. All three agencies are reviewed
separately in Marin LAFCo’s Central Marin Wastewater Municipal Service Review (2017). Below
is a brief overview of each agency.
Las Gallinas Valley Sanitary District
LGVSD is an independent special district, a separate local agency from the City of San Rafael. It
encompasses an approximate 9.4 square mile jurisdictional boundary within east-central Marin
County. About 36% of its jurisdictional area is within San Rafael City limits, and another 63%
covers unincorporated County territory – notably, the Marinwood and Santa Venetia communities.
The 1% remainder extends into the City of Novato. See Figure 5-3.
LGVSD currently provides wastewater, recycled water, and solid waste collection. Wastewater
services are provided through LGVSD’s 112-mile collection system that conveys wastewater to
the District’s treatment facility before discharging into Miller Creek or using it for beneficial
purposes through a recycled water program. The District’s governing board is comprised of five
members who are either elected at-large or appointed in lieu of a consented election to staggered
four-year terms. The Board regularly meets on the second and fourth Thursday each month at the
LGVSD Administrative Office located at 300 Smith Ranch Road in San Rafael.
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Figure 5-2: Las Gallinas Valley Sanitary District Service Area
Figure source: Marin LAFCo, Central Marin Wastewater MSR, 2017.
Central Marin Sanitation Agency
CMSA is a Joint Powers Authority which provides wastewater treatment and disposal services on
behalf of its four-member agencies including the San Rafael Sanitation District. Located in east-
central Marin County, the City of San Rafael comprises 19% of the Authority’s jurisdictional land
area. LGVSD is not a member agency of CMSA.
San Rafael Sanitation District
SRSD is a dependent special district that provides wastewater collection and transportation
services to the San Rafael region. See Figure 5-4 for SRSD boundaries. As a dependent special
district, its three board members are appointed rather than elected independently at large. Two
appointments are made by the San Rafael City Council and the third by the County Board of
Supervisors. The Board currently meets on the 4th Friday each month at 9:00 a.m. at the San Rafael
City Hall located at 1400 Fifth Avenue in San Rafael. As a regional service provider, the District
serves approximately 13 square miles, 58% of which is within the City of San Rafael. The rest of
the District area is unincorporated and within Marin County’s jurisdiction – with a small remainder
in the City of San Anselmo.
The City and the district have a series of shared-services agreements. San Rafael contracts with
SRSD to provide a variety of staff support services to the District, ranging in scope from
accounting to information technology. The District also contracts with the City to maintain the
collection systems in San Rafael and surrounding unincorporated areas. These employees are paid
through the City’s payroll department and participate in the City’s cost-sharing multiple-employer
Marin LAFCo 42 San Rafael Region
Final MSR October 2019
defined benefit pension and healthcare benefits.36 Such agreements further codify the shared
services partnership between the two agencies.
Figure 5-3: San Rafael Sanitation District Service Area
Figure source: Marin LAFCo, Central Marin Wastewater MSR, 2017.
Water
San Rafael region water services are provided by the Marin Municipal Water District (MMWD),
an independent special district, separate from the City of San Rafael. The District’s services are
reviewed separately in Marin LAFCo’s Countywide Water Service Study (2016).
MMWD’s jurisdictional boundary spans 148 square miles, 61% of which is unincorporated with
the remaining 39% in 10 cities/towns, including the entirety of San Rafael. MMWD is presently
authorized to provide three specific services within its jurisdictional boundary: (a) domestic water;
(b) non-potable water; and (c) recreation. The District’s governing board is comprised of five
members who are elected by electoral divisions to staggered four-year terms. The City of San
Rafael residents are represented by two electoral divisions – with Division 1 encompassing the
northern half of San Rafael and Division 2 primarily covering the southern half. MMWD currently
meets on the first and third Tuesday at 7:30 P.M. of each month at the District’s Administrative
Office at 220 Nellen Avenue in Corte Madera.
5.8 FINANCIAL OVERVIEW
The City of San Rafael prepares an annual report on the City’s financial statements in accordance
with established governmental accounting standards. The most recent audited financial statement
was prepared by the independent certified public accounting firm, Maze and Associates
36 City of San Rafael: Comprehensive Annual Financial Report for the Fiscal Year Ending June 30, 2018. Pg. 43.
Marin LAFCo 43 San Rafael Region
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Accountancy Corporation, which issued an unqualified, or “clean” opinion on the City’s financial
statements for the fiscal year ending on June 30, 2018.
The City adopts an annual budget, effective July 1 for each fiscal year. The budget reflects
estimated revenues and expenditures, except for the capital projects funds and the Peacock Gap
Assessment District Debt Service Fund. Appropriations and spending authorizations for projects
in the capital projects funds and some special revenue funds are approved by the City Council on
a multi-year basis. The City Council may amend the budget by resolution during the fiscal year in
order to respond to emerging needs, changes in resources, or shifting priorities. Expenditures may
not exceed fund level appropriations, which is the legal level of control. The City Manager is
authorized to transfer budgeted amounts between accounts, departments or funds; the Council must
approve any increase in the City’s operating expenditures, appropriations for capital projects, and
transfers between major funds and reportable fund groups.
Revenues and Expenditures
The FY 2018-2019 expenditure budget for San Rafael is $148,829,258. This reflects all funds and
operations for the City, including active capital projects. The expenditure budget is supported
predominantly by a projected revenue of $142,532,576, with the remaining difference coming
from funds retained from previous periods for capital projects and prior year unallocated resources.
For the FY 2018-19, the City reports37 that funds for general operations are projected to be $1.3
million, or 1.6% higher than those of the previous year; however operating uses are projected to
grow by a larger amount: $2.0 million, or 3.5% over the previous year. This has been the case for
the previous two fiscal years as well, whereby expenses grew at a faster rate than revenues, causing
an operating deficit. Under the FY 2018-19 Budget, funds are projected to continue to have a
positive balance at fiscal year end; however, the General Fund balance is expected to decrease
because of the operational deficit. The City notes that should this trend continue, the remaining
unassigned funds (~$762,000) will be used to cover general operations. See Figure 5-5.
In addition to municipal services in the General Fund, the annual expenditure plan includes
provisions for the Homeless Initiative, participation in the Major Crimes Task Force, and
continued massage enforcement. The growth in expenditures is also fueled by increases in
personnel costs, including step increases, and increases in compensation based on collective
bargaining contract commitments38. The City expects the fiscal year 2018-2019 contributions
made to the Marin County Employees Retirement Association (MCERA) to represent
approximately 14% (17 million) of total City-wide expenditures.
37 City of San Rafael. San Rafael City Council Agenda Report, Agenda Item 7.d. Final City-Wide Proposed Budget for
Fiscal Year 2018-2019 And Legal Spending Limit. June 18, 2018.
38 Ibid.
Marin LAFCo 44 San Rafael Region
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Table 5-4: San Rafael Fund Balances39
Sources Uses
Projected Projected
(Revenues (Expenditures
Fund Balances Balance
and and
July 1, 2018 June 30, 2019
Transfers) Transfers)
General Fund $1,635,966 $80,189,911 $81,063,636 $762,241
General Plan $1,995,128 $392,752 $385,105 $2,002,775
Special
$20,513,576 $25,452,024 $27,919,683 $18,045,917
Revenue/Grant/Trust
Enterprise (Parking) $2,629,668 $5,076,300 $5,695,676 $2,010,292
Internal Service/ Capital
$7,831,697 $17,102,489 $19,449,538 $5,484,648
Replacement
Assessment Districts $468,226 $780 $0 $469,006
Capital Project Funds $821,089 $35,042,700 $35,040,000 $823,789
Adj for ISF
$0 ($20,724,380) ($20,724,380) $0
Charges/Transfers
City-wide Totals $35,895,350 $142,532,576 $148,829,258 $29,598,668
The City derives revenue from several sources. Primary revenue sources include sales tax (28%),
property tax (25%), and Measure E - the Transaction & Use Tax (16%). One-third of Measure E
funds are allocated to public safety facilities construction and improvements. Other revenues
include business tax, transient occupancy tax, Cannabis sales tax, development fees, Vehicle
License Fee backfill, permits, and charges for services.
General Fund
The General Fund spending for the current fiscal year is estimated to be $77.0 million. This fund
accounts for most of the general operations of the City and major services to residents and
businesses (such as police, fire suppression and prevention, planning, building, library, parks,
streets, engineering, traffic enforcement and management, cultural programs). The following chart
summarizes the fiscal year allocation of planned General Fund Expenditures by major function
(excluding Operational Transfers Out of $1.85 million to the Pre-School and Recreation Fund40).
39 Ibid.
40 Ibid, Exhibit I – General Fund Proposed Budget FY 2018-2019.
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Figure 5-2: City of San Rafael General Fund Expenditures41
Debt
The City generally incurs long-term debt to finance projects or purchase assets which will have
useful lives equal to or greater than the related debt. High debt levels can overburden a
municipality while low debt levels may indicate underutilized capital investment capacity. A
summary of governmental and business-type activities debt obligations for the fiscal year ended
June 30, 2018, are as follows:
41 Ibid., pg. 7.
Marin LAFCo 46 San Rafael Region
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Figure 5-3: San Rafael Long-Term Debt Obligation
Reserves
The City of San Rafael has established a General Fund Emergency Reserves policy, to maintain a
minimum target reserve levels of 10% of annual General Fund expenditures. General Fund
Emergency Reserves are projected to increase from $7.2 million to $7.4 million for FY 2018-1942,
maintaining the minimum target reserve levels. Other reserve funds include the general liability
and workers compensation reserves, which are used to fund projected claims in those respective
areas.
42 City of San Rafael. San Rafael City Council Agenda Report, Agenda Item 7.d. Final City-Wide Proposed Budget for
Fiscal Year 2018-2019 And Legal Spending Limit. June 18, 2018.
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5.9 SUSTAINABILITY
In April 2009, the City adopted a Climate Change Action Plan, assessing its greenhouse gas
“footprint” and proposed policies and programs to reduce greenhouse gas emissions citywide by
25% from 2005 levels by 2020. The plan outlines specific programs for attaining sustainable
lifestyles, building standards, environmental protection, and economic development within the
city43. By 2016, emissions had been reduced by 18%.
San Rafael’s Draft Climate Action Plan 203044 notes that emissions are on track to meet the City’s
local reduction target of 25% by 2020. The City of San Rafael has implemented 48 of the 54
measures in the original Climate Change Action Plan, completing the majority of those that could
be completed and moving most of the rest into an ongoing implementation status.
The City has already adopted and implemented several policies that promote sustainable building
standards and lifestyle choices. San Rafael incorporates the California Green Building Standards
(CalGreen) code regulations to guide sustainable construction practices. Prior to adopting the
Climate Change Action Plan, San Rafael was one of the first Bay Area cities to adopt a mandatory
Green Building Ordinance in 2007. The ordinance requires that all new residential buildings be
Green Point Rated, and all new commercial or civic buildings be LEED (Leadership in Energy &
Environmental Design) certified.
The draft 2030 Climate Change Action Plan establishes targets similar to California’s goals to
reduce emissions to 40% below 1990 levels by 2030 and 80% below 1990 levels by 2050. The
Plan lays out measures that will meet the 2040 target and put the City on a trajectory to meet the
2050 goal.
43 City of San Rafael. San Rafael General Plan 2020. Pg. B4-5.
44 City of San Rafael. Draft Climate Action Plan 2030. October 2018.
https://www.cityofsanrafael.org/documents/draft-climate-action-plan-2030/
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6.0 MARINWOOD COMMUNITY SERVICES DISTRICT
6.1 OVERVIEW
Marinwood Community Services District (CSD) is an independent, multi-purpose special district
organized pursuant to California G.C. Section 61000 et seq. The District provides fire protection
and emergency medical services, street lighting, open space management, and parks and recreation
services to the unincorporated community of Marinwood and surrounding areas. An overview of
the CSD is provided in Table 6-1.
