LAFCO
West Marin Region Municipal Service Review and Sphere of Influence Update - June 2022
Read the report at Local Agency Formation Commissions ↗
Marin Local Agency Formation Commission
Municipal Service Review
West Marin Region
FINAL
June 2022
Marin LAFCo West Marin Region
Final MSR June 2022
PREFACE
This Municipal Services Review (MSR) documents and analyzes services provided by local
governmental agencies in the West Marin 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 §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
Lew Kious, Vice Chair Special District Almonte Sanitary District
Dennis Rodoni County District 4 Supervisor
Judy Arnold County District 5 Supervisor
Barbara Coler City Town of Fairfax
Craig Murray Special District Las Gallinas Valley Sanitary District
Larry Loder Public Commission
Richard Savel Public Alternate Commission
Tod Moody Special District Alternate Sanitary District #5
James Campbell City Alternate City of Belvedere
Damon Connolly County Alternate District 1 Supervisor
Staff
Jason Fried Executive Director
Olivia Gingold Commission Clerk/Jr. Analyst
Jeren Seibel Deputy Executive Officer
MSR Preparers
Jeren Seibel Deputy E xecutive Officer
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Table of Contents
PREFACE ............................................................................................................................................ I
1.0 INTRODUCTION .........................................................................................................................8
1.1 ROLE AND RESPONSIBILITY OF LAFCO .................................................................................................8
1.2 MUNICIPAL SERVICE REVIEWS ...........................................................................................................9
1.3 MARIN LAFCO COMPOSITION ........................................................................................................ 10
2.0 EXECUTIVE SUMMARY ............................................................................................................. 11
2.1 AFFECTED PUBLIC AGENCIES ........................................................................................................... 11
2.2 PLANS, POLICIES, STUDIES ............................................................................................................. 12
2.3 AGENCY AND PUBLIC PARTICIPATION ................................................................................................ 12
2.4 WRITTEN DETERMINATIONS ........................................................................................................... 14
3.0 DETERMINATIONS ................................................................................................................... 16
4.0 REGIONAL SETTING .................................................................................................................. 20
5.0 MARIN RESOURCE CONSERVATION DISTRICT ........................................................................... 25
5.1 OVERVIEW ................................................................................................................................. 25
5.2 FORMATION AND DEVELOPMENT..................................................................................................... 25
5.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE ................................................................................. 26
5.4 GROWTH AND POPULATION ........................................................................................................... 27
5.5 MUNICIPAL SERVICES .................................................................................................................... 27
5.6 ORGANIZATION STRUCTURE ........................................................................................................... 28
5.7 ACCOUNTABILITY AND TRANSPARENCY .............................................................................................. 28
5.8 FINANCIAL OVERVIEW ................................................................................................................... 29
5.9 SUSTAINABILITY ........................................................................................................................... 30
6.0 STINSON BEACH FIRE PROTECTION DISTRICT ............................................................................ 32
6.1 OVERVIEW ................................................................................................................................. 32
6.2 FORMATION AND DEVELOPMENT..................................................................................................... 32
6.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE ................................................................................. 33
6.4 GROWTH AND POPULATION ........................................................................................................... 34
6.5 MUNICIPAL SERVICES .................................................................................................................... 35
6.6 ORGANIZATION STRUCTURE ........................................................................................................... 38
6.7 ACCOUNTABILITY AND TRANSPARENCY .............................................................................................. 38
6.8 FINANCIAL OVERVIEW ................................................................................................................... 39
6.9 WILDLAND FIRE PREPAREDNESS ...................................................................................................... 40
7.0 STINSON BEACH COUNTY WATER DISTRICT .............................................................................. 42
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7.1 OVERVIEW ................................................................................................................................. 42
7.2 FORMATION AND DEVELOPMENT..................................................................................................... 42
7.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE ................................................................................. 43
7.4 GROWTH AND POPULATION ........................................................................................................... 44
7.5 MUNICIPAL SERVICES .................................................................................................................... 46
7.6 ORGANIZATION STRUCTURE ........................................................................................................... 49
7.7 ACCOUNTABILITY AND TRANSPARENCY .............................................................................................. 49
7.8 FINANCIAL OVERVIEW ................................................................................................................... 50
7.9 SUSTAINABILITY ........................................................................................................................... 51
8.0 BOLINAS FIRE PROTECTION DISTRICT ....................................................................................... 53
8.1 OVERVIEW ................................................................................................................................. 53
8.2 FORMATION AND DEVELOPMENT..................................................................................................... 53
8.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE ................................................................................. 54
8.4 GROWTH AND POPULATION ........................................................................................................... 55
8.5 MUNICIPAL SERVICES .................................................................................................................... 56
8.6 ORGANIZATION STRUCTURE ........................................................................................................... 59
8.7 ACCOUNTABILITY AND TRANSPARENCY .............................................................................................. 59
8.8 FINANCIAL OVERVIEW ................................................................................................................... 59
8.9 WILDLAND FIRE PREPAREDNESS ...................................................................................................... 61
9.0 BOLINAS COMMUNITY PUBLIC UTILITY DISTRICT ...................................................................... 63
9.1 OVERVIEW ................................................................................................................................. 63
9.2 FORMATION AND DEVELOPMENT..................................................................................................... 63
9.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE ................................................................................. 65
9.4 GROWTH AND POPULATION ........................................................................................................... 66
9.5 MUNICIPAL SERVICES .................................................................................................................... 67
9.6 ORGANIZATION STRUCTURE ........................................................................................................... 70
9.7 ACCOUNTABILITY AND TRANSPARENCY .............................................................................................. 71
9.8 FINANCIAL OVERVIEW ................................................................................................................... 71
9.9 SUSTAINABILITY ........................................................................................................................... 73
10.0 MUIR BEACH COMMUNITY SERVICES DISTRICT ....................................................................... 74
10.1 OVERVIEW ............................................................................................................................... 74
10.2 FORMATION AND DEVELOPMENT ................................................................................................... 74
10.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE ............................................................................... 77
10.4 GROWTH AND POPULATION .......................................................................................................... 77
10.5 MUNICIPAL SERVICES .................................................................................................................. 78
10.6 ORGANIZATION STRUCTURE ......................................................................................................... 83
10.7 ACCOUNTABILITY AND TRANSPARENCY ............................................................................................ 84
10.8 FINANCIAL OVERVIEW ................................................................................................................. 84
10.9 SUSTAINABILITY ......................................................................................................................... 86
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11.0 TOMALES VILLAGE COMMUNITY SERVICES DISTRICT .............................................................. 87
11.1 OVERVIEW ............................................................................................................................... 87
11.2 FORMATION AND DEVELOPMENT ................................................................................................... 87
11.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE ............................................................................... 88
11.4 GROWTH AND POPULATION .......................................................................................................... 89
11.5 MUNICIPAL SERVICES .................................................................................................................. 90
11.6 ORGANIZATION STRUCTURE ......................................................................................................... 91
11.7 ACCOUNTABILITY AND TRANSPARENCY ............................................................................................ 92
11.8 FINANCIAL OVERVIEW ................................................................................................................. 92
11.9 SUSTAINABILITY ......................................................................................................................... 93
12.0 INVERNESS PUBLIC UTILITY DISTRICT ...................................................................................... 94
12.1 OVERVIEW ............................................................................................................................... 94
12.2 FORMATION AND DEVELOPMENT ................................................................................................... 94
12.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE ............................................................................... 96
12.4 GROWTH AND POPULATION .......................................................................................................... 97
12.5 MUNICIPAL SERVICES .................................................................................................................. 98
12.6 ORGANIZATION STRUCTURE ....................................................................................................... 101
12.7 ACCOUNTABILITY AND TRANSPARENCY .......................................................................................... 102
12.8 FINANCIAL OVERVIEW ............................................................................................................... 102
12.9 SUSTAINABILITY ....................................................................................................................... 103
13.0 FLOOD CONTROL ZONE NO. 5 ............................................................................................... 105
13.1 OVERVIEW ........................................................................................................................... 105
13.2 FORMATION AND DEVELOPMENT ................................................................................................. 105
13.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE ............................................................................. 106
13.4 GROWTH AND POPULATION ........................................................................................................ 107
13.5 MUNICIPAL SERVICES ................................................................................................................ 108
13.6 ORGANIZATION STRUCTURE ....................................................................................................... 108
13.7 ACCOUNTABILITY AND TRANSPARENCY .......................................................................................... 109
13.8 FINANCIAL OVERVIEW ............................................................................................................... 109
13.9 SUSTAINABILITY ....................................................................................................................... 110
14.0 FLOOD CONTROL ZONE NO. 10 ............................................................................................. 112
14.1 OVERVIEW ........................................................................................................................... 112
14.2 FORMATION AND DEVELOPMENT ................................................................................................. 112
14.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE ............................................................................. 113
14.4 GROWTH AND POPULATION ........................................................................................................ 114
14.5 MUNICIPAL SERVICES ................................................................................................................ 115
14.6 ORGANIZATION STRUCTURE ....................................................................................................... 115
14.7 ACCOUNTABILITY AND TRANSPARENCY .......................................................................................... 116
14.8 FINANCIAL OVERVIEW ............................................................................................................... 116
14.9 SUSTAINABILITY ....................................................................................................................... 117
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15.0 COUNTY SERVICE AREA 33 ................................................................................................... 118
15.1 OVERVIEW ............................................................................................................................. 118
15.2 FORMATION AND DEVELOPMENT ................................................................................................. 118
15.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE ............................................................................. 118
15.4 GROWTH AND POPULATION ........................................................................................................ 119