Marinwood CSD is located west of U.S. 101 between the northern boundary of the City of San
Rafael and the southern boundary of the City of Novato. The District is approximately 1,984 acres
in size with a population of approximately 4,200 residents. The CSD boundaries include various
urbanized areas, including Marinwood, Lucas Valley, Casa Marinwood, Roundtree, Miller Creek
Gardens, Miller Creek Ranch, Lucas Valley Estates, and Las Gallinas Ranch. The Marin Municipal
Water District provides municipal water service and the Las Gallinas Valley Sanitary District
provides wastewater service to the CSD’s inhabited areas. The County provides sheriff,
community development, library, and street maintenance services. Marinwood CSD surrounds
Upper Lucas Valley on two sides and provides contract fire and emergency services to the
community.
Figure 6-1 shows the current Marinwood CSD boundary and SOI, as well as the district boundaries
of other service providers near Marinwood CSD. The land use around the CSD is shown in Figure
6-2.
Table 6-1: Marinwood CSD Overview
Marinwood Community Services District
Primary Contact Eric Dreikosen, District Manager: edreikosen@marinwood.org
Location 775 Miller Creek Road, San Rafael, CA 94903
Formation Date 1960 Enabling Legislation G.C. §61000 et seq.
Services Provided Fire Protection, Parks and Recreation, Open Space, Street Lighting
Other Municipal
Marin Municipal Water District; Las Gallinas Valley Sanitary District
Service Providers
District Boundary 1,984 acres (based on GIS boundary shapefiles)
Population Served 4,200 (based on Census Block data)
Marin LAFCo 49 San Rafael Region
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Sonoma
´
Marin
!
City of Novato
£¤
101
City of San Rafael
£¤
101
Parcel
Cities
District Boundary
District SOI
CSA #13 Upper Lucas Valley
0 0.5 1Miles
£¤
Redwood Hwy Figure
Marinwood CoCmitym of Suann Aintseylm oServices District Sources: Esri, U6SG-S1, NOAA
Date: 5/2/2019
Sources: Boundaries, Roads, Parcels: Marin Map GIS.
Sonoma
Marin
Novato
District Boundary Medium Density Residential (MF3; MF3.5)
District SOI High Density Residential (MF4)
San Rafael
County Land Use Rural Residential (SF3; SF4)
Agricultural (AG; AGC) Planned Residential (PR)
Commercial (GC; RC; NC; OC) Open Space (OS)
Industrial (IND) PD-Agriculture and Env Resource
Low Density Residential (SF5; SF6; MF2) Public Facility (PF) 0 0.5 1Miles
Sources: Esri, USGS, NOAA, Source: Esri, DigitalGlobe, GeoEye, EFairgthustraer
Marinwood CommunityGe ogSrapehicrs, vCNiESc/Aeirbuss D DS, UiSDsAt, UrSGiSc, AteroGRID, IGN, and the GIS
User Community 6-2
Land Use Designations
Date: 12/18/2018
Sources: Boundaries, Roads, Parcels: Marin Map GIS.
6.2 FORMATION AND DEVELOPMENT
The first homes in Marinwood were built near Highway 101 in 1955. At that time the closest San
Rafael city boundary was four miles to the south, at the top of Puerto Suello Hill, and the closest
Novato boundary was six miles to the north. In order to provide municipal services to the growing
community, particularly for fire protection, as well as to secure bond financing for Marinwood
Park, the firehouse, community center and pool, the Marinwood CSD was formed in 1960.
In 1972, the community again voted to tax itself to purchase open space on the ridge bordering the
community to preserve it from development. The original purchase of 321 acres has grown to more
than 812 acres as additional parcels have been purchased and developers are required to set aside
land as open space.
Notably, the District formation excluded Upper Lucas Valley, which lies between two distinct
jurisdictional areas of Marinwood CSD. Upper Lucas Valley was developed in 1961 as one of
Joseph Eichler’s last projects, keeping itself separate from Marinwood CSD and the San Rafael
city limits. It has its own community center, pool, stables, cable TV and broadband service. It has
long-standing Covenants, Conditions & Restrictions (CC&Rs) that prevent second stories and
teardowns. It has its own zoning district in the County Zoning Code with design guidelines to
preserve the architectural character of the Eichler homes.
6.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE
Marinwood CSD’s boundary is approximately 1,568 acres in size and includes two distinct
areas separated by CSA No. 13 – Upper Lucas Valley. The Marinwood CSD SOI
encompasses approximately 2,704 acres including agricultural/environmental resource lands
on the east side of Highway 101 north of the City of San Rafael.
6.4 POPULATION AND GROWTH
There is an Upper Lucas Valley-Marinwood Census Designated Place (CDP)45, so population
statistics are available for the District; however, the CDP encompasses the neighboring community
of Upper Lucas Valley and is, therefore, larger than the CSD. Based on the 2010 US Census for
the Lucas Valley-Marinwood CSD, there are 6,094 residents in the area, which is a decrease from
the 2000 Census which showed a total of 6,357 residents in the CDP.
6.5 MUNICIPAL SERVICES
Fire Services
Marinwood CSD provides a full range of fire protection services, including fire suppression,
rescue, advanced life support (ALS) and emergency medical services, hazardous material
control, and fire prevention services. The Marinwood Fire Department works closely and
cooperatively with neighboring fire departments to provide service to its community and
surrounding areas. It maintains shared services agreements with the City of San Rafael and
45 The U.S. Census Bureau defines CDPs as: “The statistical counterparts of incorporated places, and are delineated
to provide data for settled concentrations of population that are identifiable by name but are not legally
incorporated under the laws of the state in which they are located.”
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CSA No. 13. As a result of these agreements and in conjunction with other mutual aid
agreements, the District’s operational fire service area extends beyond District boundaries.
They serve the nearby unincorporated areas of Upper Lucas Valley, St. Vincent’s/Silveira,
and the incorporated northern neighborhoods of San Rafael, as well as some southern
neighborhoods of Novato.
The Marinwood CSD operates a single fire station located at Miller Creek Drive near Lucas
Valley Road. The District primarily utilizes paid staff and maintains a training program for
volunteer personnel. Currently, they employ nine full-time paid personnel and a contract Fire
Chief, three Shift Captains, and several firefighters/paramedics. Volunteer staffing includes a
Volunteer Battalion Chief and up to 20 volunteer firefighters. On average, the Marinwood
Fire Department responds to approximately 1,300 calls for service annually, most of which
are medical in nature. Beyond service calls, Department activities include training, equipment
maintenance, structure and vegetation management inspections, CERT support, and public
outreach.
The District has expressed concern for the needs of the growing community and the District’s
ability to continue providing adequate emergency response services. Internal financial
forecasting indicates that expenditures for fire and emergency response services will quickly
outpace revenues for the District46.
Agreement Between Marinwood CSD and the City of San Rafael
The City of San Rafael Fire Department and the Marinwood CSD have entered into a number
of contractual fire service agreements dating back as far as 1973. Through the most recent
agreement, a Joint Exercise of Powers Agreement (JEPA) initiated in April 2014, San Rafael
provides the District with administrative capacity, training, supplies, and response support. In
return, the District provides primary response to service calls in the northern neighborhoods
of the City (over 50% of District’s total annual service calls), giving faster response times for
San Rafael residents in the area. The agreement is to remain in place until participation is
terminated by one of the parties, with a 90-day notice.
In October 2018, longtime Marinwood CSD fire Chief Tom Roach retired. To fill the open
position, the District amended its existing JEPA with San Rafael to include Fire Chief Officer
Services to be provided by the City at a cost to the District of $96,320.00 annually, including
a 3% annual escalator for first 5 years then a re-evaluation by City of San Rafael47. This
agreement further codifies the shared services partnership between the two agencies.
Agreement Between Marinwood CSD and CSA No. 13 – Upper Lucas Valley
The Marinwood CSD provides fire and emergency services to the residents of CSA No. 13
through an annual agreement between the District and the County. The contract specifies that
the District agrees to provide fire protection and rescue services to the residents and property
owners of CSA No. 13, on the same basis as it provides services to the residents and property
46 Marinwood CSD, Marinwood Comments to Draft San Rafael Regional MSR, August 8, 2019.
47 Marinwood CSD, Review of Current Shared Services Agreement with San Rafael Memo, October 9, 2018.
Marin LAFCo 53 San Rafael Region
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owners of the District. CSA No. 13 currently pays the District approximately $601,317.00
annually for contract services. The exact amount is adjusted every year using an agreed-upon
formula, based on the percentage of building square feet within CSA No. 13 as compared to
the combined square footage of both Marinwood CSD and CSA No. 13.
Other Outside Agency Services
The District also contracts with the County to provide fire protection services to the area
referred to as “County Farm” on Jeanette Prandi Road. The area includes the juvenile hall,
court and community schools, Marin County Open Space district facilities and Rotary Valley
Senior Village.
Parks, Recreation and Open Space
The District identifies its Parks and Recreation services as an essential service, providing a
highly-valued gathering place for their community. They note that in many ways, the
Marinwood community is recognized by these services and it is a big part of their identity.
Marinwood CSD provides a variety of recreational facilities and programs. Seasonal
swimming and year-round tennis lessons are available for all ages. Other classes including
CPR, First Aid, and Lifeguard Training are also offered. Day and specialty camps are held
throughout the year to provide recreation opportunities for youth. The District estimates that
it serves 500-600 youths per day through its programs and employs 175-200 part-time staff
during the peak of summer (pool & camp). They note that staffing is always a challenge;
however, space to implement programs is the primary challenge for recreation programming.
The programs are popular, especially summer day camps, and district-owned space is
currently maxed out. More space would enable them to provide more programming.
Currently, the majority of available camps sell-out months in advance with significant waiting
lists.
A number of District facilities are available to the community for private rentals including the
reception hall, swimming pool, classroom, and various picnic and park areas. These rental
facilities are all located at Marinwood Park, 775 Miller Creek Road in San Rafael.
In addition to its facilities and programs, the District also facilitates several community events
including Music in the Park (summer), themed holiday events for youth, and other annual
events.
The Parks and Recreation Department also maintains street landscaping, including the Miller
Creek Road and Blackstone Drive center medians, the landscaped berms in Lucas Valley
Estates, and the pedestrian lanes connecting many of Marinwood’s streets. The Department
also maintains park facilities and grounds including Marinwood Park, Las Gallinas Park, and
Creekside Park. These parks are described in more detail below.
Marinwood Park
Marinwood Park, the largest of the District parks, is located on Miller Creek Road adjacent
to the Marinwood Community Center, Fire Station, and pool. The park consists of two large
lawns, a fenced playground divided into a tot and youth area, barbecues, four tennis courts,
Marin LAFCo 54 San Rafael Region
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and picnic tables. There is access to a creek and plenty of hiking paths along Miller Creek and
on Church Hill.
Las Gallinas Park
The Las Gallinas mini-park is located near Miller Creek Middle School at the entrance to a
multi-use trail connecting Las Gallinas to Miller Creek Road. There is a small park and a
playground.
Creekside Park
The Creekside Park is located on Creekside Drive in Lucas Valley Estates and consists of a
tennis court, fenced-in tot playground, and a larger playground.
Maintenance Facility
Marinwood CSD owns a district maintenance facility located at the northern end of
Marinwood Park. The facility includes office area and storage, which is used to store district
equipment and supplies used for park, open space, and facility maintenance purposes.
Originally built in 1965, the District reports that the maintenance facility is in poor condition
and potential flooding makes the facility unusable during heavy rain. In 2016 the Marinwood
CSD made the park maintenance facility replacement a priority project. Marin County
Measure A funding has been earmarked specifically for this project. The District maintains a
spreadsheet with anticipated timing for each facility need, not only for the maintenance
facility, but other District facilities as well.
Open Space
Marinwood CSD owns and maintains over 800 acres of open space, including much of the
Miller Creek corridor, ridges overlooking the community, and Blackstone Canyon. Fire roads
and trails afford many hiking and biking opportunities in the area.
The District has noted that current equipment and staffing levels make it challenging to
maintain such large areas of open space and that they may consider a future transfer of
ownership to another organization, should the provision of this service become unsustainable.