15.5 MUNICIPAL SERVICES ................................................................................................................ 120
15.6 ORGANIZATION STRUCTURE ....................................................................................................... 121
15.7 ACCOUNTABILITY AND TRANSPARENCY .......................................................................................... 122
15.8 FINANCIAL OVERVIEW ............................................................................................................... 122
16.0 COUNTY SERVICE AREA NO. 28 ............................................................................................. 124
16.1 OVERVIEW ............................................................................................................................. 124
16.2 FORMATION AND DEVELOPMENT ................................................................................................. 124
16.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE ............................................................................. 124
16.4 GROWTH AND POPULATION ........................................................................................................ 125
16.5 MUNICIPAL SERVICES ................................................................................................................ 126
16.6 ORGANIZATION STRUCTURE ....................................................................................................... 126
16.7 ACCOUNTABILITY AND TRANSPARENCY .......................................................................................... 127
16.8 FINANCIAL OVERVIEW ............................................................................................................... 127
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List of Figures
FIGURE 4-1: COUNTY SERVICE AREA NO. 28 & MARIN COUNTY LEGAL BOUNDARY ...................................................................... 21
FIGURE 4-2: MARIN COUNTY RESOURCE CONSERVATION DISTRICT & MARIN COUNTY LEGAL BOUNDARY......................................... 22
FIGURE 4-3: WEST MARIN MSR STUDY AREA – NORTHERN REGION AGENCIES ........................................................................... 23
FIGURE 4-4: WEST MARIN MSR STUDY AREA – SOUTHERN REGION AGENCIES ........................................................................... 24
FIGURE 5-1: MARIN RESOURCE CONSERVATION DISTRICT JURISDICTIONAL BOUNDARY AND SPHERE OF INFLUENCE ............................ 26
FIGURE 6-1: STINSON BEACH FIRE PROTECTION DISTRICT JURISDICTIONAL BOUNDARY AND SPHERE OF INFLUENCE ............................. 33
FIGURE 6-2: STINSON BEACH LAND USE POLICY MAP ............................................................................................................. 34
FIGURE 6-3: PPC RATING DISTRIBUTION BY CLASS THROUGHOUT CALIFORNIA ............................................................................ 36
FIGURE 6-4: PPC RATING DISTRIBUTION BY CLASS THROUGHOUT THE UNITED STATES .................................................................. 36
FIGURE 6-5: STINSON BEACH FIRE PROTECTION DISTRICT TOTAL RESPONSES ............................................................................... 37
FIGURE 7-1: STINSON BEACH COUNTY WATER DISTRICT JURISDICTIONAL BOUNDARY AND SPHERE OF INFLUENCE .............................. 44
FIGURE 7-2: STINSON BEACH LAND USE POLICY MAP ............................................................................................................. 45
FIGURE 8-1: BOLINAS FIRE PROTECTION DISTRICT JURISDICTIONAL BOUNDARY AND SPHERE OF INFLUENCE ...................................... 54
FIGURE 8-2: BOLINAS FIRE PROTECTION DISTRICT LAND USE POLICY MAP .................................................................................. 55
FIGURE 8-3: BOLINAS FIRE PROTECTION DISTRICT INCIDENT TYPE REPORT .................................................................................. 56
FIGURE 8-4: PPC RATING DISTRIBUTION BY CLASS THROUGHOUT CALIFORNIA ............................................................................ 57
FIGURE 8-5: PPC RATING DISTRIBUTION BY CLASS THROUGHOUT THE UNITED STATES ................................................................. 58
FIGURE 9-1: BOLINAS COMMUNITY PUBLIC UTILITY DISTRICT JURISDICTIONAL BOUNDARY AND SPHERE OF INFLUENCE ........................ 65
FIGURE 9-2: BOLINAS LAND USE POLICY MAP ....................................................................................................................... 66
FIGURE 10-1: MUIR BEACH COMMUNITY SERVICES DISTRICT JURISDICTIONAL BOUNDARY AND SPHERE OF INFLUENCE ........................ 76
FIGURE 10-2: MUIR BEACH LAND USE POLICY MAP ............................................................................................................... 78
FIGURE 10-3: PPC RATING DISTRIBUTION BY CLASS THROUGHOUT CALIFORNIA .......................................................................... 82
FIGURE 10-4: PPC RATING DISTRIBUTION BY CLASS THROUGHOUT THE UNITED STATES ................................................................ 82
FIGURE 11-1: TOMALES VILLAGE COMMUNITY SERVICES DISTRICT JURISDICTIONAL BOUNDARY AND SPHERE OF INFLUENCE ................. 88
FIGURE 11-2: TOMALES LAND USE POLICY MAP .................................................................................................................... 89
FIGURE 12-1: INVERNESS PUBLIC UTILITY DISTRICT JURISDICTIONAL BOUNDARY AND SPHERE OF INFLUENCE ..................................... 96
FIGURE 12-2: INVERNESS LAND USE POLICY MAP .................................................................................................................. 97
FIGURE 12-3: PPC RATING DISTRIBUTION BY CLASS THROUGHOUT CALIFORNIA ........................................................................ 100
FIGURE 12-4: PPC RATING DISTRIBUTION BY CLASS THROUGHOUT THE UNITED STATES .............................................................. 101
FIGURE 13-1: FLOOD ZONE 5’S JURISDICTIONAL BOUNDARY AND SPHERE OF INFLUENCE ............................................................. 106
FIGURE 13-2: STINSON BEACH LAND USE POLICY MAP ......................................................................................................... 107
FIGURE 13-3: FLOOD CONTROL ZONE 5 FINANCIAL OVERVIEW ............................................................................................... 110
FIGURE 14-1: FLOOD ZONE 10’S JURISDICTIONAL BOUNDARY AND SPHERE OF INFLUENCE ........................................................... 113
FIGURE 14-2: INVERNESS LAND USE POLICY MAP ................................................................................................................ 114
FIGURE 15-1: COUNTY SERVICE AREA 33 DISTRICT JURISDICTIONAL BOUNDARY AND SPHERE OF INFLUENCE ................................... 119
FIGURE 15-2: STINSON BEACH LAND USE POLICY MAP ......................................................................................................... 120
FIGURE 15-3: COUNTY SERVICE AREA 33 FINANCIAL OVERVIEW ............................................................................................. 123
FIGURE 16-1: MARIN COUNTY SERVICE AREA 28 JURISDICTIONAL BOUNDARY AND SPHERE OF INFLUENCE ..................................... 125
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List of Tables
TABLE 1-1: LAFCO'S REGULATORY POWERS............................................................................................................................ 9
TABLE 1-2: MANDATORY DETERMINATIONS .......................................................................................................................... 10
TABLE 1-3: MARIN LAFCO COMMISSION MEMBERSHIP .......................................................................................................... 10
TABLE 2-1: WEST MARIN REGIONAL MSR AGENCIES ............................................................................................................. 11
TABLE 2-2: WEST MARIN REGIONAL AGENCIES’ MEETING INFORMATION ................................................................................... 13
TABLE 5-1: MARIN RESOURCE CONSERVATION DISTRICT OVERVIEW .......................................................................................... 25
TABLE 5-2: MARIN RESOURCE CONSERVATION DISTRICT BOARD OF DIRECTORS ........................................................................... 28
TABLE 5-3: MARIN RESOURCE CONSERVATION DISTRICT FINANCIAL AUDIT SUMMARY .................................................................. 30
TABLE 6-1: STINSON BEACH FIRE PROTECTION DISTRICT OVERVIEW .......................................................................................... 32
TABLE 6-2: STINSON BEACH FIRE PROTECTION DISTRICT BOARD OF DIRECTORS ........................................................................... 38
TABLE 6-3: STINSON BEACH FIRE PROTECTION DISTRICT FINANCIAL OVERVIEW ........................................................................... 39
TABLE 6-4: STINSON BEACH FIRE PROTECTION DISTRICT FINANCIAL AUDIT SUMMARY .................................................................. 40
TABLE 7-1: STINSON BEACH COUNTY WATER DISTRICT OVERVIEW ............................................................................................ 42
TABLE 7-2: STINSON BEACH COUNTY WATER DISTRICT BOARD OF DIRECTORS ............................................................................. 49
TABLE 7-3: STINSON BEACH COUNTY WATER DISTRICT FINANCIAL AUDIT SUMMARY .................................................................... 50
TABLE 8-1: BOLINAS FIRE PROTECTION DISTRICT OVERVIEW .................................................................................................... 53
TABLE 8-2: BOLINAS FIRE PROTECTION DISTRICT BOARD OF DIRECTORS ..................................................................................... 59
TABLE 8-3: BOLINAS FIRE PROTECTION DISTRICT BUDGET ANALYSIS .......................................................................................... 60
TABLE 8-4: BOLINAS FIRE PROTECTION DISTRICT FINANCIAL AUDIT SUMMARY ............................................................................ 61
TABLE 9-1: BOLINAS COMMUNITY PUBLIC UTILITY DISTRICT OVERVIEW ..................................................................................... 63
TABLE 9-2: BOLINAS COMMUNITY PUBLIC UTILITY DISTRICT BOARD OF DIRECTORS ...................................................................... 70
TABLE 9-3: BOLINAS COMMUNITY PUBLIC UTILITY DISTRICT FINANCIAL AUDIT SUMMARY ............................................................. 72
TABLE 10-1: MUIR BEACH COMMUNITY SERVICES DISTRICT OVERVIEW ..................................................................................... 74
TABLE 10-2: MUIR BEACH COMMUNITY SERVICES DISTRICT BOARD OF DIRECTORS ...................................................................... 84
TABLE 10-3: MUIR BEACH COMMUNITY SERVICES DISTRICT FINANCIAL AUDIT SUMMARY ............................................................. 85
TABLE 11-1: TOMALES VILLAGE COMMUNITY SERVICES DISTRICT OVERVIEW............................................................................... 87
TABLE 11-2: TOMALES VILLAGE COMMUNITY SERVICES DISTRICT BOARD OF DIRECTORS ............................................................... 91
TABLE 11-3: TOMALES VILLAGE COMMUNITY SERVICES DISTRICT FINANCIAL AUDIT SUMMARY ...................................................... 93
TABLE 12-1: INVERNESS PUBLIC UTILITY DISTRICT OVERVIEW ................................................................................................... 94
TABLE 12-2: INVERNESS PUBLIC UTILITY DISTRICT BOARD OF DIRECTORS .................................................................................. 101
TABLE 12-3: INVERNESS PUBLIC UTILITY DISTRICT FINANCIAL AUDIT SUMMARY ......................................................................... 102
TABLE 13-1: FLOOD CONTROL ZONE 5 OVERVIEW ............................................................................................................... 105
TABLE 13-2: MARIN COUNTY BOARD OF SUPERVISORS ......................................................................................................... 108
TABLE 13-3: FLOOD CONTROL ZONE 5 ADVISORY BOARD ...................................................................................................... 109
TABLE 14-1: FLOOD CONTROL ZONE 10 OVERVIEW ............................................................................................................. 112
TABLE 14-2: MARIN COUNTY BOARD OF SUPERVISORS ......................................................................................................... 115
TABLE 14-3: FLOOD CONTROL ZONE 10 ADVISORY BOARD .................................................................................................... 116
TABLE 15-1: COUNTY SERVICE AREA 33 OVERVIEW.............................................................................................................. 118
TABLE 15-2: MARIN COUNTY BOARD OF SUPERVISORS ......................................................................................................... 121
TABLE 15-3: COUNTY SERVICE AREA 33 ADVISORY BOARD .................................................................................................... 121
TABLE 16-1: COUNTY SERVICE AREA 28 OVERVIEW.............................................................................................................. 124
TABLE 16-2: MARIN COUNTY SERVICE AREA 28 CALLS FOR SERVICE ........................................................................................ 126
TABLE 16-3: MARIN COUNTY BOARD OF SUPERVISORS ......................................................................................................... 126
TABLE 16-4: MARIN COUNTY SERVICE AREA 28 FINANCIAL OVERVIEW .................................................................................... 127
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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, however, now authorize and encourage LAFCos to initiate on their
own jurisdictional changes to form, consolidate, and dissolve special districts consistent with
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; improvement districts; community facilities districts;
and air pollution control districts.
Marin LAFCo 8 West Marin Region
Final MSR June 2022
current and future community needs. LAFCo regulatory powers are described in Table 1.1
below.
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
• District Service Activations / Divestitures
Extensions
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.
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Table 1-2: Mandatory Determinations
Mandatory Determinations / Municipal Service Reviews
(Government Code 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, an d
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 comprised of two county supervisors, two city
councilmembers, two independent special district members, and one representative of the general
public. Each group also gets to appoint 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 is independent of local government and
employs its own staff. Marin LAFCo’s current commission membership is provided below in
Table 1-3.
Table 1-3: Marin LAFCo Commission Membership
Name Position Agency Affiliation
Sashi McEntee, Chair City City of Mill Valley
Lew Kious, Vice-Chair Special District Almonte Sanitary District
Dennis Rodoni County District 4 Supervisor
Judy Arnold County District 5 Supervisor
Barbara Coler City Town of Fairfax
Craig Murray Special District Las Gallinas Valley Sanitary District
Larry Loder Public Commission
Richard Savel Public Alternate Commission
Tod Moody Special District Alternate Sanitary District #5
James Campbell City Alternate City of Belvedere
Damon Connolly County Alternate District 1 Supervisor
Marin LAFCo 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.
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2.0 EXECUTIVE SUMMARY
This study represents Marin LAFCo’s scheduled regional municipal service review of local
agencies in the West Marin region of western 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 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 twelve agencies operating in the West Marin region as listed below and
shown in Table 2-1.
Table 2-1: West Marin Regional MSR Agencies
West Marin Region Agency Names
Stinson Beach Fire Protection District
Tomales Village Community Services District
Marin County Service Area No. 28
Marin County Service Area No. 33
Marin County Flood Control Zone 5
Marin County Flood Control Zone 10
Bolinas Fire Protection District
Bolinas Community Public Utility District
Muir Beach Community Services District
Marin County Resources Conservation District
Inverness Public Utility District
Stinson Beach Water District
Together, these agencies provide a range of municipal services to the communities in which they
serve, including:
Water
Water services include the 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.
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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 somewhat
interrelated in nature and overlap in functional application.
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.