Street Lighting
Marinwood CSD owns, operates, maintains, and funds the cost of street lighting within the
community. Notably, Lucas Valley Estates does not have any street lighting facilities, which
was an intentional design of the original developer. Street lighting services are funded through
a $15 per parcel special assessment. The assessment only applies to parcels with lighting.
Expenditures incurred for services beyond the assessment revenues, such as large
maintenance needs, come out of the general fund.
6.6 ORGANIZATIONAL STRUCTURE
Board of Directors
Marinwood CSD is governed by a five-member board of Directors. Members serve four-year
terms and must be residents of Marinwood CSD. Board meetings are held at 7:30 PM on the
Marin LAFCo 55 San Rafael Region
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second Tuesday of each month at the Marinwood Community Center at 775 Miller Creek
Road, San Rafael, CA 94903.
The Marinwood CSD Board of Directors has two advisory commissions, including a Fire
Commission and a Parks and Recreation Commission that oversee the routine operations of
those District services. The five-member advisory commissions make recommendations to
the Board of Directors regarding policy and budgetary matters. All Board and Commission
meetings are open to the public. Agendas and meeting information are published online at
www.marinwood.org
Staffing and District Operations
Marinwood CSD employs on average 18 full-time employees, in addition to a contract Fire
Chief, as well as approximately 200 part-time, seasonal, and volunteer positions. The District
Manager oversees the operations of the District and reports to the Board of Directors.
Figure 6-3: Marinwood CSD Organization Chart
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6.7 ACCOUNTABILITY AND TRANSPARENCY
When conducting service reviews, LAFCo considers an agency’s accountability for
community service needs, including governmental structure, operational efficiencies48,
financial resources, and promoting public access49. Marinwood CSD offers multiple ways to
keep citizens informed about services, meetings, finances and decision-making processes.
Public notices are posted on the website. Past meeting agendas and meeting minutes may be
found in the archive section of the District’s website. The public may also provide verbal
comments or complaints by phone or in person at the CSD office during business hours and/or
at District meetings during the public comment period.
Marinwood CSD Meetings and Agendas
Agendas and minutes of board meetings are posted on the District’s website as required by
the Brown Act (AB 2257).50 A Brown Act amendment (G.C. Section 54954.2) effective
January 1, 2019, requires local agencies to comply with new agenda posting requirements
including a prominent, direct link on their primary web pages to the current meeting agenda.51
In addition, agendas must be in a format that is retrievable, downloadable, indexable, and
electronically searchable by commonly used Internet search applications.52 District meeting
agendas and minutes are currently posted online on the District’s website and are easily
searchable.
Annual Budget Review
The District posts its annual budgets and audits on its webpage through a link located on the
finance page of the website53. Currently, the public can access, and download the District’s
budgets and audits going back at least five fiscal years online through the District’s website.
Budgets are prepared and presented to the board of directors by the General Manager for
approval and adoption on an annual basis.
6.8 FINANCIAL OVERVIEW
The District Fiscal Year (FY) 2018-19 operating budget is $5,747,238.00, a decrease of
$310,135 from FY 2017/18. It receives the majority of its revenue from property taxes, and
three special taxes: fire, park maintenance, and street lighting. Another revenue is from fees
generated from recreational programs such as swimming pool and community building use,
and from recreation programs ranging from daycare and summer camp, to dance lessons. The
majority of CSD expenditures are for staffing and other personnel-related services including
benefits and retirement. Table 6-2 shows an abbreviated budget for the district. Property taxes
are allocated across departments. The District reports that their financial forecasts show
required expenditure growth quickly out pacing available revenue growth.
48 G.C. 56430(6)
49 G.C. 56881(2)
50Amendment to the Brown Act Provides for New Website and Agenda Requirements.
https://www.hansonbridgett.com/Publications/articles/2017-07-public-agency-brown-act
51 Amendment to the Brown Act Provides for New Website and Agenda Requirements
https://www.hansonbridgett.com/Publications/articles/2017-07-public-agency-brown-act
52 Ibid
53 http://www.marinwood.org/finance
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Table 6-2: Marinwood CSD Revenues and Expenditures for FY 2017-18 and FY 2018-19
FY 2018-19 Adopted
Revenues FY 2017-18 Adopted Budget
Budget
Current Secured Property Tax $1,499,855 $1,550,000
Other Property Taxes $72,421 $73,000
Special Tax Assessment $1,440,481 $1,488,242
Parks & Recreation $1,854,487 $2,081,409
OES Reimbursements $486,562 $0
CSA No. 13 Contract $627,014 $615,843
Other Revenues Combined $302,188 $301,520
Total Revenues $6,283,008 $6,110,014
FY 2018-19 Adopted
Expenditures FY 2017-18 Adopted Budget
Budget
Salaries – Regular Staff $1,537,160 $1,519,351
Salaries – PT/Seasonal Staff $894,377 $983,606
Benefits – Medical $534,823 $573,930
PERS – Pension $487,795 $546,520
Workers Compensation Insurance $244,420 $159,814
Social Security & Medicare 198,483 $203,925
Rec Program Contractors $134,668 $181,929
Land & Building Maintenance $573,000 $54,500
Rec Program Supplies & Services $273,000 $263,040
Capital Outlay - Improvements $66,750 $48,000
Capital Outlay – New Equipment $78,000 $63,000
Capital Reserves Designation $100,000 $100,000
Other Expenditures Combined $934,897 $1,049,623
Total Expenditures $6,057,373 $5,747,238
Net Total $225,635 $362,776
Financial Audit
Marinwood CSD is required to submit a complete financial audit to the County and State annually.
The most recent CSD audit was conducted in 2018 by Certified Public Accountants at R.J.
Ricciardi, Inc.
6.9 SUSTAINABILITY AND WILDFIRE
Local agencies play a critical role in protecting natural resources and the environment through land
conservation, water recycling, preserving open space, and renewable energy projects. Marinwood
CSD utilizes recycled water for landscaping where available and has converted street lights to
LEDs to the extent feasible throughout the District.
Warmer temperatures and longer drought periods increase the potential for wildfires that may
threaten structures in the District. Marinwood CSD is part of the countywide Community Wildfire
Protection Plan, maintained by FireSafe Marin. The District would benefit from continued
community education, preparedness, and mitigation efforts, including encouraging communities
to seek FireWise certification from the National Fire Protection Association.
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7.0 COUNTY SERVICE AREA NO. 6 – GALLINAS CREEK
7.1 OVERVIEW
County Service Area No. 6 (CSA No. 6) was formed by Board Resolution No. 8118 in 1964 and
encompasses an approximate 308.4 acres. CSA No. 6 is a single-purpose dependent special district
which provides maintenance dredging for navigation purposes to the unincorporated area along
the South Fork of Gallinas Creek. Table 7-1 below provides an overview of the CSA.
The South Fork Gallinas Creek borders the community of Santa Venetia in San Rafael. The
community was built on a tidal marshland that was dredged and filled starting in 191154. The
marsh was raised by six to eight feet and canals were created to provide water access for future
residents. Levees were also created to help keep tidal and flood waters at bay.
CSA No. 6 follows the South Fork of Gallinas Creek from its mouth at San Pablo Bay inland to
the community of Marin Lagoon. The boundary includes parcels with Creek frontage, and an
estimated 87 piers or docks55. An overview map is provided in Figure 7-1 and a land use map is
provided in Figure 7-2.
Additional service districts within and around CSA No. 6 include CSA No. 9 (Median
Maintenance), CSA No. 18 (Parks and Recreation), CSA No. 19 (Fire Protection Services), Las
Gallinas Valley Sanitary District, Marin Municipal Water District, and Flood Zone 7 – Santa
Venetia of the Marin County Flood Control and Water Conservation District. A portion of CSA
No. 6, the Marin Lagoon development, is also within the San Rafael city limits.
Table 7-1: CSA No. 6 Overview
CSA No. 6 - Gallinas Creek
Primary Contact Roger Leventhal
Phone (415)473-3249
Office Location: Department of Public Works,
3501 Civic Center Dr #304, San Rafael, CA 94903
Formation Date 1964 Services Provided Dredging
Service Area 308.4 acres Population Served 1,214
7.2 FORMATION AND DEVELOPMENT
CSA No. 6’s establishment was the result of landowners interest in dredging services for Gallinas
Creek. The original boundary of the CSA encompassed 270.8 acres along the South Fork of
Gallinas Creek. In 1988, the 37.6-acre Marin Lagoon development was annexed to the CSA which
brought the total area up to 308.4 acres. At the time, increasing the area allowed the CSA to obtain
a larger portion of the basic property tax that funds activities in the CSA. Now, with Prop 218 and
the County’s property tax exchange agreements, annexation today would not change the proportion
of basic property tax funds assigned to a CSA or other special district.
54 Santa Venetia Community Plan, February 2017, Chapter 2: Background
55 Based on Google Earth imagery from September 2018.
Marin LAFCo 59 San Rafael Region
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Sources: Boundaries, Roads, Parcels: Marin Map GIS.
The property owners with Lower Gallinas Creek frontage along the southern bank have an interest
in maintaining recreational boating access and have historically worked with Marin County
Department of Public Works to maintain channel depths in the creek by dredging. The channel is
prone to sediment buildup that reduces navigational capacity. The channel has been dredged four
times since the CSA’s establishment; most recently in 1992-9456.
7.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE
CSA No. 6’s sphere of influence is coterminous with its jurisdictional boundary which follows
Gallinas Creek from the west at the intersection of Edward Ave and Mark Twain Ave, to its
discharge point in San Pablo Bay. It includes a total of 479 parcels. Land uses within the CSA
boundary include Single Family Residential, Multiple Residential, Planned Bayfront Zone,
Planned Development, Commercial, and Agriculture. The majority of the residential lots within
the CSA have been developed.
7.4 POPULATION AND GROWTH
CSA No. 6 is within Census Tract 1060.02 and is made up of Census Blocks 1004, 1005, 1007,
1020, 2000, 2001, 2006, 2007, 2010, 2021, 2022, 2023 and 3003. According to 2010 US Census
data, the combined population of these blocks is 1,214. All developable parcels within the CSA
boundary have been developed and increased growth is unlikely.
The CSA is also within the community of Santa Venetia, which is Census Tract 1060.02. In 2010,
the US Census reported a population of 5,625, which is a decrease from the 2000 population of
5,745.
7.5 MUNICIPAL SERVICES
Dredging
CSA No. 6 was formed to provide dredging services for the South Fork Gallinas Creek in order to
provide boating access for creekfront properties. Dredging consists of removing built-up sediment
from the main channel of the creek and disposing of the sediment at a designated disposal site.
Based on anecdotal information from community members, siltation begins impeding boat passage
within three to seven years of dredging57.
Marin County staff have been working on plans for the next round of dredging which may begin
as early as 2020 depending on final design elements and permitting. Staff is recommending a
geomorphic dredge design which was developed by the Marin Flood Control District. While this
type of dredging has not been fully proven yet, it is anticipated that it will be less costly than
traditional dredging designs and create a narrower channel that should be more self-maintaining
over time.
The proposed dredging will utilize hydraulic dredging means and take place over approximately
10,500 feet (2 miles) from the confluence of the north and south forks of Gallinas Creek to Meriam
56 County of Marin, Public Works, Information for CSA No. 6 and CSA No. 29:
https://www.marincounty.org/depts/pw/divisions/public-services/county-service-areas
57 County of Marin, Public Works, Lower Las Gallinas Creek Dredge Channel Conceptual Design Study, March 2015.
Marin LAFCo 62 San Rafael Region
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Drive. It will increase channel depth to between 2.5 and 4 feet below the Mean Lower Low Water
(MLLW) level and remove approximately 97,000 cubic yards of sediment from the channel58.
These depths and volume may change based on the approved final design.
A sediment disposal site is still being determined. Two potential locations for disposal are the
McInnis County Park and Las Gallinas Valley Sanitary District Uplands Site. Both sites provide
opportunities for shared resources. McInnis County Park is a marsh area that is going through a
restoration process. The park could use the sediment for fill material that is needed as part of the
restoration and could potentially receive a grant for the disposal/fill process. This would decrease
costs for CSA No. 6 which could reserve funds for a subsequent dredging project.