Roadway Services
Roadway services include construction, maintenance, planning of roads, and roadway lighting.
2.2 PLANS, POLICIES, STUDIES
Key references and information sources for this study were gathered for each agency 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
LAFCo Executive Officer and Deputy Executive Officer contacted each agency with requests for
information.
The study area for this MSR includes a number of unincorporated communities as there are no
incorporated cities or towns in the study area. As such, Marin County has the primary authority
over local land-use and development policies (and growth). 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 the preparation of this MSR:
• County General Plans
• Specific Plans
• Community Plans
• Previous municipal service reviews
• Agency databases and online archives (agendas, meeting minutes, website information)
2.3 AGENCY AND PUBLIC PARTICIPATION
Within the approved scope of work, this study has been prepared with an emphasis on soliciting
outside public review and comment as well as multiple opportunities for input from the affected
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agencies. This included an agency startup meeting with Marin LAFCo, information requests sent
to individual agencies, draft agency profiles also sent to agencies, and review of the draft report
prior to Commission action.
This MSR is posted on the Commission’s website (www.marinlafco.org). It may also be
reviewed at the LAFCo office located at 1401 Los Gamos Drive, Suite 220 in San Rafael during
open hours.
Table 2-2: West Marin Regional Agencies’ Meeting Information
West Marin Municipal Service Review – Agency Transparency
Agency Governing Meeting Meeting Location Televised/ Website
Body Date/Time Streaming
Stinson Board of 4th Monday at Stinson Beach Fire Station N/A https://www.stinsonbeachfir
Beach Fire Directors 5:00 p.m. 3410 Shoreline Hwy eprotectiondistrict.org/boar
Protection Stinson Beach, CA 94970 d-of-directors
District
Tomales Board of 2nd Tomales Town Hall N/A https://www.tomalescsd.ca.
Village CSD Directors Wednesday at 27150 Maine St gov/board-meeting-s
7:00 p.m. Tomales, CA 94971
Bolinas Fire Board of 4th TFPD Headquarters N/A https://www.bolinasfire.org/
Protection Directors Wednesday at 1679 Tiburon Blvd. board-meetings-1
District 7:00 p.m. Tiburon, CA 94920
Bolinas Board of 3rd BCPUD District Office N/A https://bcpud.org/administr
Community Directors Wednesday at 270 Elm Road ation/board-of-directors/
Public Utility 7:30 p.m. Bolinas, CA 94924
District
Muir Beach Board of 4th Community Center N/A https://muirbeachcsd.com/
Community Directors Wednesday at 19 Seascape Drive meetings/
Services 7:00 p.m. Muir Beach, CA 94965
District
Inverness Board of 4th IPUD District Office N/A https://www.invernesspud.o
Public Utility Directors Wednesday at 50 Inverness Way North rg/board-of-directors
District 9:00 a.m. Inverness, CA 94937
Stinson Board of 3rd Saturday at SBCWD District Office N/A http://stinson-beach-
Beach Directors 9:30 a.m. 3785 Shoreline Highway cwd.dst.ca.us/board.html
County Stinson Beach, CA 94970
Water
District
Marin Board of 2nd Marin County Farm Bureau N/A https://www.marinrcd.org/n
Resource Directors Wednesday at 520 Mesa Road ews-resources/board-
Conservation 9:00 a.m. Point Reyes Station, CA meetings/
District 94956
County Marin Tuesdays at Board of Supervisors Communit http://www.marincounty.org
Service Area County 9:00 a.m. Chambers, Room 330 y Media /depts/bs/meeting-archive
No. 28 Board of 3501 Civic Center Drive Center of
Supervisors San Rafael, CA 94903 Marin
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County Marin Tuesdays at Board of Supervisors Communit http://www.marincounty.or
Service Area County 9:00 a.m. Chambers, Room 330 y Media /depts/bs/meeting-archive
No. 33 Board of 3501 Civic Center Drive Center of
Supervisors San Rafael, CA 94903 Marin
Flood Marin Tuesdays at Board of Supervisors Communit http://www.marincounty.or
Control Zone County 9:00 a.m. Chambers, Room 330 y Media /depts/bs/meeting-archive
5 Board of 3501 Civic Center Drive Center of
Supervisors San Rafael, CA 94903 Marin
Flood Marin Tuesdays at Board of Supervisors Communit http://www.marincounty.or
Control Zone County 9:00 a.m. Chambers, Room 330 y Media /depts/bs/meeting-archive
10 Board of 3501 Civic Center Drive Center of
Supervisors San Rafael, CA 94903 Marin
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 each of the
unincorporated communities within the study area.
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.
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
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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
This subsection addresses the adequacy and appropriateness of existing boundaries and
spheres 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 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 is provided in
Chapter 3 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 DETERMINATIONS
The Commission is directed to prepare written determinations to address the multiple governance
factors specified under Government Code Section 56430 anytime it prepares a municipal service
review. These determinations 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 provide a succinct detailing of all pertinent issues relating to the planning,
delivery, and funding of public services in the study area as it relates to the Commission’s role
and responsibilities.
1. Growth and population projections for the affected area.
a) Anticipated growth in the study area is projected to be minimal. Of the five census-
designated places encompassed within the study area (Muir Beach, Tomales Village,
Stinson Beach, Bolinas, and Inverness), four saw a decrease in total population over the
past ten years according to recently updated census data, with the most significant of
these being a 14% decrease. The West Marin Planning Area, composed of census tracts
1330, 1322, 1321, 1311, and 1130, saw a total population increase of 120 (0.99%) in the
last ten years with the majority of that growth coming in tract 1130 and is mostly
excluded from the study area. This amounts to an annual growth rate within the planning
area of less than one-tenth of one percent.
2. The location and characteristics of any disadvantaged unincorporated communities
within or contiguous to the sphere of influence.
a) At this time there are no disadvantaged unincorporated communities identified within
the study area.
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) Each of the reviewed agencies has shown a sufficient level offered of both services
and infrastructure necessary to continue to provide the core services currently being
provided at the levels at which they are being provided. In order to accommodate even
moderate levels of future growth as well as maintain their ability to provide current
service levels with the increasing climate unpredictability, each of the agencies providing
potable water services (BCPUD, SBCWD, MBCSD, IPUD) should continue to explore
ways to expand their respective storage capacities in an effort to have greater resilience to
extended drought issues.
b) With the addition of two new ground source water supplies permitted by the State
Water Resources Control Board in 2021, BCPUD currently awaits a decision from the
California Department of Water Resources on applications submitted under the Small
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Community Drought Relief Program for grant funds to install the treatment facilities
necessary to operate the wells. If these funds are dispersed to the District and after
treatment facilities are purchased and installed, the District should prepare an update on
the status of the agency’s moratorium on new water service connections and efforts
therein to address the underlying constraints in an effort to aid both prospective future
residents of the community of Bolinas as well as the County of Marin’s ability to
effectuate planning policies in the area moving forward.
c) As noted above, there are no unincorporated communities within the study area that
have been identified as disadvantaged.
d) Each of the agencies encompassed in the study providing potable water services
should explore options for possible interties with neighboring water providers for
emergency supplemental supplies in the case of a natural or man-made disaster occurring.
4. Financial ability of agencies to provide services.
a) Bolinas Community Public Utility District, Bolinas Fire Protection District, County
Service Area 28, County Service Area 33, Flood Control Zone 5, Flood Control Zone 10,
Inverness Public Utility District, Muir Beach Community Service District, Marin
Resource Conservation District, Stinson Beach County Water District, Stinson Beach
Fire Protection District, and Tomales Village Community Service District all prepare
annual budgets and prepare financial statements in accordance with established
governmental accounting standards. Each independent district’s board of directors, as
well as the Marin County Board of Supervisors acting as the board of directors for both
the county service areas and flood district zones, 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. Audited financial statements are also prepared for each
agency by independent certified public accounting firms. While additional revenues are
needed to provide some services and maintain the infrastructure covered in this MSR, the
agencies meet their financial responsibilities to provide services.
b) TVCSD’s parks and recreation services are funded almost exclusively by way of
Measure A funding. With Measure A scheduled to be on the ballot for renewal in June of
2022, if the measure were not to be renewed the District’s capacity to continue to provide
this service would be critically impacted. The lapsing of this funding would also
significantly impact the annual revenue of MRCD. As such, both the TVCSD and the
MRCD Board of Directors should formulate contingency plans in the case that the
measure not be renewed.
c) At this time (and since its formation), Flood Control Zone 10 has no source of annual
revenue and has been constrained to emergency maintenance work within the current
levels of funding remaining in the reserve fund. FCZ10 along with its advisory board has
been inactive for an extended period of time, though the board recently revived its
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meetings in order to discuss these issues. In order to provide the consistent annual
funding levels necessary for the work within the Zone to be completed, the Zone’s
boundary would likely need to be expanded and residents within the boundary would
need to agree to a special assessment to fund the Zone. If residents in the area are
unwilling to create a new funding source, the Marin County Flood Control and Water
Conservation should consider dissolving the Zone.
d) County Service Area 28, in collaboration with the Stinson Beach Fire Protection
District, should explore future funding options as well as current operational constraints
that would allow the seasonal emergency medical response unit that is staffed during the
summer months to have permanent year-round staffing.
5. Status of, and opportunities for, shared facilities.
a) No specific opportunities for shared facilities that would prove advantageous to both
participating parties were identified in the course of this study.
6. Accountability for community service needs, including governmental structure and
operational efficiencies.
a)The Marin Resource Conservation District should explore expanding its jurisdictional
boundary. As the District receives a majority of its funding by way of grant monies, the
opportunity for the District to identify projects for additional grant proposals with a larger
service area could prove advantageous in procuring supplemental streams of revenue. In
addition, the consideration of a special assessment in an effort to supplement annual
revenue in years where the allocation of grant funding is minimal would prove more
fiscally impactful for the District if casting a wider net with a larger service boundary.
While the recommendation has been made at the State level on multiple occasions for
Resource Conservation District’s jurisdictional boundaries to be coterminous with the
boundaries of their respective counties with the mindset of improving administrative and
economic efficiencies, MRCD’s current boundary and sphere of influence purposefully
exclude multiple urban residential areas in order to maintain alignment with the District’s
mission statement. Any consideration of expansion of the District’s boundary should
ensure that the District’s agricultural focus would not be faced with any level of
obfuscation.
b) Each of the agencies within the study area should continue to explore the possibility
of collaboration with one another to share administrative and other staffing services to
both cut personnel-related expenses as well as eliminate possible hiring redundancies,
particularly in instances of positions that only necessitate less than full-time staffing
levels.
7. Any other matter related to effective or efficient service delivery, as required by
commission policy
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a) North Marin Water District’s existing jurisdictional boundary entirely overlaps the
jurisdictional boundary of the Inverness Public Utilities District. This overlap merits
correction and the Commission should work with the impacted agencies on a detachment
of the IPUD service area from NMWD. Since staff is aware of other NMWD parcels in
West Marin that the agency is not currently serving, this item should be fully examined
when NMWD’s MSR is undertaken as part of the Multi-Regional Service MSR
scheduled for the end of FY 22-23.
b) The Muir Beach Community Services District should annex the .6 acre parcel of
District Owned property that holds the District’s well sites.
c) As many of the agencies within the study region had their jurisdictional boundary
lines established well before the establishment of both state and national public parks that
now comprise a large apportionment of some of those boundaries, it is recommended for
each agency to examine its current boundaries and consider whether a boundary line
adjustment would be in its best interest in cases of current agency boundaries surrounding
areas of public lands that the agency is not currently and would not in the foreseeable
future provide services to.
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4.0 REGIONAL SETTING
The West Marin Region Municipal Service Review (MSR) study area consists of a majority of
the geographical area that the County of Marin considers the West Marin Planning Area. The
planning area is made up of five distinct census tracts: 1130, 1311, 1321, 1322, 1330. The
planning area generally consists of open space, agricultural lands, and small communities and
stretches from Fort Cronkhite in the south to the Sonoma County line in the north. Despite
encompassing such a large swath of land, the planning area represents only approximately 5% of
the total population within Marin County. In addition, over the past ten years, the population
within the planning area has seen an annual growth rate that is less than one-tenth of one percent.
The study area includes a wealth of public lands including the Golden Gate National Recreation
Area, Mount Tamalpais State Park, Muir Woods, the Point Reyes National Seashore, and
Tomales Bay State Park. Consisting entirely of unincorporated lands, no towns or cities reside
within the study area, however, numerous census-designated places are scattered throughout.
These communities include (but are not limited to) Bolinas, Inverness, Muir Beach, Stinson
Beach, and Tomales. 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, water, open space management, and other municipal services within the study area
are described in this report. Maps of the study area can be seen below in Figures 4-1, 4-2, 4-3,
and 4-4. Due to the size of the area involved and the overlaying of multiple agency boundaries,
multiple maps were a necessity to show the scope of the study.
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Figure 4-1: County Service Area No. 28 & Marin County Legal Boundary
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Figure 4-2: Marin County Resource Conservation District & Marin County Legal Boundary
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Figure 4-3: West Marin MSR Study Area – Northern Region Agencies
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Figure 4-4: West Marin MSR Study Area – Southern Region Agencies
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5.0 MARIN RESOURCE CONSERVATION DISTRICT
5.1 OVERVIEW
The Marin Resource Conservation District (MRCD) is a single-purpose special district that is
organized under the State Public Resources Code, Division 9 (9001-9978) for the purpose of
addressing local resource conservation needs. The district was formed by a vote of West Marin
landowners on May 19, 1959. Resource Conservation Districts (RCD) typically focus on the
conservation of soil and water resources in the forms of the prevention or control of soil erosion,
control of runoff, and the development and distribution of water. RCDs can also be formed for
the improvement of land capabilities, wildlife habitat restoration, forest fuel management,
conservation education, and other purposes. Each RCD throughout the state of California is able
to define its own local goals and objectives based on the issues and needs within its service area.
Marin Resource Conservation District is currently one of 95 RCDs in California.
The district’s jurisdictional boundary encompasses just over 257,000 acres (401 square miles),
covering a majority of the rural acreage in the county. The service area covers 14 major
watersheds within the county including Stemple Creek, San Antonio Creek, Tomales Bay, and
Point Reyes National Seashore.
Table 5-1: Marin Resource Conservation District Overview
Marin Resource Conservation District
Primary Contact: Nancy Scolari Phone: (415)-663-1170
Main Office: 80 Fourth Street, Suite 202, Point Reyes Station, CA 94956
Formation Date: May 19, 1959
Services Provided: Local Resource Conservation Needs
Service Area: 257,023 acres Population Served: ≈ 12,000
5.2 FORMATION AND DEVELOPMENT
On April 27th, 1935, the Soil Conservation Service was established within the Department of
Agriculture in order to assist rural landowners with soil conservation practices. The move was
prompted by the Dust Bowl event of the 1930s that caused the drought-stricken Southern Plains
region of the United States to endure severe dust storms that killed crops, livestock, and people
across the entire region. While there were several contributing factors that led to the Dust Bowl,
one of the major issues was the poor farming practices of the early 1900s.
The Homestead Act of 1862 provided settlers with 160 acres of public land and was followed by
the Kinkaid Act of 1904 and the Enlarged Homestead Act of 1909. These legislative actions led
to enormous influxes of new and inexperienced farmers across the great plains. Simultaneously,
the price of wheat was skyrocketing due to increased demand from Europe during World War 1
which encouraged farmers to plow up millions of acres of native grassland to plant wheat, corn,
and other row crops. As the United States entered the Great Depression, however, wheat prices
bottomed out and farmers tore up even more grassland in an attempt to harvest other crops and
break even. Crops began to fail with the onset of drought in 1931, which exposed the bare and
over-plowed farmland. Without the deep-rooted prairie grasses to hold the soil in place in
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combination with the dry conditions, it began to blow away and create massive dust storms with
some reaching two miles high and traveling over 2,000 miles to the East Coast.
In 1939, the first California Resource Conservation District was formed in San Mateo County.
Over time, more than 3,000 conservation districts would be formed across the United States. On
May 19, 1959, the Marin Resource Conservation District was formed by a vote of West Marin
landowners to provide non-regulatory soil and water conservation services to farmers and
ranchers in Marin County. Since its formation, the district has provided these services as well as
occasional soil erosion services for non-agricultural lands and watershed management projects,
among other things, throughout West Marin. The district continues today to strive to offer these
services in a manner that aligns with its mission statement, which aims to “…conserve and
enhance Marin’s natural resources, including its soil, water, vegetation, and wildlife.”
Figure 5-1: Marin Resource Conservation District Jurisdictional Boundary and Sphere of Influence
5.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE
Upon its initial formation in 1959, the Marin Resource Conservation District’s jurisdictional
boundary was 294,456 acres (460 sq. miles), which encompassed approximately 88% of Marin
County. In 1979, the boundary was adjusted to reflect the growth of urban areas throughout West
Marin over the prior twenty years and the district’s boundary decreased to just over 257,000
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acres (401 sq. miles), which encompassed approximately 77% of Marin County. The adjusted
boundary excluded the growing unincorporated residential areas of San Geronimo Valley,
Woodacre, parts of Nicasio, Bolinas, and Stinson Beach.
MRCD’s sphere of influence is coterminous with its jurisdictional boundary and was originally
established by Marin LAFCo in 1984. There have been no changes to the sphere of influence
since its original adoption. The last instance of the sphere of influence being reaffirmed was in
2008.
5.4 GROWTH AND POPULATION
The Marin Resource Conservation District encompasses a majority of the land that makes up
what the County of Marin has designated as the West Marin Planning Area. The planning area is
comprised of five census tracts: 1322, 1321, 1130, 1311, and 1330. According to 2020 U.S.
Census Redistricting Data, the population of the planning area is 12,125, which is less than a 1%
increase from the 2010 population number 12,005. The most recent census data shows the
planning area to have 7,153 housing units. The current zoning for the area puts the theoretical
buildout at 7,307 housing units. The district’s boundary excludes a majority of the most populous
census tract, 1130, which contains the communities of Woodacre and San Geronimo Valley. It
also excludes a majority of census tract 1321 which contains the communities of Stinson Beach
and Bolinas.
5.5 MUNICIPAL SERVICES
The Marin Resource Conservation District is a non-regulatory district that is responsible for
land-use practices and policies that result in the conservation of soil, water, and other related
resources. The district serves as a liaison between State, Federal, and local resources and private
landowners to conserve the county’s natural resources which are declared by the Legislature to
be “of fundamental importance to the prosperity and welfare of the people of this state”2. The
district helps to prioritize issues and implement programs within its service area. The district also
serves in developing community interest and awareness in proper natural resources management.
The district provides a 5-year strategic plan3 that aids in creating specific areas of focus targeted
goals in each of those areas for that timespan. Each of the 5 goals is accompanied by numerous
specific strategies to accomplish those goals. The current strategic plan encapsulates 2018-2022
and provides the following areas of focus and corresponding overarching goal statements:
• Agricultural Viability – Active support of our district’s agricultural economy,
viability, and cultural heritage
• Water Quality and Quantity – Protect and improve water quality and quantity
• Soil Health and Air Quality – Maintain and improve soil health and air quality
• Flora and Fauna – Conserve and enhance flora and fauna
• Outreach and Education – Provide outreach and education
2 Division 9, Public Resources Code Article 1, Section 9001 (a)
3 MRCD Strategic Plan 2018-2022
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The district provides project planning, design services, construction management, program
oversight, and funding to numerous types of conservation projects and programs ranging from
permit coordination, to carbon farming, to riparian habitat restoration. Over the course of the past
decade the district has worked collaboratively with local landowners and supporting agencies on
over 68 major projects, and as the lead implementing agency on 61 major projects. These
projects have been administered through over $8.5 million in government and private foundation
grants. A list of these projects along with information on their status, timetables, funding, and
descriptions can be viewed at the Resource Conservation District Project Tracker website.4
The district’s current staffing level is 5.75 full-time equivalent (FTE) employees.
5.6 ORGANIZATION STRUCTURE
Board of Directors
The Marin Resource Conservation District has a five-member board that is elected to four-year
terms through an at-large election. All directors are required to live and own land within the
district’s jurisdictional boundary, have served as an associate director for two years, or have been
a designated agent of a resident landowner within the district. The Board of Directors maintains
current certificates for the AB 1234 Ethics Training Compliance. Certificates for each of the
board members can be viewed on the MRCD website. The Board of Directors meets regularly
on the 2nd Wednesday of each month at 9:00 a.m. at the Marin County Farm Bureau Conference
Room at 520 Mesa Road in Point Reyes Station.
Table 5-2: Marin Resource Conservation District Board of Directors
Member Position Term Expiration
Sally Gale President November 2022
Terry Sawyer Treasurer November 2024
Robert Giacomini Director November 2024
Mike Moretti Director November 2024
Peter Martinelli Director November 2024
5.7 ACCOUNTABILITY AND TRANSPARENCY
The Marin Resource Conservation District makes a concerted effort to maintain high
accountability and transparency with all its activities. The MRCD website (www.marinrcd.org)
provides information on Board meetings, financial reports, programs, projects, history, resources,
partner agencies, and more.
Meeting and Agendas
The MRCD Board of Directors meets regularly on the 2nd Wednesday of each month at 9:00 a.m.
at the Marin County Farm Bureau Conference Room at 520 Mesa Road in Point Reyes Station.
Special meetings are held as needed to go over specific topics such as the annual budget.
4 Marin RCD Project Tracker
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Meeting agendas and minutes can be found on the MRCD website (www.marinrcd.org/news-
resources/board-meetings/).
Annual Budget Review
The district’s budget, typically adopted at the September Board of Directors meeting, provides
overall control of revenue and expenditures including appropriations on a line-item basis and the
means of financing them. While the District operates on a standard July 1 – June 30 fiscal year
model, the agency’s heavy reliance on funding provided by state and federal grants each year
necessitates this delay in budget creation, proposal, and adoption in order to have a clearer
picture of the funding they will be receiving. The Bookkeeper produces monthly reports on
expense activity that assist the Executive Director in monitoring activities and programs. These
reports are reported to the Board every month to assure budgetary compliance.
5.8 FINANCIAL OVERVIEW
Approximately 90% of all annual revenue for the Marin Resource Conservation District comes
in the form of state and federal grants as well as local funding. Additional revenue comes from
the the County of Marin to help offset operational costs, as well as a contract for services with
the County of Marin for the District’s creek stewardship to local landowners. Parts of the work
that the MRCD performs for Marin County takes place outside of the district’s boundary,
however, this has been reviewed and approved under State Government Code Section 56133
(e)(1). The total anticipated revenue for the District for FY 2021-22 is $1,357,111, which would
amount to a 24% increase over the previous fiscal year actuals. Approximately 45% of the
district’s annual expenses are in the form of service costs, 48% are salary and benefit costs, and
6% are administrative costs. MRCD’s projected expenditures for FY 2021-22 are $1,342,788,
which would be a 21% increase over the prior fiscal year’s actuals.
Despite the uncertainty that annual grant funding can have, MRCD maintains a goal of providing
a high level of community service while maintaining sustainable fiscal practices. The district has
maintained budget surpluses for numerous years with the expenses only outpacing revenues by a
small amount in FY 2020-21 due in large part to significantly reduced state and federal funding
during the Covid-19 pandemic. The district maintains a policy of holding two separate reserve
accounts. The first contains the district’s unrestricted funds, up to $400,000, in order to pay
vendors in advance of the district’s receipt of payment from grantors. All payments from this
fund are made at the discretion of the Board of Directors. The second account is funded as an
operational reserve with the intent of providing six months of operational expenses if necessary.
The maximum cap on this account is $150,000.