The geomorphic dredging design will decrease the amount of sediment that needs to be removed
from the channel which will also help reduce costs. However, it will not provide the same depth
as traditional dredging and is not planned to reach the docks in the channel which may cause more
limited boat access than traditional dredging. A summary of prior dredging volumes is provided
below in Table 7-2.
Table 7-2: Gallinas Creek Past Dredging Volumes
Year(s) Dredge Depth (MLLW) Volume (cy)
1966 -5.9+1’ OD 460,000
1973 -5.9’ 114,200
1981 -3.9’ to -4.6’ 70,440
1992/94 -3.9’ to -4.6’ 138,348
2020 (Proposed) -2.5’ to 4.0’ +1 OD ~97,000
Permitting for the dredging project is underway and will potentially be completed in early 2020.
A project study report prepared by Winzler & Kelly in 2010 recommends several agencies for
permitting including United States Army Corps of Engineers, National Marine Fisheries Service,
United States Fish and Wildlife Service, California Department of Fish and Game, and San
Francisco Bay Conservation and Development Commission.
7.6 ORGANIZATIONAL STRUCTURE
Board of Directors
CSA No. 6 was formed as a dependent special district with the Marin County Board of Supervisors
as its governing body. The five county supervisors are elected to four-year terms of office with no
term limits. G.C. Section 25212 grants the Board of Supervisors rights and powers to administer
service areas. A county service area may only provide those services authorized in its formation
resolution unless the Board of Supervisors applies to and receives authorization from LAFCo for
activation of a latent power.
58 Cleengineering, Las Gallinas Dredging Sampling and Analysis Plan, April 2017
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The Board of Supervisors meets the second and fourth Tuesday every month at 9:00 a.m. in the
County of Marin Civic Building located at 3501 Civic Center Drive, Suite 329 in San Rafael. A
current listing of members along with respective backgrounds follows in Table 7-3.
Table 7-3: County of Marin Board of Supervisors
Member Position Experience Term
Damon Connolly
Supervisor Government Expires January 2023
(District 1)
Katie Rice
Vice-President Government Expires January 2021
(District 2)
Kate Sears
President Attorney Expires January 2022
(District 3)
Dennis Rodoni
2nd Vice-President Construction Expires January 2021
(District 4)
Judy Arnold
Supervisor Government Expires January 2023
(District 5)
Advisory Board
The Board of Supervisors appoints members to an Advisory Board that oversees CSA No. 6 and
advises the Board of Supervisors on necessary actions. This Advisory Board meets once a year to
review budgeted items and planned projects including design and engineering of upcoming
dredging projects. A written update is provided in the fall unless a meeting is needed to discuss a
special topic. The Advisory Board consists of five appointees as noted below in Table 7-4. Two
of the advisors are typically appointed from the Marin Lagoon neighborhood.
Table 7-4: CSA No. 6 Advisory Board Members
Member Position Term
William Adkison Advisor Appointed 07-26-11
Marlene Braverman Advisor Appointed 03-01-11
Bob Haar Chairperson Appointed 03-24-09
Kenneth King Advisor Appointed 07-27-10
Ellen Stein Vice-Chairperson Appointed 09-13-16
Staffing and District Operations
As a dependent special district of the County, all administrative services are provided by county
departments, including legal counsel and compilation of financial transaction reports for the State
Controller’s Office required under G.C. Section 53891. District projects are overseen by county
senior and principal engineers.
7.7 ACCOUNTABILITY AND TRANSPARENCY
Meetings and Agendas
Advisory Board meetings are held once per year and more often as needed. The meeting date,
time, and location are posted on the Marin Watershed Program website. Also posted on the website
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are agendas, staff reports, and prior meeting minutes. In 2018, the Advisory Board only met once.
The spring meeting was held on April 4, 2018, to discuss surveys of Gallinas Creek and planned
dredging operations. The most recent Advisory Board meeting was held on March 6, 2019.
Annual Budget Review
CSA No. 6 posts draft budgets on the Marin Watershed Program Website as part of meeting packet
materials. The draft budgets include actuals for the prior year, a proposed budget for the upcoming
year, and a planned budget for the following year. The CSA is included in the County of Marin
Comprehensive Annual Financial Report as a line item under Public Protection on the Budgetary
Comparison Schedule.
7.8 FINANCIAL OVERVIEW
CSA No. 6 is funded through a portion of the ad valorem property tax for properties served. Every
year county staff prepares a proposed budget for Advisory Board recommendation and Board of
Supervisors approval. Details of three current years are provided below in Table 7-5.
Table 7-5: CSA No. 6 Financial Summary
Revenues FY 2016-17 FY 2017-18 FY 2018-19 Adopted
Actuals Adopted Budget Budget
Secured Property Tax $219,083 $219,083 $220,179
Total Revenues $219,083 $219,083 $220,179
Expenditures FY 2016-17 FY 2017-18 Adopted FY 2018-19 Adopted
Actuals Budget Budget
Staffing $31,671 $27,292 $67,021
Professional Services $57,176 $90,318 $240,000
Miscellaneous 0 $4,000 $0
Total Expenditures $88,847 $121,610 $307,021
Net Total $130,236 $97,473 ($86,842)
Projected Fund Balance $2,444,382 $2,577,332 $2,490,489
The CSA is working with other county partners on shared planning and design which may have
the potential to reduce costs for the CSA. However, in the event that cost sharing does not occur,
CSA No. 6 has no other means to fund dredging activities on a routine schedule. Future dredging
costs are anticipated to rise which may require a better long-term funding mechanism for the CSA.
Creation of long-term budget forecasts and an ideal maintenance schedule would help determine
what additional funding sources should be considered such as special assessments or taxes.
7.9 SUSTAINABILITY
Local agencies play a critical role in protecting natural resources and the environment. CSA No. 6
is researching the best methods for dredging the South Fork of Gallinas Creek that will protect
sensitive marshland habitats while still providing adequate boating access. The proposed
geomorphic dredging will also help reduce costs for the district and potentially lengthen the
amount of the time between necessary dredging which may help the CSA maintain an adequate
budget for future activities.
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8.0 COUNTY SERVICE AREA NO. 9 – NORTHBRIDGE
8.1 OVERVIEW
County Service Area No. 9 (CSA No. 9) was formed by Marin County Board of Supervisors
Resolution No. 8657 in 1965 and encompasses an approximate 46-acre jurisdictional boundary.
CSA No. 9 is a dependent special district and provides landscape maintenance to the street and
median strip of the unincorporated properties in the Civic Center and Santa Venetia areas. CSA
No. 9 provides a limited range of municipal services either directly or by contract with other
governmental agencies or private companies. A CSA No. 9 overview is provided in Table 8-1.
The Northbridge neighborhood can be accessed by Meriam Drive from the North San Pedro Road
and Woodoaks Drive intersection in San Rafael. Meriam Drive extends northwest through the
neighborhood offering street parking on either side and has a landscaped median that extends from
North San Pedro Road to Mark Twain Avenue for a total distance of 1,243 feet. Landscaping
within the median consists of well-established trees, shrubs, grasses, and vines. Additionally,
several utility poles have been placed within the median to service the neighborhood.
Additional service districts within and around CSA No. 9 include CSA No. 6 (Dredging), CSA
No. 18 (Parks and Recreation), CSA No. 19 (Fire Protection Services), Las Gallinas Valley
Sanitary District, and Marin Municipal Water District.
Table 8-1: CSA No. 9 Overview
CSA No. 9 - Northbridge
Primary Contact James Chayka
Phone (415)473-3639
Office Location Marin County Parks,
3501 Civic Center Drive, #260, San Rafael, CA 94903
Formation Date 1965
Services Provided Parkway (Median) Landscape Maintenance
Service Area 46 acres Population Served 406
8.2 FORMATION AND DEVELOPMENT
CSA No. 9’s establishment was the result of a petition by more than 10% of the areas registered
voters directly to the County Board of Supervisors. A public hearing was held and subsequently,
CSA No. 9 was established by County Board Resolution No. 8657 in September 1965.
8.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE
CSA No. 9’s jurisdictional boundary encompasses 46 acres. Surrounding land use is primarily
medium and high residential with some public and open space lands. CSA No.9’s sphere of
influence is coterminous with its jurisdictional boundary, as shown in Figure 8-1. Land use around
CSA No.9 is shown in Figure 8-2.
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Sources: Boundaries, Roads, Parcels: Marin Map GIS.
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Sources: Esri, USG8S,- N2OAA
Map Date: 5/24/2019
Sources: Boundaries, Roads, Parcels: Marin Map GIS.
The CSA is within the Santa Venetia community which is an Unincorporated Island. The Santa
Venetia community has a specific Community Plan and has a neighborhood association overseen
by a volunteer board. The neighborhood association has a subcommittee and special fund for
median and curb maintenance. Volunteer work groups gather once a month to conduct
maintenance in areas around the community, not including the Northbridge neighborhood. This
association is valuable to the community and has the opportunity to work closely with County staff
on community service needs.
8.4 POPULATION AND GROWTH
The CSA includes 175 total assessor parcels. All parcels within the boundary are developed single-
family residences. The CSA is made up of several Census Blocks including 2005, 2023, 2024,
2025, 2026, 2027, 2028, 2029, and 2030. Utilizing population counts from the 2010 US Census
and average household size for those blocks whose area is larger than the CSA boundary, the
population is an estimated 406.
8.5 MUNICIPAL SERVICES
Landscape Maintenance
CSA No. 9, through Marin County Parks, contracts with Gardeners’ Guild for regular maintenance
of the median strip along Meriam Drive. Regular maintenance includes irrigation, litter removal,
mowing, curb and gutter cleaning, pruning, and fertilizing. A maintenance schedule summary is
provided below in Table 8-2.
Table 8-2: CSA No. 9 Maintenance Schedule Summary
Maintenance Activity
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Curb and Gutter Cleaning X
Irrigation System Inspection (Apr-Oct) X
It has been noted by County staff that residents within CSA would like to see a higher level of
service in the CSA including better signage and maintenance practices. A planning document
outlining the needs and desires of the community would help determine long-term budget needs.
8.6 ORGANIZATIONAL STRUCTURE
Board of Supervisors and Advisory Board
CSA No. 9 was formed as a dependent special district with the Marin County Board of Supervisors
as its governing body. The five county supervisors are elected to four-year terms of office with no
term limits. G.C. Section 25212 grants the Board of Supervisors rights and powers to administer
service areas. A county service area may only provide those services authorized in its formation
resolution unless the Board of Supervisors applies to and receives authorization from LAFCo for
activation of a latent power.
The Board of Supervisors meets the second and fourth Tuesday every month at 9:00 a.m. in the
County of Marin Civic Building located at 3501 Civic Center Drive, Suite 329 in San Rafael. A
current listing of members along with respective backgrounds can be found in Table 7-3 in Section
7.6.
Staffing and District Operations
As a dependent special district of the County, all administrative services are provided by county
departments, including legal counsel and compilation of financial transaction reports for the State
Controller’s Office required under G.C. Section 53891. Maintenance activities are contracted out
to a landscape company.
8.7 ACCOUNTABILITY AND TRANSPARENCY
Meetings and Agendas
County Board of Supervisors meetings are held three times a month at 3501 Civic Center Drive,
Room 330, San Rafael. Meeting dates, times, agendas, and minutes are posted on the Marin
County website.
Annual Budget Review
County staff prepares and submits an annual budget for Board review and approval. Maintenance
for CSA No. 9 is included in a larger contract with Gardeners’ Guild.
8.8 FINANCIAL OVERVIEW
CSA No. 9 is funded by property taxes and an approved special tax collected from parcels within
its boundary. An annual budget is prepared for the County of Marin and includes details for special
districts within the county. A summary of three years’ budgets for CSA No. 9 is provided below
in Table 8-3.