Financial Audit
The Marin Resource Conservation District annually has its financial statements audited in
accordance with established governmental accounting standards. The district contracts with an
outside accounting firm, Grant Bennet Associates, to perform the audit. The most recent audited
financial statement was prepared for the fiscal year ending June 30, 2020.
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Table 5-3: Marin Resource Conservation District Financial Audit Summary
Revenues FY 2019-2020 Audit
Operating contributions and grants $1,108,027
County grant $221,491
Other $5,708
Total Revenues $1,335,226
Expenditures FY 2019-2020 Audit
Personnel costs $385,870
Services and supplies $884,089
Total Expenditures $1,269,959
5.9 SUSTAINABILITY
The Marin Resource Conservation District has played an integral part throughout its rich 62-year
history in both the preservation of habitat and resources as well as preventative measures to
defend against the ecological effects of poor land stewardship. A few of the notable
accomplishments over that time include the following5:
• Preserved populations of coho salmon and steelhead
• Enhanced municipal water supply quality for Marin County in Stafford Lake watershed
• Improved water quality in Stemple Creek and Tomales Bay watersheds
• Improved water quality draining to shellfish production areas in Tomales Bay
• Improved wildlife diversity with 300% increase in neomigratory bird species following
riparian revegetation
• Over 43 miles of stream fenced for livestock management
• Controlled approximately 700,000 cubic yards of sediment delivery to nearby streams
• Revegetated over 25 miles of riparian forest with over 35,000 native trees and shrubs
As agencies and municipalities throughout Marin County implement policies in an effort to
combat climate change, one of MRCD’s long-time conservation efforts has been shown to be an
incredibly effective practice in this endeavor. A study by the University of California
Cooperative Extension explored the carbon-capturing that takes place in areas that have
undergone waterway habitat restoration. In this case, a specific look was taken at 42 waterways
on ranches in Napa, Sonoma, and Marin Counties. The study revealed that one kilometer of
repaired creek habitat can store as much as 4,419 tonnes of carbon and 16,217 tonnes of carbon
dioxide and other greenhouse gases. The MRCD has aided in over 25 miles of riparian
restoration which equates to over 80,000 tonnes of carbon sequestration. This amount is
comparable to the emissions of approximately 62,000 vehicles in one year6.
5 A Half Century of Stewardship: programmatic review of conservation by Marin RCD & Partner Organizations
6 Mitigating Greenhouse Gas Emissions through Riparian Revegetation
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Lastly, since 2008 the district has been a founding partner in the Marin Carbon Project to assist
local farmers and ranchers on the path to carbon beneficial practices. The Marin Carbon Project
is a collective of independent agricultural institutions throughout Marin County striving to
increase carbon sequestration in rangeland, agricultural, and forest soils by way of carbon
farming. This term, carbon farming, essentially equates to implementing farming practices that
capture and hold carbon in vegetation and soils to reduce greenhouse gas emissions. As of 2020,
the Marin Resource Conservation District in its partnership with the Marin Carbon Project had
completed 19 carbon farm plans with dozens more waitlisted to join in the effort. In the winter of
2021, the District received approval for $1,000,000 in grant funding from the California State
Coastal Conservancy for the continued expansion of its carbon farming efforts. The funding, in
conjunction with $667,000 in matching funds from 8 other entities, proposes to expand Marin
County’s existing Carbon Farming Program by: implementing 15-20 shovel-ready carbon
farming practices (all riparian restorations), designing 15-20 more carbon farming practices, and
writing 6 new carbon farming plans on newly participating farms. The work that the district has
done in both building local awareness as well as fostering the trust of local landowners in its
processes and practices is a significant component in the fight against climate change throughout
Marin County.
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6.0 STINSON BEACH FIRE PROTECTION DISTRICT
6.1 OVERVIEW
The Stinson Beach Fire Protection District (SBFPD) was established in March of 19587 as an
independent special district. The SBFPD boundary surrounds just over 5.8 square miles of the
Stinson Beach area of Marin County’s Pacific Coast. The district serves a population of
approximately 632 persons. The last Municipal Service Review that included the SBFPD was
conducted in December of 2007 as part of the Stinson Beach Area Service Review and Sphere of
Influence Update.
The primary function of SBFPD is to provide structural fire, emergency medical response, and
disaster planning and response to the census-designated place (CDP) of Stinson Beach, as well as
first responder services to the Mount Tamalpais State Park and Golden Gate National Recreation
Area. The SBFPD also participates in the Marin County and California Mutual Aid System with
nearby fire districts and responds to wildland fires as needed. The District is also a member
agency of the Marin Wildfire Prevention Authority (MWPA). MWPA’s 17 member agencies
throughout Marin County receive funding for fuel removal projects, defensible space
evaluations, and other helpful resources by way of a voter-approved parcel tax that was passed in
March of 2020. SBFPD is allocated .68% of MWPA’s total annual funding.
Table 6-1: Stinson Beach Fire Protection District Overview
Stinson Beach Fire Protection District
Primary Contact: Chief Jesse Peri Phone: (415)-868-0622 ext 3
Headquarters: 3410 Shoreline Highway, Stinson Beach, CA
Formation Date: March 7, 1958
Services Provided: Fire Protection, Emergency Response, Disaster Planning
Service Area: 3,754 acres Population Served: 541
6.2 FORMATION AND DEVELOPMENT
The Stinson Beach Fire Protection District was established as an independent Special District
whose legal authority and responsibilities are contained in the State of California Health and
Safety Code Sections 13800-13970. While the official formation of the Stinson Beach Fire
Protection District took place on March 7, 1958, historical documents show that the Stinson
Beach Fire Department was most likely formed in 1921 and was the first organization created in
Stinson Beach. This action was taken at the time by property owners within Stinson Beach that
had structures on their properties contributing to a fund for the purchase of a large chemical fire
extinguisher apparatus. The contributions ranged from $10 to $250. As it was not conjoined to
any specific vehicle, the apparatus had to be towed to the necessary location for fire suppression
efforts. The first firehouse was built by volunteers with materials that were purchased by funds
raised in the community’s 4th of July carnivals. The building was completed and the fire truck
moved inside in June of 1949. The building was remodeled and expanded to hold three vehicles
7 SBFPD 17-18 Audit; Pg. 13
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in 1970. The second firehouse was built in 1980 by an additional volunteer effort. The first
officially named Fire Chief of the district was William Airey in 1947. The Volunteer Ambulance
Corps overseen by the District was established in 1962 and today is the only volunteer
ambulance corps in the Bay Area and is one of only a handful in the entire state.
Figure 6-1: Stinson Beach Fire Protection District Jurisdictional Boundary and Sphere of Influence
6.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE
Stinson Beach Fire Protection District’s service boundary, which currently encompasses just
under 6 square miles, includes all of the residential areas of the census-designated place of
Stinson Beach, including the Seadrift area, and stretches to encompass a majority of Ridgecrest
Boulevard to the north. The SBFPD’s northwestern boundary is contiguous with the Bolinas Fire
Protection District’s southeastern boundary. The area also encompasses privately and publicly
owned parklands including portions of the Golden Gate National Recreation Area and the Mount
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Tamalpais State Park, which agencies also exercise substantial fire protection responsibilities
within the District. This municipal service review’s examination of the jurisdictional boundary
has prompted the SBFPD to review its boundaries as a significant portion of the district
encompasses State and Federal owned parklands. The District’s sphere of influence is
coterminous with its jurisdictional boundary. The sphere of influence was last updated in
December of 2007.
6.4 GROWTH AND POPULATION
The Stinson Beach Fire Protection District encompasses the census-designated place (CDP) of
Stinson Beach. According to 2020 U.S. Census Redistricting Data, the population of the CDP is
541, which is approximately a 14% decrease from the 2010 population number 6328. The most
recent census data shows the CDP to have 751 total housing units, with only 290 of those units
occupied. With the Stinson Beach area having numerous weekend residents, it is difficult to
ascertain the actual full-time population. Due to this, the number of registered voters is another
measurement of population that is used. According to 2020 U.S. Census Redistricting Data, the
number of registered voters in Stinson Beach is 505.
According to the Stinson Beach Community Plan, Stinson Beach has limited opportunity for
future expansion since federal and state lands (Golden Gate National Recreation Area and Mount
Tamalpais State Park) and the Pacific Ocean surround the community. As such, all future
residential and commercial development will occur within the existing developed area. Stinson
Beach is already extensively developed and there remain few infill opportunities for growth. A
map with the current zoning for the area is shown below in Figure 6-2.
Figure 6-2: Stinson Beach Land Use Policy Map
8 2020 US Census Redistricting Data
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6.5 MUNICIPAL SERVICES
Fire Protection and Emergency Response
The SBFPD provides fire protection, emergency medical response, and disaster planning and
response services. Incident call types fielded by the agency include rescue/emergency medical
response, fire, service calls, good intention calls, severe weather and natural disasters, false
alarm, and hazardous conditions (no fire). The District has one station that is staffed round the
clock by two paid personnel. The District has an additional annex facility that houses apparatus.
SBFPD has 4 full-time exempt employees (1 Fire Chief, 2 Duty Officers, 1 Office Manager), as
well as 17 volunteer firefighters. The Fire Chief oversees the general operations of the District
in accordance with the policy direction of the Board of Directors. The Fire Chief is supported by
two full-time Duty Officers as well as an Office Manager.
On April 1, 2021, Stinson Beach Fire Protection District was given a Class 4/4x Public
Protection Classification (PPC) rating by the Insurance Services Office (ISO), an organization
that independently evaluates municipal fire-protection efforts throughout the United States.
Ratings range on a scale of 1 to 10. Class 1 generally represents superior property fire
protection, and class 10 indicates that the area’s fire suppression program does not meet ISO’s
minimum criteria.9 While many communities receive a single number classification, many
smaller and more rural communities receive a split classification to reflect the risk of loss more
precisely. In the case of a split classification, the first number refers to the classification of
properties within 5 road miles of a fire station and within 1,000 feet of a creditable water supply.
The second number, with either the X or Y designation, applies to properties within 5 road miles
of a fire station but beyond 1,000 feet of a creditable water supply (i.e. fire hydrant). ISO
generally assigns Class 10 to properties beyond 5 road miles. The majority of insurance agencies
throughout the country use the PPC classification for underwriting and calculating premiums on
residential, commercial, and industrial properties. SBFPD’s rating of 4/4x puts the district in the
top 30% of fire protection agencies in the country. Figures 6-3 and 6-4 below show the
breakdown of PPC rating data throughout both the United States and California.
9 How the PPC Program Works
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Figure 6-3: PPC Rating Distribution by Class Throughout California
Figure 6-4: PPC Rating Distribution by Class Throughout the United States
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The SBFPD receives an average of 291 calls per year (2016-2021) with the majority being for
Rescue and Emergency Medical Service. The District provides one of the only remaining
volunteer ambulance programs in the state. Initially established in 1938, the Stinson Beach
Ambulance Corps has 9 volunteer Emergency Medical Technicians (EMT). These EMTs
staffing the District’s ambulance, A91, are supported with advanced life support (ALS) services
when necessary by the Marin County Fire Department from the station in Point Reyes. When
support is unavailable from Point Reyes, aid is provided by the Southern Marin Fire Protection
District from either Tam Valley or Mill Valley. During the high visitation summer months in the
area, a part-time ALS ambulance is staffed by Marin County Fire Department to serve the areas
of Stinson Beach, Bolinas, and Mount Tamalpais State Park.
The District also provides the area with water rescue services. With a large apportionment of the
District’s boundary being beachfront and the area being a popular visitation destination, the
District has developed a program and trained a team of rescue swimmers and rescue watercraft
operators. Water-based emergencies are responded to by way of tube and fin, paddleboard, or
the District’s water rescue craft.
Fire calls for the District over the past five years accounted for just over 5% of the total calls the
district received. A summary of call numbers over the last 5 years is shown below in Figure 6-3.