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Table 8-3: CSA No. 9 Financial Summary59
Revenues FY 2016-17 FY 2017-18 FY 2018-19 Adopted
Actuals Estimated Budget
Current Secured
Property Tax $17,812 $18,537 $18,150
Other Revenue $314 $488 $0
Total Revenues $18,126 $19,025 $18,150
Expenditures FY 2016-17 FY 2017-18 Adopted FY 2018-19 Adopted
Actuals Budget Budget
Services and Supplies $16,483 $19,659 $23,175
Interfund Expense $5,810 $5,980 $6,173
Total Expenditures $22,293 $25,639 $29,348
Net Total ($4,167) ($6,614) ($11,198)
County staff makes an effort to minimize the amount of maintenance needed for the Meriam Drive
median strip in order to keep costs down for the CSA and operate within budget limitations.
However, rising costs of maintenance are creating a budget deficit. The current revenue from
property taxes and other sources is not sufficient to cover annual expenditures. Since there is a
budget deficit and the community has expressed an interest in a higher level of service, the CSA
could look at other sources of long-term revenue, such as a special assessment, that can help
provide a more sustainable budget.
Financial Audit
The County of Marin operates an Internal Audit Unit within its Department of Finance. The unit
provides continuous monitoring of the County’s activities and reports to management staff on the
results of risk evaluations.
8.9 SUSTAINABILITY
Warmer temperatures and extended drought periods have the potential to increase the amount of
water used to maintain landscaped areas. This not only puts a strain on resources but also has the
potential to raise costs for the CSA. Looking into the use of recycled water and/or use of drought
tolerant plants may help reduce the need for potable water in periods of extended drought.
59 Financial data pulled from County of Marin, 2018-2019 Final Budget.
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9.0 COUNTY SERVICE AREA NO. 13 - UPPER LUCAS
VALLEY
9.1 OVERVIEW
County Service Area No. 13 (CSA No. 13) is a dependent special district established in 1967 and
organized pursuant to California G.C. Section 25210 et seq. CSA No. 13’s activated powers under
LAFCo include fire protection & emergency services, recreation services, and erosion control &
soil conservation. A summary of CSA No. 13 is provided in Table 9-1.
Located west of U.S. 101 between the northern boundary of the City of San Rafael and the southern
boundary of the City of Novato, CSA No. 13 covers 624 acres (~1 square mile) of the
unincorporated Lucas Valley area, located in the northwest portion of Gallinas Valley and includes
a portion of the Nunes Ranch. The CSA is surrounded on two sides by Marinwood CSD and fire
and emergency services are provided to the community through a contract with Marinwood CSD
fire department. Figure 9-1 shows the current CSA No. 13 - Upper Lucas Valley boundary and
SOI, Marinwood CSD and SOI, and the district boundaries of other service providers near the
CSA. Land use from the Marin County General Plan is shown in Figure 9-2.
Table 9-1: CSA No. 13 Overview
CSA No. 13 Upper Lucas Valley
Contact: Daniel Eilerman, Assistant County Administrator
Fire Services Erik Driekosen, Marinwood Community Services District
Contact: Fire Department (via contract)
Formation Date: 1967 Enabling Legislation: Gov. Code Sec. 25210 et. seq.
Services Provided: Fire Protection and Parks and Recreation
District Boundary: 624 Acres
Budget: $887,000 (FY 2019-20)
9.2 FORMATION AND DEVELOPMENT
Upper Lucas Valley has remained an unincorporated community since its development in the early
1960s as one of developer Joseph Eichler’s last projects. The neighborhood maintains a well-
organized homeowners association (the Lucas Valley Homeowners Association, or "LVHA")
which provides several community amenities and has policies in place to maintain the integrity of
the Eichler development. Marin County enforces zoning standards and design guidelines
specifically to preserve the architectural character of the Eichler homes.
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Map Date: 5/24/2019
Sources: Boundaries, Roads, Parcels: Marin Map GIS.
CSA No. 13 formed in 1967 to provide fire protection to the community. A county service area
may only provide those services authorized in its formation resolution unless the Board of
Supervisors applies to and receives LAFCo authorization for activation of a latent power. In 1971
LAFCo approved the activation of a latent power of the CSA, allowing the agency to provide local
park and recreation facility services as an extended service within said District60. In 2004, the
CSA’s services were again extended to include erosion control and soil conservation61 for
mitigation of flood risk along Miller Creek, as resources allow.
9.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE
CSA No. 13’s sphere of influence is coterminous with its jurisdictional boundary and encompasses
approximately one square mile. Their sphere was last reviewed and updated by LAFCo in 2006.
9.4 POPULATION AND GROWTH
There is an Upper Lucas Valley-Marinwood Census Designated Place (CDP)62, so population
statistics are available for the area; however, the CDP also encompasses the neighboring
community of Marinwood and is, therefore, larger than CSA No. 13. Based on the 2010 US Census
for the Lucas Valley-Marinwood CSD, there are 6,094 residents in the area, which is a decrease
from the 2000 Census which showed a total of 6,357 residents in the CDP. Given that the land
within CSA No. 13 consists of a developed neighborhood and County-owned open space, the
population within the CSA will likely remain consistent with the current population.
9.5 MUNICIPAL SERVICES
Parks and Recreation
CSA No. 13 is the primary service provider for open space maintenance in the unincorporated
areas of Upper Lucas Valley. Under G.C. Section 25213 (County Service Area Services and
Facilities), CSA No. 13’s Recreation service power includes providing services and facilities for
parks, parkways, and open space. These activities are limited largely to vegetation management
on an as-needed basis.
The County owns and operates the approximately 380-acre open space preserve located in CSA
No. 13. Open space preserves are generally kept in a natural condition for environmental and
wildlife habitat protection with only low-intensity recreation amenities provided. Although owned
by Marin County, the open space area is not a part of the County’s Open Space District, also
referred to as Marin County Parks (See Figure 9-3, below).
The County Administrator’s office indicates that it does not provide trail maintenance or manage
recreational facilities on the property, and maintenance activities occur as needed and are largely
limited to vegetation management and annual/pre-storm maintenance of several trash racks. They
60 Marin County Board of Supervisors Resolution 71-365, Resolution Directing the Provision of Additional Types of Extended Services Within
County Service Area No. 13. December 28, 1971.
61 Marin County Board of Supervisors Resolution 2004-63, Resolution Directing the Provision of Additional Types of Extended Services Within
County Service Area No. 13. June 29, 2004.
62 The U.S. Census Bureau defines CDPs as: “The statistical counterparts of incorporated places, and are delineated to provide data for settled
concentrations of population that are identifiable by name but are not legally incorporated under the laws of the state in which they are located.”
Marin LAFCo 75 San Rafael Region
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further noted that CSA No. 13’s current funding constraints limit the County’s capacity to manage
the CSA No. 13 open space area like Marin County Parks manages its open space preserves, nor
does it have an adequate budget for larger activities/capital projects.
Figure 9-3: Lucas Valley Preserve Map
(Excerpt of Marin County Park’s Lucas Valley Preserve Map)
Fire Services
The Marinwood CSD provides fire and emergency services to the residents of CSA No. 13 through
an annual agreement between the District and the County. See Marinwood CSD profile for
complete details of Marinwood CSD fire operations. The contract specifies that the District agrees
to provide fire protection and rescue services to the residents and property owners of CSA No. 13,
on the same basis as it provides services to the residents and property owners of the District. CSA
No. 13 currently pays the District approximately $600,000 annually for contract services. The
amount is adjusted every year using an agreed-upon formula, based on the building square foot
percentage within CSA No. 13 as compared to the combined Marinwood CSD and CSA No. 13
square footage.
Erosion Control & Soil Conservation
In 2004 the Lucas Valley Home Owners Association Board of Directors requested and the Marin
County Board of Supervisors approved63 the extension of services of CSA No.13 to provide
erosion control and soil conservation along the portion of Miller Creek that flows through CSA
63 Marin County Resolution No. 2004-63, Directing the Provision of Additional Types f Extended Services within County
Service Area No. 13. June 29, 2004.
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No. 13. Currently, CSA No. 13 provides vegetation and drainage management on an as needed
basis within available resources.
9.6 ORGANIZATIONAL STRUCTURE
As a dependent special district, the Marin County Board of Supervisors is the CSA’s governing
body. The five-member Board of Supervisors generally meets most Tuesdays of every month at
9:00 a.m. in the Marin County Civic Center Building located at 3501 Civic Center Drive, Room
330 in San Rafael. The Board of Supervisors determines policy, adopts annual budgets, fixes
salaries, is responsible for ensuring that mandated functions are properly discharged, and
supervised.
CSA No. 13 operates under the direction of the elected Board of Supervisors. As a dependent
special district of the County, any administrative services are provided by county departments,
including legal counsel and compilation of financial transaction reports for the State Controller’s
Office required under G.C. Section 53891. The Marin County Administrator’s Office administers
CSA No. 13 and provides necessary support for maintaining and servicing the District. Department
personnel is used for administration of the District and open space management service, as needed.
9.7 FINANCES
Revenues and Expenses
CSA No. 13 revenue sources come primarily from apportionment of the voter-approved 1%
property tax that amounts to approximately $550,000 annually (See Table 9-2). The parcel tax is
a special tax identified by the State Controller as “102240 CSA No. 13 Upper Lucas Valley Fire”
to be used for fire protection, prevention, and suppression services64. Levied at a rate of 12 cents
per square foot of “improvement” per parcel annually, as assessed by the Marin County Assessor’s
Office, this tax provides approximately $140,000 per year to CSA No. 13 and does not have a
sunset date. Total annual revenues for the CSA average $750,000 annually, consisting largely of
secured property tax revenues.
The bulk of the CSA’s expenses correlate to fire-related services and its contract with Marinwood
CSD for these services. Other expenses account for minor administration costs and limited open
space/creek maintenance services (See Table 9-2). CSA No. 13’s 2018-19 FY and 2019-20 FY
budgeted expenses are anticipated to exceed revenues, but historic conservative budgeting
practices afford services within available resources. Any overages would be absorbed by the
CSA’s fund balance that historically fluctuates between $500,000 and $600,000. There are no
debt obligations for CSA No. 13.
64 California State Controller Special Districts Parcel Tax Report, Fiscal Year 2016-17. https://www.sco.ca.gov/Files-ARD-Local/LocRep/2016-
17%20Parcel%20Tax%20Report.pdf
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Table 9-2: CSA No. 13 Revenues and Expenditures for FY 2017-18 and FY 2018-19
FY 2017-18 Actuals FY 2018-19 Adopted
Revenues
Budget
Property Tax $546,755 $577,823
Special Tax Assessment (102240) $138,986 $140,000
Other Taxes $50,418 $42,450
Investment Income $7,179 $3,010
Misc. Revenues $1,600 $0
Intergovernmental $2,604 $2,500
Total Revenues $747,542 $765,783
FY 2017-18 Actuals FY 2018-19 Adopted
Expenditures
Budget
Tax Collection Fees $1,104 $0
SB2557 Admin Fees $8,403 $8,500
Maintenance- Buildings and Improvement $23,762 $25,000
Services & Supplies - Miscellaneous $17,351 $150,000
Professional and Special Services $627,014 $675,000
Interfund Expenses and Cost Rec $7,639 $12,148
Total Expenditures $685,273 $870,648
Net Total $62,269 -$104,865
For sustained fire protection & emergency services, recreation services, and erosion control & soil
conservation, the County coordinates with the City of San Rafael, Marinwood CSD, and the Marin
Open Space District to provide these services and maintain recreation resources for community
benefit. This includes mutual aid fire protection and emergency response services and service cost
sharing. However, rising services cost are exceeding the current property tax revenue.
Financial Audit
The County of Marin operates an Internal Audit Unit within its Department of Finance. The unit
provides continuous monitoring of the County’s activities and reports to management staff on the
results of risk evaluations.
9.8 SUSTAINABILITY
Warmer temperatures and longer drought periods increase the potential for wildfires that may
threaten structures in the CSA. Local fire agencies may want to continue education efforts and
collaboration through the Community Wildfire Protection Plan that promote Firewise
Communities as outlined by the National Fire Protection Association.