Figure 6-5: Stinson Beach Fire Protection District Total Responses
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Facilities and Apparatuses
The Stinson Beach Fire Protection District owns, operates, and maintains two fire stations with
one concurrently used as its administrative building, and the other operating as an unstaffed
annex. The stations are:
• Station 1 – 3410 Shoreline Highway, Stinson Beach, CA 94970
• Station 2 (Annex) – 100 Calle Del Arroyo, Stinson Beach, CA 94970
The SBFPD also has a variety of apparatus that serves the community ranging from support
vehicles to paramedic trucks. SBFPD’s apparatus listed by station is provided below.
• Station 1 – 1 Type 1 Engine, 1 Ambulance, 1 Type 3 Engine, 1 4x4 Utility Pickup Truck
• Station 2 (Annex) – Type 1 Engine, 1 Water Tanker, 1 Off-Road Utility Vehicle, 1
Rescue Water Craft
6.6 ORGANIZATION STRUCTURE
Board of Directors
The Stinson Beach Fire Protection District has a five-member board that is elected to four-year
terms through an at-large election. All directors are required to live within the District’s
jurisdictional boundary. The Board of Directors maintains current certificates for the AB 1234
Ethics Training Compliance as well as AB 1666 Sexual Harassment Prevention Training.
Certificates for each of the board members can be requested by contacting the SBFPD office.
The Board of Directors meets regularly on the 4th Monday of each month at 5:00 p.m. at the
Stinson Beach Fire Protection District Headquarters located at 3410 Shoreline Highway in
Stinson Beach.
Table 6-2: Stinson Beach Fire Protection District Board of Directors
Member Position Term Expiration
Jeffrey Walsh President November 2024
James Ritchie Director November 2024
Robert Guidi Director November 2024
Marcus White Vice President November 2022
Kathleen Foote Director November 2022
6.7 ACCOUNTABILITY AND TRANSPARENCY
The Stinson Beach Fire Protection District makes a concerted effort to maintain high
accountability and transparency with all its activities. The SBFPD website
(www.stinsonbeachfire.org) provides information on Board meetings, financial reports, stations,
history, apparatus, disaster preparedness, and more.
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Meeting and Agendas
The SBFPD Board of Directors meets regularly on the 4th Monday of each month at 5:00 p.m. at
the Stinson Beach Fire Protection District Headquarters at 3410 Shoreline Highway in Stinson
Beach. Special meetings are held as needed to go over specific topics such as the annual budget.
Meeting agendas and minutes can be found on the SBFPD website
(www.stinsonbeachfire.org/boardmeetings).
Annual Budget Review
The District’s budget, adopted no later than the June Board meeting each year, provides overall
control of revenue and expenditures including appropriations on a line item basis and the means
of financing them. The Bookkeeper produces monthly reports on expense activity that assist the
Chief in monitoring activities and programs. These reports are reported to the Board every
month to assure budgetary compliance.
6.8 FINANCIAL OVERVIEW
Approximately 80% of all annual district revenue10 comes from property taxes. Additional
revenue comes from the transient occupancy tax within the District’s boundaries (9%), annual
funding disbursement from the Marin Wildfire Prevention Authority (4%), and the West Marin
Emergency Fund (.6%). The Stinson Beach Fire Protection District maintains a goal of
providing a high level of community service while maintaining sustainable fiscal practices. Over
the past three years of available audited financial statements, the District has ended with budget
surpluses that have helped to bolster the District’s net position. This year-over-year increase in
net position is due primarily to a steady increase in home sales in the area over the past decade
which in turn has increased property tax revenue.
Revenue
Revenue sources for the SBFPD come primarily from a portion of the 1% property tax on
residents within its district boundaries. Of the 1% property tax, the SBFPD receives an average
of 8.7% which amounts to approximately $1.0 million for FY 2021-22. The other major source
of revenue for the District is the transient occupancy tax funding it receives, as well as an annual
disbursement from the Marin Wildfire Prevention Authority by way of the voter-approved
Measure C parcel tax. A breakdown of the most recent 5-year span currently available of
audited actuals for expenditures and revenues for the district is available below in Table 6-3.
Table 6-3: Stinson Beach Fire Protection District Financial Overview
Fiscal Year Revenues Expenditures Net
FY 2013-14 $671,382 $406,171 $265,211
FY 2014-15 $700,987 $468226 $232,761
FY 2015-16 $725,347 $528,993 $196,354
FY 2016-17 $821,433 $511,115 $310,318
FY 2017-18 $876,659 $520,930 $355,729
10 Stinson Beach Fire Protection District Operating Budget FY 2020-21
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Debt
The Stinson Beach Fire Protection District carries no long-term debt. Any large-scale purchases,
like the recent acquisition of a parcel of land in Stinson Beach, are paid for by way of the
District’s reserves and grant funding. Additionally, there are no current pension or other post-
employment benefit (OPEB) obligations as the agency offers retirement benefits to just its 4 full-
time employees. These benefits are provided through the International City/County Management
Association (ICMA) and are paid for annually in full. While the District currently has no official
reserve fund policy for maintaining a specific level of reserve funds, SBFPD has consistently
maintained reserves of approximately 15% of annual operating costs over recent years. The
District is currently contracted with a private firm to assist in building out its formal policies and
bylaws.
Financial Audit
The Stinson Beach Fire Protection District has its financial statements audited on a biennial
basis. The District contracts with an outside accounting firm, most recently Maher Accountancy,
to conduct the audit. The most recent audited financial statement was prepared for the fiscal year
ending June 30, 2018.
Table 6-4: Stinson Beach Fire Protection District Financial Audit Summary
Revenues FY 2017-2018 Audit
Property Taxes $771,724
ERAF $54,057
West Marin Emergency Fund $7,490
HOPTR subvention $3,801
Assessments and other taxes $23,514
Other State Aid $7,102
Investment Earnings $2,719
Miscellaneous $6,252
Total Revenues $876,659
Expenditures FY 2017-2018 Audit
Capital $29,995
Maintenance $210,914
Salaries $280,021
Total Expenditures $520,930
6.9 WILDLAND FIRE PREPAREDNESS
Local agencies such as the Stinson Beach Fire Protection District play a critical role in protecting
natural resources and the environment. Extended periods of drought, changing climate patterns,
wind, and low humidity has the potential to increase the occurrence and severity of wildland fires
which could threaten structures and lives in the Wildland Urban Interface.
The SBFPD participated in the Community Wildfire Protection Plan that was released in 2020.
This was a collaborative effort among fire agencies in the county, local fire organizations
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including FIRESafe Marin, land management agencies, and community stakeholders. Through
this effort, areas of concern throughout the county were identified based on population, fire
behavior, vegetation, and other factors. Additionally, several goals were stated and associated
action items were created to better prepare the county for wildland fires. One such goal is to
“Increase awareness, knowledge, and actions implemented by individuals and communities to
reduce human loss and property damage from wildland fires, such as defensible space and fuels
reduction activities, and fire prevention through fire safe building standards”. The SBFPD is
working towards providing more education to the community about this topic. The District
offers guidelines on its website for community members to create a personal preparedness plan
to help residents stay informed and be ready to evacuate quickly if necessary. The District has
also prioritized projects aimed towards defensible space such as chipper days to help reduce fire
hazards throughout neighborhoods in Stinson Beach, and the mowing of the Highlands in order
to help create a greater fuel break.
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7.0 STINSON BEACH COUNTY WATER DISTRICT
7.1 OVERVIEW
The Stinson Beach County Water District (SBCWD) was established in 1962 as an independent
special district under Sections 30000-33900 of the California Water Code. The SBCWD
boundary surrounds just over 9.3 square miles of the Stinson Beach area of Marin County’s
Pacific Coast. The district serves a population of approximately 2,10211 persons. The last
Municipal Service Review that included the SBFPD was conducted in January of 2016 as part of
the Countywide Water Municipal Service Review.
As a multi-purpose agency, SBCWD provides potable water, solid waste, and onsite wastewater
management to the census-designated place (CDP) of Stinson Beach. The District’s potable
water supplies are collected locally from creeks and groundwater sites with Sinson Gulch Creek
serving as SBCWD’s primary source.
Table 7-1: Stinson Beach County Water District Overview
Stinson Beach County Water District
Primary Contact: Ed Schmidt Phone: (415)-868-1333
Main Office: 3785 Shoreline Highway, Stinson Beach, CA
Formation Date: November 1962
Services Provided: Potable Water, Onsite Waste Water Management, Solid Waste
Service Area: 5,975 acres Population Served: 2,102
7.2 FORMATION AND DEVELOPMENT
The Stinson Beach County Water District was formed in 1962 by way of the County of Marin
approving the official service area and the residents within the boundary voting to approve the
formation. The driving force behind the creation of the district was the necessitation of
management of – both directly and indirectly – wastewater service within the growing
community due to concerns about septic tank seepage into open waters. In addition to
wastewater management, the district was also authorized to provide solid waste and water
services, though these powers were not immediately activated.
In 1972, the Golden Gate National Recreation Area (GGNREA) was established and covered just
under one-third of SBCWD’s jurisdictional boundary. This new public land designation, in
combination with the already established Mount Tamalpais State Park, meant that approximately
80% of the district’s boundary was composed of public use lands.
Between 1965 and 1974, ten different sewer studies were completed on the area. Each of the
studies was rejected for a myriad of reasons such as excessive cost, the potential for inducing
population growth and density, environmental concerns, and project reliability. A sewer plan
was finally taken to a bond election in 1974 and was defeated by the voters by a count of 205 to
146. In that same 1974 election, SBCWD was approved by a ballot measure to purchase the
11 Population served calculated through the means given in California Code of Regulations Section 64412
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Stinson Beach Water Company from its then-owner, George Leonard, who was the largest
landowner in the Stinson Beach area with 2,200 acres. The purchase included all related water
rights and facilities that had been previously merged from Leonard’s purchase and consolidation
of the Stinson Water Company and Golfito Water Company in 1965.
In 1977, special legislation was adopted amending California Water Code that provided SBCWD
the authority to regulate private septic systems within its jurisdictional boundary. This
legislation received support from the County of Marin and empowered SBCWD to regulate,
prohibit, and control public and private septic systems through a district permitting process. In
the same calendar year, the voters within SBCWD’s boundary approved a $600,000 bond
measure to upgrade the district’s water system in order to repair the distribution system as well
as create additional storage tanks. The work from this measure was completed in full in 1983.
In 2006, SBCWD completed and adopted an Urban Water Management Plan to assess water
reliability for the District over the coming 20 years. California State law requires every urban
water supplier that either provides over 3,000 acre-feet of water annually or serves more than
3,000 or more connections to assess the reliability of its water sources over a 20-year planning
horizon considering normal, dry, and multiple dry years as part of an Urban Water Management
Plan. As the district is well below both of these thresholds, the creation and the adoption of the
plan was done voluntarily.
7.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE
Stinson Beach County Water District’s service boundary currently encompasses just over 9.3
square miles and covers 5,975 acres of unincorporated Marin County. Approximately one-fourth
of that acreage (1,445) is underwater within the Bolinas Lagoon. A majority (approximately
four-fifths) of the land within the jurisdictional boundary is made up of the undeveloped public
lands of the Golden Gate National Recreation Area and Mount Tamalpais State Park. The
jurisdictional boundary has remained entirely unchanged with no recorded boundary changes
since LAFCos were created in 1963.
The District’s sphere of influence was established by Marin LAFCo in December of 1984. Both
the sphere of influence and the jurisdictional boundary purposely exclude the noticeable land
area within the middle of the boundary that is owned by the Audubon Canyon Ranch. This area
is approximately 1,440 acres. The sphere of influence was most recently updated in 2007 and
remains coterminous with its jurisdictional boundary.