Marin LAFCo 78 San Rafael Region
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10.0 COUNTY SERVICE AREA NO. 18 - LAS GALLINAS
10.1 OVERVIEW
County Service Area No. 18 (CSA No. 18) is a dependent single-purpose special district organized
to provide parks and recreation services pursuant to County Service Area Law (California G.C.
Section 25210 et seq). CSA No. 18 consists of approximately six square miles (3,914 acres) and
includes both incorporated and unincorporated territory in the northern San Rafael area. An
overview of CSA No. 18 is provided in Table 10-1. Figure 10-1 shows the current CSA No. 18
boundary and SOI, and the agency boundaries of other service providers near CSA No. 18. Land
use areas around the CSA are shown in Figure 10-2. The San Pedro Open Space Preserve is
currently managed by the Marin County Department of Parks and Open Space with fire services
being provided by CSA No. 19 and CSA No. 31.
Table 10-1: CSA No. 18 Overview
CSA No. 18 - Las Gallinas
Primary Contact Jim Chayka, Superintendent Marin County Parks
Phone: (415)473-3639 Email: jchayka@marincounty.org
Location: 3501 Civic Center Drive, Suite 260 San Rafael, CA 94903
Formation Date 1973
Services Provided Parks and Recreation
10.2 FORMATION AND DEVELOPMENT
CSA No. 18 was formed in 1973 for the purposes of providing local park and recreation facilities
and services (LAFCo Resolution No. 73-10 and Marin County Board of Supervisors Resolution
No. 73-242). At the time of formation, CSA No. 18 boundaries were drawn to include
unincorporated parcels within the San Pedro Mountain viewshed. Following formation, a 20-year,
$500,000 assessment district bond was approved to fund the acquisition and preservation of 257
acres of the San Pedro Mountain as open space. Following the bond repayment in 1994, the Marin
County Open Space District took over San Pedro Mountain management as an open space
preserve.
A separate entity within the CSA No. 18 boundary, formerly known as the Gallinas Village
Community Services District (CSD), was originally established in 1957 for developing and
maintaining local parks and a community sewer system. In 1964 the sewer system was transferred
to the Las Gallinas Valley Sanitary District, while the CSD continued to develop and maintain
parks. However, in 1986 the CSD was dissolved, with CSA No. 18 serving as the successor agency
(LAFCo Resolution No. 85-16 and Marin County Board of Supervisors Resolution No. 86-34).
This action resulted in the creation of a “Zone of Benefit” within CSA No. 18 (which coincided
with the former CSD boundaries), whereby all property tax revenue would continue to be collected
to benefit services to the “Gallinas Village Community”. In addition, an Advisory Board consisting
of five members was established to make recommendations to the Board of Supervisors concerning
local services. The Zone of Benefit is shown in Figure 10-3.
Marin LAFCo 79 San Rafael Region
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Country Club
Zone of Benefit
CSA No. 9 Northbridge
CSA No. 6 Gallinas Creek
CSA No. 23 Terra Linda
0 0.5 1Miles
Mapping provided by: Figure
CSA No. 18 - Las Gallinas
Sources: Esri, USGS, NOAA
10-1
Map Date: 5/24/2019
Sources: Boundaries, Roads, Parcels: Marin Map GIS.
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Single Family Residential Residential Two Family (R2)
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Mapping provided by: Figure
CSA No. 18 - Las Gallinas Zoning
Sources: Esri, USGS, NOAA
10-2
Map Date: 5/24/2019
Sources: Boundaries, Roads, Parcels: Marin Map GIS.
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CSA #18 - Las Gallinas Mapping provided by: Figure
Zone of Benefit 10-3
Map Date: 5/24/2019
Sources: Boundaries, Roads, Parcels: Marin Map GIS.
10.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE
The jurisdictional boundary for CSA No. 18 encompasses a total of 3,914 acres and has remained
unchanged since formation. The CSA boundary included only unincorporated territory at the time
of formation; however, annexations to the City of San Rafael have occurred over time resulting in
approximately 1,286 acres in the western portion of CSA that overlaps with the city. Currently,
the CSA No. 18 SOI is coterminous with the district boundary.
As discussed previously, a Zone of Benefit was established within CSA No. 18 as part of the
dissolution of Gallinas Valley CSD in 1986. Currently, property taxes are only collected within
this Zone of Benefit and are intended to benefit and support services or facilities within the zone.
Considering the majority of CSA No. 18 facilities and associated funding are tied to the Zone of
Benefit, the district has been exploring various boundary and funding options, including reducing
the boundary of the CSA to match the boundaries of the Zone of Benefit. Should a boundary
reduction be considered further, an SOI reduction would be necessary.
10.4 POPULATION AND GROWTH
The area population is approximately 9,200 based on the 2010 census.
10.5 MUNICIPAL SERVICES
Parks and Recreation
As mentioned previously, CSA No. 18 was originally formed to fund the acquisition and
preservation of the San Pedro Mountain area. Following bond repayment in 1994, the Marin
County Open Space District took over the management of the San Pedro Mountain Open Space
Preserve. Today, CSA No. 18 maintains four parks, including the Adrian-Rosal Park, Castro Park,
Pueblo Park and Candy’s Park (Table 10-2). Three of the four parks (excluding Castro Park) are
located within the CSA No. 18 Zone of Benefit and were transferred to the CSA as part of the
dissolution of Gallinas Valley CSD in 1986. Castro Park was acquired in 1994 and added to the
facilities maintained by CSA No. 18.
Table 10-2: CSA No. 18 Parks, Recreation and Open Space
Facility Type Acreage Amenities and Services
Adrian-Rosal Park Mini-Park 0.7 Multi-Purpose Turf Area, Picnic Area, Drinking
Fountain, and BBQ
Castro Park Neighborhood 1.5 Benches, Drinking Fountain, Picnic Tables,
Park Playfields, Playground
Pueblo Park Mini-Park 2.0 Tennis Court, Half Basketball Court, Picnic
Area, Playground Equipment
Candy’s Park Mini-Park 0.1 Benches, Drinking Fountain, Picnic Tables,
Playground
(Source: Marin Countywide Plan Parks and Recreation Technical Background Report)
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Adrian-Rosal
Adrian-Rosal Park is a small mini-park (0.70 acres) serving a local neighborhood in Santa Venetia.
The park is on the corner of Adrian Way and Rosal Way and shares boundaries on two sides with
residences. Facilities include a multipurpose turf area, small picnic area, drinking fountain, and a
barbeque. The picnic and BBQ pit areas are ADA accessible. Marin County Parks plans to install
a restroom facility and complete a picnic area enhancement project.
Castro Park
Formerly a Little League baseball field, Castro Field Park is a unique mini-park (1.49 acres)
enclosed by the neighborhood it serves. The park boundaries are marked by neighboring residential
fences and street access is across easements between lots. The park was first renovated in 2003
and another renovation was completed by Marin County Parks, in conjunction with CSA No. 18,
in 2014. Facilities include a children’s play area, turf volleyball court, picnic tables with BBQs,
and an open turf area. The walking path, play area, and picnic tables are ADA accessible.
Pueblo Park
Pueblo Park is a small but very popular mini-park (two acres) serving the surrounding
neighborhood in Santa Venetia. The park is situated between Descanso Way and Hacienda Way.
Facilities include a tennis court, a half basketball court, a large multi-purpose turf area, a small
picnic area, and playground. The play areas, tennis court, and basketball court are ADA accessible.
Candy’s Park
Candy’s Park is a very tiny pocket park (0.1 acres) serving the Santa Venetia neighborhood that
surrounds it. It includes a small gated playground for young children, a climbing structure, tot
swing, and picnic area. The playground is ADA accessible.
10.6 ORGANIZATIONAL STRUCTURE
Board of Supervisors and Advisory Board
As a dependent special district, the Marin County Board of Supervisors serves as the CSA’s
governing body. The five-member Board of Supervisors meets the second and fourth Tuesday
every month at 9:00 a.m. in the County of Marin Civic Building located at 3501 Civic Center
Drive, Suite 260 in San Rafael. The Board of Supervisors determines policy, adopts annual
budgets, fixes salaries, and is responsible for overseeing mandated district functions as carried out
by various county departments.
As noted previously, a CSA No. 18 Advisory Board was established by the Board of Supervisors
as part of the Gallinas Valley CSD dissolution in 1986. The Board of Supervisors appointed
Advisory Board consists of five members, serving two-year terms (Table 10-3). The Board acts in
an advisory capacity to Marin County Parks staff and the Board of Supervisors on matters relating
to funding, management and operation of parks and open space facilities and services within the
boundaries of CSA No. 18. The Advisory Board typically meets twice a year in February and
September, unless there is a pressing need to meet more frequently. Advisory Board meetings are
also held at the County of Marin Civic Building located at 3501 Civic Center Drive, Suite 260 in
San Rafael.
Marin LAFCo 84 San Rafael Region
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Table 10-3: CSA No. 18 Advisory Board
Advisor Term Expiration
Joyce Clements 2020
Gina Hagen 2019
Linda Levey 2020
Ellen Stein 2019
Karen Thompson 2019
Staffing and Agency Operations
As a dependent special district of the county, the Marin County Parks and Open Space Department
administers CSA No. 18 and provides necessary staffing for operating and maintaining district
facilities and services. In addition, all CSA-related administrative services are provided by other
county departments as needed. For instance, the County Department of Finance conducts an annual
audit of the district’s finances as part of the county’s audit process and completes annual financial
reports for the State Controller’s Office required under G.C. Section 53891.
10.7 ACCOUNTABILITY AND TRANSPARENCY
When conducting service reviews, LAFCo considers an agency’s accountability for community
service needs, including governmental structure, operational efficiencies, financial resources, and
promoting public access65. Currently, CSA No. 18 offers multiple ways to keep citizens informed
about its services, meetings, finances, and the decision-making processes, with the CSA No. 18
Advisory Board serving as the primary conduit between the community, Marin County Parks staff,
and the Board of Supervisors. The Advisory Board has a dedicated webpage on the Marin County
Parks website where current and past agendas and minutes, current board membership, and contact
information is posted in accordance with the Brown Act66. In addition, all meetings are be properly
noticed and time is provided for public comment at each meeting.
10.8 FINANCIAL SUMMARY
The majority of the CSA No. 18 budget comes from property tax revenue which is generated within
the Zone of Benefit area. Other revenue is generated from grants and other smaller sources.
According to the Annual Financial Transactions Reports published by the State Controller’s
Office, CSA No. 18’s total revenues for FY 2016-17 were $155,335, whereas total expenditures
were $177,795. Additional revenue is needed to offset costs associated with park operations and
maintenance. CSA No. 18 currently does not have a capital improvement plan; however, Marin
County Parks has been working with the CSA No. 18 Advisory Committee to explore alternate
boundary and funding options as discussed in more detail in the following section.
65 G.C. 56881(2)
66 (https://www.marincountyparks.org/about-us/boards-and-commissions/csa18)
Marin LAFCo 85 San Rafael Region
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Table 10-4: CSA No. 18 Revenues and Expenditures
Revenues FY 2016-17 FY 2015-16 FY 2014-15
Taxes and Assessments $153,290 $143,024 $135,072
Revenue from Use of Money $1,313 $717 $751
Intergovernmental Funds $729 $736 $748
Total Revenues $155,335 $144,477 $136,571
Expenditures
Services & Supplies $124,043 $230,406 $59,538
Other $53,752 $59,426 $43,129
Total Expenditures $177,795 $289,832 $102,667
Net Total (Deficit) ($22,460) ($145,355) $33,904
Source: California State Controller’s Office
10.9 GOVERNANCE STRUCTURE OPTIONS
As discussed above, CSA No. 18 is principally funded by property taxes collected within the Zone
of Benefit boundary (formerly the Gallinas CSD service area). While CSA No. 18 is authorized to
provide park and recreation services within the Zone of Benefit and the CSA boundary as a whole,
there must be a nexus between properties and improvements/services that are funded by revenues
collected within the Zone of Benefit. In addition, increasing operations and maintenance costs are
exceeding available revenue to fund district services. As such, the CSA No. 18 Advisory Board
along with Marin County Parks staff have begun to explore alternate boundary and funding
options, as summarized below:
1) Maintain the status quo (make no changes): maintain all current boundaries and continue
operations as currently being delivered.