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Figure 7-1: Stinson Beach County Water District Jurisdictional Boundary and Sphere of Influence
7.4 GROWTH AND POPULATION
The Stinson Beach County Water District encompasses the developed community of Stinson
Beach. According to 2020 U.S. Census Redistricting Data, the population of the CDP is 541,
which is approximately a 14% decrease from the 2010 population number 63212. The most
recent census data shows the CDP to have 751 total housing units, with only 290 of those units
occupied. With the Stinson Beach area having numerous weekend and seasonal residents, it is
difficult to ascertain the actual full-time population. California Code of Regulations Section
64412 identifies three methods to calculate the number of persons served by a public water
12 2020 US Census Redistricting Data
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system: census data, service connections multiplied by 3.3, or living units multiplied by 2.8.
With recent census data giving a housing unit total of 751, it can be calculated that the number of
individuals served by SBCWD is approximately 2,102.
According to the Stinson Beach Community Plan, Stinson Beach has limited opportunity for
future expansion since federal and state lands (Golden Gate National Recreation Area and Mount
Tamalpais State Park) and the Pacific Ocean surround the community. As such, all future
residential and commercial development will occur within the existing developed area. Stinson
Beach is already extensively developed and there remain few infill opportunities for growth. A
map with the current zoning for the area is shown below in Figure 7-2.
Figure 7-2: Stinson Beach Land Use Policy Map
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7.5 MUNICIPAL SERVICES
Potable Water
The Stinson Beach County Water District provides retail potable water services through its own
supply, treatment, storage, and distribution facilities. The distribution system spans
approximately 10 miles with the original service lines of the system having been laid as far back
as 1904. The District’s water supplies are locally sourced from both surface water and
groundwater lying within approximately 4 square miles of the Pine Gulch Watershed in the
southern portion of the District. The multiple sources within this area combine to provide
SBCWD with an estimated maximum available annual yield of 1,262 acre-feet based on the
current capacities of flow and pumping infrastructure.
Historically, surface water has accounted for a slight majority of all annual potable water
supplies that are utilized by the District, though annual averages fluctuate depending upon
precipitation yield. This supply is generated by way of four area creeks: Blackrock Creek,
Fitzhenry Creek, Stinson Gulch Creek, and Webb Creek. SBCWD diverts water from each of
the surface sources through pre-1914 appropriative rights with the State Water Resources
Control Board. Any appropriative water right13 that was acquired before 1914 is called a pre-
1914 appropriative water right and allows the holder of that right to forgo the necessitation of a
water right permit unless the use of water from that source has increased since 1914. Stinson
Gulch Creek serves as the main surface source and typically accounts for approximately 40% of
all annual surface water diversions by the District. The diversion point to Stinson Gulch Creek is
located at a higher elevation in relation to the remainder of the water system and directs water by
gravity to SBCWD’s treatment facilities. The Diversion points at Black Rock Creek and
Fitzhenry Creek are also located at higher elevations and provide gravity delivery to the
treatment facilities and typically make up the remaining majority of the District’s annual surface
water supplies. Obtaining water from Webb Creek requires the use of a pump station to
transport water from the source to the treatment facility and it is therefore used on a fairly
infrequent basis. The estimated total annual maximum yield for these four surface sources is
1,072 acre-feet.
Groundwater accounts for the remaining potable water supply for SBCWD and is obtained by
the pumping of four different wells within the District’s jurisdictional boundary. These wells do
not require permits from the State Water Resources Control Board as they are pumped from local
aquifers. The primary well for the District’s groundwater production is the Alder Grove Well.
The well is approximately 80 feet deep and resides towards the southern end of the Stinson
Gulch Creek. The Ranch Well, sitting just to the north of the Alder Grove Well, and the
Highland Well, situated to the east of the Alder Grove Well, are each slightly less productive
than Alder Grove albeit still regularly used. The Ranch Well was drilled in 1981 and has a depth
of approximately 104 feet while the Highlands Well, also drilled in 1981, has a depth of
13 An appropriative water right is water taken for use on non-riparian land or water that would not be there under
natural conditions on riparian land. Water right permits and licenses issued by the State Water Board are
appropriative rights.
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approximately 265 feet. The remaining Steep Ravine Well was drilled in 2010 and has an
approximate depth of 310 feet. This source is used only as an emergency source. The pumping
capacity of each well is as follows: Alder Grove – 70 gallons per minute; Ranch – 23 gallons per
minute; Highlands – 20 gallons per minute; Steep Ravine – 5 gallons per minute. The maximum
annual yield for these four wells, if they were to pump continuously, would be 190.5 acre-feet.
The District’s annual average potable water yield from both surface water and groundwater
combined is approximately 136 acre-feet.
The water that is produced and collected by SBCWD at seven of its eight surface water and
groundwater sources receives treatment at the Laurel Treatment Facility. The Laurel Treatment
Facility, also referred to as the Laurel Plant, processes the raw water from Stinson Gulch Creek,
Black Rock Creek, Fitzhenry Creek, Webb Creek, Ranch Well, Highlands Well, and Steep
Ravine Well. The Laurel Plant was constructed in 2012 and provides membrane filtration
treatment to coagulate and separate solids with the assistance of two chemical agents: aluminum
sulfate and polymer. A third chemical agent of sodium hypochlorite (chlorine) is added to the
filtered water before settling into a 320,000-gallon clearwell tank. The daily treatment capacity
of the Laurel Plant is approximately 200 gallons per minute with a maximum total of 288,000
gallons or .88 acre-feet of treated water production.
The groundwater taken from the Alder Grove Well is treated through an onsite flash contact tank
chamber injected with chlorine. Treatment capacity for the Alder Grove Well is directly tied to
the well pump and is currently tested to provide a maximum yield of 70 gallons per minute with
a daily maximum total of 101,000 gallons or .31 acre-feet.
The distribution system for SBCWD contains roughly ten miles worth of mains and overlays five
connected pressure zones. The main pressure zone provides water to the downtown area of
Stinson Beach as well as the surrounding areas in the Calles and Seadrift. This pressure zone
relies on gravity recharge from the Alder Grove Well as well as the Laurel Clearwell Tank. The
other four pressure zones all reside at higher elevations and require pumping from the Laurel
Clearwell Tank’s pump station. From this pump station, water enters three separate Highlands
pressure zones (Highlands One, Highlands Two, and Highlands Three) and is stored in one of
two 320,000 gallon storage tanks that combine to hold approximately 1.96 acre-feet. A separate
pump station in the Highlands is used to push water to the fifth and final pressure zone, Steep
Ravine. This pressure zone serves the upper Panoramic Highway area and relies on a single
storage tank with a 225,000-gallon capacity. There are a total of 734 active potable water service
connections within the District with 28 of those connections being non-residential. None of the
current connections reside outside of the District’s jurisdictional boundary.
Stinson Beach County Water District collects fees for its water service by way of two separate
monthly charges: service charge and usage charge. The usage charge is set by a Board of
Director's ordinance and is intended to provide full cost-recovery for the daily operation of the
water system. The service charge was last updated by the Board in 2010 and is constructed in a
tiered manner with rates to escalate based upon consumption. The service charge is based on
meter size with the majority of the District’s users having a 3/4” meter that carries a monthly
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charge of $38.55. SBCWD also collects a water connection fee for new customers. The
connection fee for a single-family home is $17,500.
Onsite Wastewater Management
At its inception, onsite wastewater management was the only service provided by the Stinson
Beach County Water District. The need for this service was the driving force behind the creation
of the District and would remain as the only service provided for the first twelve years. Between
1975 and 1977, the private consulting firm of Eutek Engineering performed a study that
indicated that on-site management for wastewater was the best option for the area moving
forward and the study offered the District a road map developing procedures and regulations to
help move forward. In 1978 the District adopted its set of rules and regulations governing onsite
wastewater management within the jurisdictional boundary, and the San Francisco Regional
Water Quality Control Board passed Resolution 78-01 to allow for continued use of systems in
the area under the management of SBCWD. In 1988 the District was given the authority for
permitting new systems which was previously solely the power of the County of Marin, and in
1994 the District’s Board of Directors updated the Wastewater Code after sixteen years of use.
The code eliminated the older relaxed repair standards, standardized design specifications for
sand filters, and required the installation of a system that meets the current code if there is new
construction on a property.
Today, the District is viewed as one of the key models for success, having been included as an
example in “Model for Success In On-Site Wastewater Management” published in the Journal of
Environmental Health. The District’s Onsite Wastewater Management Program was also
described as “…successful in demonstrating the technical and financial viability of onsite
systems serving the wastewater needs of an existing community” by an expert in the field,
William Whipple Junior. The District offers its residents renewable 2-year permits for onsite
systems that are subject to routine inspection. The District requires that homeowners file
information on all contractors used to perform service and homeowners are required to apply for
necessary permits regarding their systems during the construction and maintenance processes.
The District also maintains the right of entry to the property if owners do not cooperate.
Solid Waste Removal
SBCWD provides the residents within its jurisdictional boundary with solid waste (garbage)
management by way of a contract with the waste removal company Recology. The contract for
service was initially agreed to in April of 1990 with Shoreline Disposal Inc. In 2017, Shoreline
Disposal Inc. was purchased by Recology, and by approval of the Board of Directors for
SBCWD, the contract was assigned to the purchasing entity. The most recent update to the
contract was May of 2021. Recology charges the District’s residents fees for services that are
agreed upon by the SBCWD Board of Directors. SBCWD receives trash collection service from
Recology free of charge to seven District-owned locations.
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7.6 ORGANIZATION STRUCTURE
Board of Directors
The Stinson Beach County Water District has a five-member board that is elected to four-year
terms through an at-large election. All directors are required to live within the District’s
jurisdictional boundary. The Board of Directors maintains current certificates for the AB 1234
Ethics Training Compliance that can be viewed on the District’s website. The Board of
Directors meets regularly on the 3rd Saturday of each month at 9:30 a.m. at the Stinson Beach
County Water District Administrative Office located at 3785 Shoreline Highway in Stinson
Beach.
Table 7-2: Stinson Beach County Water District Board of Directors
Member Position Term Expiration
Barbara Boucke Director November 2024
Lawrence Baskin Director November 2024
Sandra Cross President November 2024
Morey Nelsen Vice-President November 2022
Jim Zell Director November 2022
Administration
The Board of Directors of SBCWD appoints a General Manager who serves on an at-will basis
to oversee all District activities. The General Manager oversees seven employees that include a
supervisor dedicated to overseeing the water system, one water plant operator, one wastewater
inspector, two utility operators, and two office employees.
7.7 ACCOUNTABILITY AND TRANSPARENCY
The Stinson Beach County Water District makes a concerted effort to maintain high
accountability and transparency with all its activities. The SBCWD website (www.stinson-
beach-cwd.dst.ca.us) provides information on Board meetings, financial reports, services,
history, water conservation, disaster preparedness, and more. At this time the District is meeting
all of the requirements by the State of California for a public agency website.
Meeting and Agendas
The SBCWD Board of Directors meets regularly on the 3rd Saturday of each month at 9:30 a.m.
at the Stinson Beach County Water District Administrative Office located at 3785 Shoreline
Highway in Stinson Beach. Special meetings are held as needed to go over specific topics such
as the annual budget. Meeting agendas and minutes can be found on the SBCWD website
(www.stinson-beach-cwd.dst.ca.us/bmm.html).
Annual Budget Review
The District’s budget, adopted no later than the June Board meeting each year, provides overall
control of revenue and expenditures including appropriations on a line item basis and the means
of financing them. The Office Assistant produces monthly reports on expense activity that assist
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the General Manager in monitoring activities and programs. These reports are presented to the
Board every month to assure budgetary compliance.
7.8 FINANCIAL OVERVIEW
Revenue sources for SBCWD are split between two main sources. The first, charges for service,
makes up approximately 40% of the District’s annual revenue and is derived from the sale of
water and wastewater permitting and monitoring fees. The remaining 60% is composed
primarily of ad valorem property tax and supplemented by Educational Revenue Augmentation
Fund (ERAF) tax monies as well as investment and interest accrual. While the revenues for
charges for services have seen slight declines over the past three fiscal years due to diminished
water usage and minimal new water connection fees, total revenue has not declined due to the
rising property values within the District’s boundary. The projected revenue for the District for
fiscal year 2021-22 is $2,484,644. The average year-end revenues for the SBCWD over the past
5 audited years (FY 2015-16 to FY 2019-20) has been $2,398,301.