2) Reduce CSA No. 18 boundaries to reflect the current Zone of Benefit with the inclusion of
Castro Park as an “island” park within which CSA No. 18 would continue to maintain.
3) Reduce CSA No. 18 boundaries to include areas from Meadow Drive east to
Sunnyoaks/Bayhills Drive. The parcels in this amended CSA No. 18 boundary that are not
currently part of the Zone of Benefit would ideally be asked to vote on a special assessment
to allow them to contribute financially to CSA No. 18.
LAFCo staff recommendation would be to shrink the boundaries of CSA 18 to only include the
Zone of Benefit and have the SOI encompass the immediately surrounding areas that might be
added to district later once neighbors in surrounding areas have agreed to assessment and join the
CSA in a similar manner as the current members of the Zone of Benefit.
Marin LAFCo 86 San Rafael Region
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11.0 COUNTY SERVICE AREA NO. 19 – SAN RAFAEL FIRE
11.1 OVERVIEW
County Service Area No. 19 (CSA No. 19) was formed in 1974 and encompasses an approximate
2.65 square mile jurisdictional boundary. CSA No. 19 is a dependent special district and provides
structural fire protection services to the unincorporated areas of McNear’s Beach, Bayside Acres,
Country Club, California Park, Sun Valley, Los Ranchitos, San Pablo-Tarrant Circle Area, and
Santa Venetia. It contracts with the City of San Rafael to provide fire protection and emergency
response services to the residents. The CSA boundary can be seen in Figure 11-1. Land use around
the CSA is shown in Figure 11-2.
Table 11-1: CSA No. 19 Overview
CSA No. 19 - San Rafael
Primary Contact Daniel Eilerman, Assistant County Administrator
Fire Contact Chief Christopher Gray, City of San Rafael Fire Department
Phone (415)473-7364 E-Mail DEilerman@marincounty.org
Office Location 3501 Civic Center Drive, Suite 325, San Rafael, CA 94903
Formation Date November 1974
Services Provided Fire Protection and Emergency Response
Population Served 5,575 Area Served 2.65 sq. mi. (1,696 ac.)
11.2 FORMATION AND DEVELOPMENT
CSA No. 19 was formed as a result of a special election held in November 1974 that passed with
74% in favor of formation. It was established by Board Resolution 74-394 in November 1974 to
provide structural fire protection to nine different areas within unincorporated portions of the
county. A summary of the areas and approximate acreage is provided in Table 11-2 below. In
February 1976, the County and City of San Rafael entered into an “Agreement for Fire Protection
Services in and Around County Service Area 19”. At this point, the City assumed full fire
protection responsibilities for CSA No. 1967. In 2016, the County and San Rafael entered into new
10-year lease and operation agreements that automatically renew for additional 10-year periods
through 2056 unless terminated with 36 months’ notice.
Table 11-2: CSA No. 19 Areas and Acreage (1974)
Approximate Approximate
Area Name Area Name
Area (acres) Area (acres)
California Valley 100 Sun Valley 32.5
Mobile Home Site 1.48 Los Ranchitos 440
Bellevue 70 Santa Venetia 820
Bayside Acres 130 Country Club 280
McNears 90 Total 1,964
67 San Rafael City Council Agenda Report, County Service Area 19 Fire Protection and Lease Agreement, June 20,
2016.
Marin LAFCo 87 San Rafael Region
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Las Gallinas Valley Sanitary District
Larkspur
Marinwood CSD
0 0.5 1Miles Marinwood CSD SOI
CSA No. 19 - Unincorporated Mapping provided by: Figure
Esri, Garmin, GEBCO, NOAA NGDC, and other contributors, Sources: Esri,
USGS, NOAA 11-1
San Rafael
Map Date: 5/24/2019
Sources: Boundaries, Roads, Parcels: Marin Map GIS.
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City of San Rafael County Zoning
District Boundary Agriculture Limited (A2)
San Rafael Zoning Admin and Professional (AP)
Commercial Resort and Commercial Recreation (RCR)
Industrial Retail Business (C1)
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S a n
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B a y
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Multifamily Residential Residential Single Family Planned (RSP)
Downtown Residential Residential Two Family (R2)
Duplex Residential Residential Muliple Planned (RMP)
Undesignated Residential Agriculture (RA)
Water District Agriculture Residential Planned (ARP)
Residential Restricted (RR)
Residential Estate (RE)
Residential Commercial Multiple Planned (RMPC)
0 0.5 1Miles
Mapping provided by: Figure
CSA No. 19 - Unincorporated
Sources: Esri, USGS, NOAA
11-2
San Rafael Zoning
Map Date: 5/24/2019
Sources: Boundaries, Roads, Parcels: Marin Map GIS.
A CSA No. 19 reorganization was proposed in 1996 which would have taken Seaview Avenue out
of the CSA boundary and annexed to the City of San Rafael. However, the proceedings were
abandoned due to written protests by area property owners.
11.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE
CSA No. 19’s current jurisdictional boundary encompasses approximately 1,696 acres based on
current GIS layers. Land use around the CSA area is primarily low density and rural residential
with large areas of open space adjacent to CSA boundaries. Additional land uses include planned
residential, high-density residential, commercial, and public facilities.
11.4 POPULATION AND GROWTH
CSA No. 19 serves several unincorporated communities in the San Rafael area. Utilizing US
Census data from 2010 and current GIS layers, the population is estimated at 5,575. The area land
uses, primarily low-density residential, open space and park areas, have limited growth potential.
According to American Community Survey estimates for 2013-2017, the City of San Rafael,
which provides fire protection services for CSA No. 19, has an estimated population of 59,180.
This is higher than the 57,713 population that was reported in the 2010 US Census which indicates
that the area is growing in population. This has the potential to increase the number of incidents
for the City of San Rafael Fire Department.
11.5 MUNICIPAL SERVICES
CSA No. 19 provides municipal services through contracts with other governmental agencies or
private companies. Municipal services provided by the City of San Rafael through contracts
include fire and emergency response as defined below.
Fire and Emergency Response
CSA No. 19 contracts with the City of San Rafael to provide fire protection services to its service
area. The City of San Rafael operates Fire Station 57 located across from the Marin County Civic
Center which is the primary station for services to CSA No. 19. Recently, the City of San Rafael
approved construction contracts for two new fire stations including Station 57. Demolition was
completed in early 2017 and construction will be complete early summer 2019. While the facility
is under construction, Station 57 staff are temporarily housed at Station 53 on Joseph Court.
The City provides a primary response to calls within CSA No. 19’s jurisdiction, and the County
(CSA No. 19) leases land at 3530 Civic Center Drive (Station 57) to the City. The “Lease
Agreement” and “Fire Protection Services Agreement,” each has 10-year terms and were last
renewed in 2016. Under these agreements, the City pays market value to lease the Fire Station 57
site, and the County compensates the City for fire protection services from a negotiated $1.85
million “base rate”. This amount increases each year by the same salary increase percentage set by
the firefighter collective bargaining agreement between a minimum of 3% and a maximum of 7%.
Station facility maintenance and renovation costs are split between the two agencies.
Under the negotiated 2016 Fire Protection Service Agreement between the City and CSA No. 19,
the closest available unit is dispatched to an incident. This arrangement allows units to be
Marin LAFCo 90 San Rafael Region
Final MSR October 2019
dispatched from any City fire station which provides faster response times to CSA No. 19 residents
in the Santa Venetia and Los Ranchitos areas 68.
The City and County have a separate contract for paramedic services in areas of the county which
includes CSA No. 19. The recently completed Station 57 has a dedicated ambulance bay which
will help better serve CSA residents.
11.6 ORGANIZATIONAL STRUCTURE
Board of Supervisors
CSA No. 19 was formed as a dependent special district with the Marin County Board of
Supervisors as its governing body. The five county supervisors are elected to four-year terms of
office with no term limits. G.C. Section 25212 grants the Board of Supervisors rights and powers
to administer service areas. A county service area may only provide those services authorized in
its formation resolution unless the Board of Supervisors applies to and receives authorization from
LAFCo for activation of a latent power.
Staffing and District Operations
CSA No. 19 operates under the direction of the elected Board of Supervisors. The CSA contracts
with the City of San Rafael to provide structural fire protection and paramedic services to residents.
As a dependent special district of the County, all administrative services are provided by county
departments, including legal counsel and compilation of financial transaction reports for the State
Controller’s Office required under G.C. Section 53891.
11.7 ACCOUNTABILITY AND TRANSPARENCY
Meetings and Agendas
The county Board of Supervisors meets the second and fourth Tuesday of every month at 9:00
a.m. in the County of Marin Civic Building located at 3501 Civic Center Drive, Suite 329 in San
Rafael. Meeting agendas, minutes, and recordings are provided on the Marin County website.
Annual Budget Review
County Staff prepares and submits an annual budget for Board review and approval. Contract
amounts for CSA No. 19 are provided in the annual county budget along with capital asset and
intergovernmental expenditures.
68 Ibid.
Marin LAFCo 91 San Rafael Region
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11.8 FINANCIAL OVERVIEW
CSA No. 19 utilizes County Staff for financial review and budget facilitation. A summary of the
CSA’s budget is provided below in Table 11-3. Revenues for the CSA come from basic property
taxes and special taxes approved by voters within the CSA for paramedic services. Current district
property and special tax revenue are less than costs to provide services. Based on 2016 negotiated
contract with the City, fire protection services costs will continue to rise between 3% and 7%
annually.
Table 11-3: CSA No. 19 Financial Summary69
FY 2016-17 FY 2017-18 FY 2018-19
Revenues
Actuals Estimated Adopted Budget
Secured Property Tax $2,514,415 $2,620,649 $2,608,034
Use of Money and Property $43,002 $81,908 $10,014
Intergovernmental $12,051 $11,939 $12,500
Total Revenues $2,569,468 $2,714,496 $2,630,548
FY 2016-17 FY 2017-18 FY 2018-19
Expenditures
Actuals Adopted Budget Adopted Budget
Services and Supplies $2,300,000 $1,962,850 $2,286,309
Capital Assets $635,387 $2,158,166 $3,598,400
Interfund Expense $15,876 $272,876 $344,239
Total Expenditures $2,951,263 $4,393,892 $6,228,948
Net Total ($381,795) ($1,679,396) ($3,598,400)
The County works closely with the City of San Rafael to provide shared facilities to benefit the
community as a whole. The County leases land to the City for Fire Station 57 and the City provides
fire protection and emergency response services to the County. This allows for cost sharing of
facilities and services. However, the rising cost of services is exceeding the current revenue
generated by property taxes.
Financial Audit
The County of Marin operates an Internal Audit Unit within its Department of Finance. The unit
provides continuous monitoring of the County’s activities and reports to management staff on the
results of risk evaluations.
11.9 SUSTAINABILITY
Warmer temperatures and longer drought periods increase the potential for wildfires that may
threaten structures in the CSA. Local fire agencies may want to continue education efforts and
collaboration through the Community Wildfire Protection Plan that promote Firewise
Communities as outlined by the National Fire Protection Association.
69 Based on County of Marin 2018-2019 Final Budget.
Marin LAFCo 92 San Rafael Region
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12.0 COUNTY SERVICE AREA NO. 23 - TERRA LINDA
12.1 OVERVIEW
County Service Area No. 23 (CSA No. 23) is a dependent, single-purpose special district organized
to provide park and open space services pursuant to County Service Area Law (California G.C.
Section 25210 et seq). CSA No. 23 was formed in 1975 to fund the acquisition and preservation
of the Terra Linda/Sleepy Hollow Divide for conservation and open space purposes in coordination
with the City of San Rafael and the Marin County Open Space District. In 1991, the Marin County
Open Space District took over the ownership and management of the Terra Linda/Sleepy Hollow
Preserve. An overview of CSA No. 23 is provided in Table 12-1.
Today, CSA No. 23 provides no services and has no budget, fund balance, funding sources, or
expenditures. As such, CSA No. 23 has achieved its original acquisition purposes and is currently
inactive. The current district boundary is shown in Figure 12-1. Land use around the CSA is shown
in Figure 12-2.
Table 12-1: CSA No. 23 Overview
CSA No. 23 - Terra Linda
Primary Contact Jim Chayka, Superintendent Marin County Parks
Phone: (415)473-3795 Email: jchayka@marincounty.org
Location: 3501 Civic Center Drive, Suite 260 San Rafael, CA 94903
Formation Date 1975
Services Provided Inactive
12.2 FORMATION AND DEVELOPMENT
CSA No. 23 was formed by the Marin County Board of Supervisors on July 1, 1975 (Resolution
75-223) for the express purpose of raising revenue to purchase and maintain several Terra Linda
area properties for open space purposes. Subsequently, voters approved a $1,150,000 general
obligation bond measure at an election on November 4, 1975.
Prior to CSA formation, a committee comprised of representatives from the Terra Linda Valley
Homeowner’s Association, the City of San Rafael, and Marin County staff was formed to review
selected properties for acquisition. The properties were described as the Freitas, Nunes, Turski and
Oak Hill parcels, totaling approximately 766 acres. The total purchase price for the four properties
exceeded the approved bond amount and an additional funding source was necessary.
In February 1976, the City of San Rafael, Marin County Open Space District, and CSA No. 23
entered into a Joint Powers Agreement (JPA). The purpose of the JPA was to define each agency’s
financial functions, ownership authority, and open space management functions. The City and
Open Space District each contributed $500,000, and the CSA contributed the remainder of funds
through the sale of bonds to purchase of the Freitas, Nunes, Turski and Oak Hill properties.
Marin LAFCo 93 San Rafael Region
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CSA No. 23 - Terra Linda Zoning
Sources: Esri, USGS, NOAA
12-2
Map Date: 5/24/2019
Sources: Boundaries, Roads, Parcels: Marin Map GIS.
12.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE
The jurisdictional boundary for CSA No. 23 encompasses a total of 2,351 acres (3.7 square miles)
and is located entirely within the City of San Rafael boundary. Currently, the CSA No. 23 SOI is
coterminous with the district boundary. Figure 12-1 shows the CSA No. 23 boundary and SOI.
12.4 GOVERNMENTAL SERVICES
As discussed previously, CSA No. 23 was formed primarily as a funding mechanism to purchase
open space parcels. In 1976 the City of San Rafael, Marin County Open Space District, and CSA
No. 23 entered into a JPA which identified the funding commitments, ownership, and management
functions for each participating agency. As part of the Agreement, the Freitas, Nunes, and Turski,
properties were held in joint ownership, whereas the Oak Hill property was held in single
ownership by the City. In addition, maintenance and management responsibilities were provided
primarily by the City of San Rafael and the Open Space District.
In 1991, a Management Plan for Terra Linda, Sleepy Hollow, and San Rafael Open Space
Preserves was commissioned by the City and Open Space District. The Management Plan
recommended that the open space preserves be owned and managed by one entity, the Open Space
District, instead of the joint arrangement identified in the original 1976 JPA. To address the land
transfer and ongoing management of the open space properties, a new Agreement was drafted
between the City, CSA No. 23, and the Open Space District. The properties were subsequently
transferred to the Marin County Open Space District. Today, the Open Space District provides
ongoing trail maintenance and open space services in accordance with its land management
policies and plans.
12.5 ORGANIZATIONAL STRUCTURE
As a dependent special district, the Marin County Board of Supervisors serves as the CSA’s
governing body. The five-member Board of Supervisors meets the second and fourth Tuesday
every month at 9:00 a.m. in the County of Marin Civic Building located at 3501 Civic Center
Drive, Suite 260 in San Rafael. The Board of Supervisors determines overall policies, adopts
annual budgets, fixes salaries, and is responsible for overseeing mandated CSA functions as carried
out by various county departments. However, as mentioned previously, CSA No. 23 currently
provides no services and is currently inactive.
12.6 FINANCIAL SUMMARY
Currently, CSA No. 23 provides no services and has no funding, no expenditures, and no fund
balance. Marin County does not prepare an annual budget for CSA No. 26. Originally, revenues
generated from property taxes were used to pay off a $1,150,000 general obligation bond that was
used to acquire several properties. The bond was repaid in its entirety. Following the bond
repayment, CSA No. 23 has no operating budget and has been inactive.
12.7 GOVERNANCE STRUCTURE OPTIONS
In 2017, Senate Bill 448 (Wieckowski) was passed to streamline the process for LAFCos to
dissolve inactive special districts. The new legislation requires the State Controller’s Office to
create a list of inactive districts annually and to notify applicable LAFCos in which the inactive
Marin LAFCo 96 San Rafael Region
Final MSR October 2019
special districts are located. In accordance with G.C. Section 56879, the Commission must adopt
a resolution initiating dissolution of inactive districts meeting the above definition within 90 days
of notice from the State Controller’s Office. Following the adoption of the resolution, the
Commission must then hold a public hearing on the dissolution within an additional 90 days.
Unless evidence is provided that qualifies the district as being active, the Commission must
dissolve the district.
An inactive district is defined as a district that meets all the following criteria as set forth in G.C.
Section 56042, as follows:
a) The special district is as defined in G.C. Section 56036, which specifies a special district
as “an agency of the state, formed for general law or special act, for the local performance
of governmental or proprietary functions...”
b) The special district has no financial transactions in the previous fiscal year.
c) The special district has no assets and liabilities.
d) The special district has no outstanding debts, judgments, litigation, contracts, liens, or
claims.
Based on the County Auditor’s Office determination that CSA No. 23 is inactive, LAFCo, in
coordination with the County and the State Controller’s Office, should take the appropriate steps
to dissolve the district pursuant to G.C. 56879. Further, because CSA No. 23 has no assets,
liabilities, outstanding debts, judgments, contracts, or claims, there is no need to designate a
successor agency for the district. Upon approval of this MSR LAFCo staff will report CSA No. 23
as inactive to the State Controller’s office so it can be added to the next annual list of inactive
districts providing a path for dissolution of this district.
Marin LAFCo 97 San Rafael Region
Final MSR October 2019
Appendix A
List of References with Web Links
Amendment to the Brown Act Provides for New Website and Agenda Requirements. -
https://www.hansonbridgett.com/Publications/articles/2017-07-public-agency-brown-act
Bayside Acres Home Owners Association. “A History” - https://baysideacres.org/
CA G.C. § 56430(6) -
http://leginfo.legislature.ca.gov/faces/codes_displaySection.xhtml?lawCode=GOV§i
onNum=56430
CA G.C. § 56881(2) -
http://leginfo.legislature.ca.gov/faces/codes_displayText.xhtml?lawCode=GOV&division
=3.&title=5.&part=3.&chapter=6.&article=1
California Department of Finance. DOF Population Projection Press Release “New Demographic
Report Shows California Population Nearing 40 Million Mark with Growth Of 309,000
In 2017”. Published May 1, 2018. -
http://www.dof.ca.gov/Forecasting/Demographics/Estimates/e-1/documents/E-
1_2018PressRelease.pdf
California State Controller Special Districts Parcel Tax Report, Fiscal Year 2016-17. -
https://www.sco.ca.gov/Files-ARD-Local/LocRep/2016-
17%20Parcel%20Tax%20Report.pdf
City of San Rafael Department of Public Works. 3- Year Capital Improvement Program, FY
2018-19 to FY 2020-21. Published June 18, 2018. -
https://www.cityofsanrafael.org/documents/fy-2018-19-three-year-capital-improvement-
program/
City of San Rafael. City Council Staff Report. Topic: County Service Area 19 Fire Protection
and Lease Agreement. June 20, 2016. -
http://cityofsanrafael.granicus.com/DocumentViewer.php?file=cityofsanrafael_ea23def8
5a6f192655493a2667a3492c.pdf
City of San Rafael. Draft Climate Action Plan 2030. October 2018. -
https://www.cityofsanrafael.org/documents/draft-climate-action-plan-2030/
City of San Rafael. San Rafael City Council Agenda Report, Agenda Item 7.d. Final City-Wide
Proposed Budget for Fiscal Year 2018-2019 And Legal Spending Limit. June 18, 2018. -
https://www.cityofsanrafael.org/documents/fy-2018-19-budget/
City of San Rafael. San Rafael General Plan 2020. Pg. B1-9. -
https://www.cityofsanrafael.org/gp-2040-document-library/
City of San Rafael: Comprehensive Annual Financial Report for Fiscal Year Ending June 30, 2018.
-https://www.cityofsanrafael.org/documents/2018-comprehensive-financial-audit-report/
County of Marin, 2018-2019 Final Budget. - https://www.marincounty.org/depts/df/final-budgets
Marin LAFCo 98 San Rafael Region
Final MSR October 2019
County of Marin, Public Works, Information for CSA No. 6 and CSA No. 29 -
https://www.marincounty.org/depts/pw/divisions/public-services/county-service-areas
County of Marin, Public Works, Lower Las Gallinas Creek Dredge Channel Conceptual Design
Study, March 2015. - https://www.marinwatersheds.org/sites/default/files/2017-
05/20150318LowerLasGallinas_GeomorphicDredgeMemoFINAL_000.pdf
County Service Area No. 18. Advisory Board Overview. -
https://www.marincountyparks.org/about-us/boards-and-commissions/csa18
Los Ranchito Improvement Association - http://www.losranchitos.org/
Marin County Board of Supervisors Resolution 2004-63, Resolution Directing the Provision of
Additional Types of Extended Services Within County Service Area No. 13. June 29, 2004.
https://pav.marincounty.org/publicaccessbosrecords/api/Document/AfQ2OnEY91wLgMEu
S0SYZt9b1Insy8v6K0iBALemfd0EAMoJbiYhD1cUIZcKTVaGbwxS3MG5J16inGJsccyE
UII%3D/
Marin County Board of Supervisors Resolution 71-365, Resolution Directing the Provision of
Additional Types of Extended Services in CSA No. 13. December 28, 1971. -
https://pav.marincounty.org/publicaccessbosrecords/api/Document/AT4aWqW80HWac
%C3%89oVanMra4ufd8d8gmaLN5UJ5T54jbwuFjKAcMbG%C3%81%C3%89XZuWZ
LAbz9g01qYTQo20HvloYjUhRnKa4%3D/
Marin Countywide Plan, Glossary, “Community Separator” -
https://www.marincounty.org/depts/cd/divisions/planning/2007-marin-countywide-
plan/plans-and-documents
Marin GeoHub, Ridge and Upland Greenbelt, August 7, 2019. -
https://gisopendata.marincounty.org/datasets/d811e491145c47959990d2749911b079_104
Marin LAFCo. San Rafael Regional Municipal Service Review. 2006. -
https://www.marinlafco.org/municipal-servi-ce-review-and-sphere-of-influence-update-
reports
Marinwood Community Service District. Operating Budgets. -
http://www.marinwood.org/finance
Point San Pedro Road Coalition. Quarry FAQs. - https://sprcoalition.org/quarry/faq/
San Rafael General Plan 2020 - https://www.cityofsanrafael.org/generalplan-2020/
SanRafael.com. “The History of San Rafael, California”. -
http://www.sanrafael.com/channel/History-Of-San-Rafael/6200
Santa Venetia Community Plan, February 2017. -
https://www.marincounty.org/depts/cd/divisions/planning/santa-venetia
United States Bureau of Justice. Full-Time Employees in Law Enforcement Agencies, 1997 -
2016. Shelley Hyland, BJS Statistician. Published August 28, 2018. -
https://www.bjs.gov/content/pub/pdf/ftelea9716.pdf
Marin LAFCo 99 San Rafael Region
Final MSR October 2019