The primary annual expense for the District comes in the form of staff salary and benefits
(approximately 55%). The total projected expenses for the District for FY 2021-22 totaled
$2,119,135. The average year-end revenues for the SBCWD over the past 5 audited years has
been $2,060,946. A breakdown of the past 5 audited years of revenues and expenses can be seen
below in Table 7-3.
Table 7-3: Stinson Beach County Water District Financial Audit Summary
Revenue FY 2019-20 FY 2018-19 FY 2017-18 FY 2016-17 FY 2015-16 Averages
Charges for
$994,713 $1,077,626 $1,177,483 $1,102,351 $1,023,447 $1,075,124
Services
Investment
$186,099 $18,907 $56,725 $42,822 $41,052 $69,121
and Interest
Property
$1,302,096 $1,158,309 $1,093,170 $1,012,187 $912,371 $1,095,626
Taxes
Grant
$0 $0 $59,528 $397,611 $485,313 $188,490
Revenues
Total
$2,482,908 $2,254,842 $2,386,906 $2,554,981 $2,462,183 $2,428,364
Revenues
Expenses FY 2019-20 FY 2018-19 FY 2017-18 FY 2016-17 FY 2015-16 Averages
Salaries and
$1,490,830 $1,160,754 $1,145,826 $1,085,822 $1,129,364 $1,202,519
Benefits
Board Officer
$14,000 $13,200 $13,950 $13,900 $17,813 $14,572
Costs
Professional
$264,377 $261,747 $301,277 $241,013 $196,243 $252,931
Services
Other
Operating $284,893 $294,432 $290,903 $222,778 $176,626 $253,926
Expenses
Depreciation $337,962 $312,743 $262,966 $263,038 $240,845 $283,510
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Interest on
Long-Term $43,125 $49,387 $56,452 $63,155 $69,457 $56,315
Debt
Loss on
Disposal of $0 $0 $1,906 $0 ($3,051) ($572)
Assets
Pension
($112,522) ($17,025) $161,477 ($288,839) $225,626 ($6,256)
Expense
Other
$14,333 $0 $1,837 $2,111 $0 $3,656
Expenses
Total
$2,336,998 $2,075,238 $2,236,594 $1,602,978 $2,052,923 $2,060,946
Expenses
Debt
As of June 30, 2020, SBCWD was carrying two main sources of long-term debt. In 2013, the
District authorized the issuance of Water Revenue Refunding Bonds in the principal amount of
$1,997,614 for the purpose of construction financing for water system improvements. The bond
bears interest at 3.47% and is payable in semi-annual payments each April 1st and October 1st
through October 1, 2032. As of June 30, 2020, the balance remaining on the bonds was
$1,196,502 and all required payments had been made within that fiscal year.
The second source of long-term debt for the District comes in the form of a pension plan for
employees that is part of the California Public Employees Retirement System (CalPERS).
CalPERS provides retirement, disability, and death benefits based on the employee’s years of
service, age, and final compensation. As of June 30, 2019, the SBCWD Net Pension Liability
was $1,573,260. The SBCWD pension-funded ratio is approximately 69%. In addition to the
pension plan, the SBCWD provides other post-employment benefits (OPEB) to its retirees. As
of June 30, 2019, the District carried a Net OPEB Liability total of $118,380. The District
currently has 10 employees, both active and inactive, in their OPEB plan.
Financial Audit
The Stinson Beach County Water District annually has its financial statements audited and
contracts with an outside accounting firm, Cropper Accountancy Corporation. The most recent
audited financial statement was prepared for the fiscal year ending June 30, 2020.
7.9 SUSTAINABILITY
Local agencies such as the Stinson Beach County Water District play a critical role in protecting
natural resources and the environment. Extended periods of drought and increasingly
unpredictable climate patterns have significantly increased the importance for local agencies to
step up their own conservation and long-term planning measures as well as making a concerted
effort towards higher levels of public outreach.
SBCWD offers the users in its boundary a “Master List of Water Saving Ideas” on its website in
order to help educate residents on ways that they can take charge in the effort to minimize water
waste. The District also offers a software application called “Eye on Water” that allows users
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the opportunity to view a detailed water usage history to better understand their peak usage
times. It also allows users to set up alerts to help detect leaks and attend to them in a timely
manner. The District is continuously making capital improvement efforts in order to curtail any
waste of its own by way of worn-out infrastructure. Over the past decade, the District has
replaced thousands of feet of piping throughout its boundary, with a significant amount of this
occurring in 2014 within the Calles and Patio area of Stinson Beach.
The District also plays a critical role in protecting the environment of Stinson Beach through its
Onsite Wastewater Management Program to ensure a high level of water contamination
prevention and the mitigation of leaks within the sensitive coastal habitat. The program includes
regular review of proposed systems, inspection and monitoring of existing systems, enforcement
of District criteria for wastewater performance, surface and groundwater quality, and public
education on the proper use of onsite wastewater systems.
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8.0 BOLINAS FIRE PROTECTION DISTRICT
8.1 OVERVIEW
The Bolinas Fire Protection District (BFPD) was established in February of 1958 as an
independent special district. The BFPD boundary surrounds just over 9.3 square miles of the
area including and surrounding the census-designated place of Bolinas along Marin County’s
Pacific Coast. The district serves a population of approximately 1,483 persons14. The last
Municipal Service Review that included the BFPD was conducted in August of 2007 as part of
the Bolinas Area Service Review and Sphere of Influence Update.
The primary function of BFPD is to provide fire protection, emergency medical response,
disaster planning and response, fire prevention, and fire prevention education services to the
unincorporated town of Bolinas and the surrounding area. The District also provides first
responder services to the Point Reyes National Seashore and the Golden Gate National
Recreation Area. The jurisdictional boundary of the District reaches to the top of the Bolinas
Ridge to the north down to Duxbury Point at its southern tip. Part of the BFPD’s eastern border
is contiguous with the border of the Stinson Beach Fire Protection District’s boundary. The
BFPD participates in the Marin County and California Mutual Aid System with nearby fire
districts and responds to wildland fires as needed. The District is also a member agency of the
Marin Wildfire Prevention Authority (MWPA). MWPA’s 17 member agencies throughout
Marin County receive funding for fuel removal projects, defensible space evaluations, and other
helpful resources by way of a voter-approved parcel tax that was passed in March of 2020.
BFPD is allocated .61% of MWPA’s total annual funding.
Table 8-1: Bolinas Fire Protection District Overview
Bolinas Fire Protection District
Primary Contact: Chief George Krakauer Phone: (415)-868-1566
Headquarters: 100 Mesa Road, Bolinas, CA 94924
Formation Date: March 7, 1958
Services Provided: Fire Protection and Emergency Response
Service Area: 6,009 acres Population Served: 1,483
8.2 FORMATION AND DEVELOPMENT
The Bolinas Fire Protection District was established as an independent Special District whose
legal authority and responsibilities are contained in the State of California Health and Safety
Code Sections 13800-13970. The Bolinas Volunteer Fire Department began providing fire
protection services to the community years before the official formation of the District, but on
February 14th, 1958, the Bolinas Fire Protection District was formally organized. The District’s
firehouse was originally built on Mesa Road in 1970. In 1998, engineers determined that the
building did not meet state building codes and would not withstand an earthquake larger than
6.5. In 2003, a tax measure (Measure F) was passed by the voters agreeing to a new parcel tax in
14 2020 US Census Redistricting Data
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order to fund the construction of a new firehouse. In February of 2006, the old firehouse was
demolished and in July of 2007, the new firehouse was opened on the same site.
Figure 8-1: Bolinas Fire Protection District Jurisdictional Boundary and Sphere of Influence
8.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE
Bolinas Fire Protection District’s service boundary, which currently encompasses just under 9.4
square miles, includes all of the residential areas of the census-designated place of Bolinas and
stretches to the north up to the top of the Bolinas Ridge. The boundary encompasses agricultural
lands, privately owned parklands like the Audubon Canyon Ranch, and publicly owned
parklands like parts of the Golden Gate National Recreation Area and the Point Reyes National
Seashore. There are a total of 1,207 parcels within the District’s boundary and 887 total living
units. The BFPD’s southeastern boundary is contiguous with the Stinson Beach Fire Protection
District’s northern boundary. The District’s sphere of influence is coterminous with its
jurisdictional boundary. The sphere of influence was last updated in August of 2007.
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8.4 GROWTH AND POPULATION
The Bolinas Fire Protection District encompasses the census-designated place (CDP) of Bolinas.
According to 2020 U.S. Census Redistricting Data, the population of the CDP is 1,483, which is
approximately an 8% decrease from the 2010 population number 1,62015. The most recent
census data shows the CDP to have 887 total housing units, with 660 of those units occupied.
The theoretical buildout for the planning area is 975 units. The estimated maximum population
projection (2030) based on the County Wide Plan is 2,362, which would be over an 85%
increase. This projection, however, does not account for the constraints on water and sewer
capacity within the CDP that are currently in place. While the planning area has approximately
110 parcels remaining that are currently zoned to allow for new construction, the community’s
water district, Bolinas Community Public Utility District, has had a moratorium in place on new
connections to the municipal water supply since 1971. This moratorium poses a significant
hurdle for any new development. A land-use map for the planning area can be seen below in
Figure 8-2.
Figure 8-2: Bolinas Fire Protection District Land Use Policy Map
15 2020 US Census Redistricting Data
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8.5 MUNICIPAL SERVICES
Fire Protection and Emergency Response
The Bolinas Fire Protection District provides fire protection, emergency medical aid, disaster
management/preparedness. Incident call types fire, overpressure rupture/explosion/overheat,
rescue and emergency medical service incident, hazardous conditions, service call, good intent
call, and special incident type. The BFPD receives an average of 248 calls per year (2010-2020)
with the majority being for Rescue/Emergency Medical. During the calendar year of 2020, the
BFPD responded to 258 incidents. Of these, 68 percent were for emergency medical services
and 5 percent were for fires. Figure 8-3 below shows a complete breakdown of the calls for
service received in 2020 for BFPD. The District has one station with 4.0 full-time equivalent
(FTE) paid employees, as well as 21 volunteer firefighters. A majority of the firefighters are also
Emergency Medical Technician (EMT) certified. The Fire Chief oversees the general operations
of the District in accordance with the policy direction of the Board of Directors. The Fire Chief
is supported by an Assistant Chief, three Duty Officers, and an Administrative Manager.
Figure 8-3: Bolinas Fire Protection District Incident Type Report
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Effective January 1, 2022, from a report that was created in September of 2021, Bolinas Fire
Protection District was given a Class 3/3x Public Protection Classification (PPC) rating by the
Insurance Services Office (ISO), an organization that independently evaluates municipal fire-
protection efforts throughout the United States. Ratings range on a scale of 1 to 10. Class 1
generally represents superior property fire protection, and class 10 indicates that the area’s fire
suppression program does not meet ISO’s minimum criteria.16 While many communities receive
a single number classification, many smaller and more rural communities receive a split
classification to reflect the risk of loss more precisely. In the case of a split classification, the
first number refers to the classification of properties within 5 road miles of a fire station and
within 1,000 feet of a creditable water supply. The second number, with either the X or Y
designation, applies to properties within 5 road miles of a fire station but beyond 1,000 feet of a
creditable water supply (i.e. fire hydrant). ISO generally assigns Class 10 to properties beyond 5
road miles. The majority of insurance agencies throughout the country use the PPC
classification for underwriting and calculating premiums on residential, commercial, and
industrial properties. BFPD’s rating of 3/3x puts the district in the top 14% of fire protection
agencies in the country. Figures 8-4 and 8-5 below show the breakdown of PPC rating data
throughout both the United States and California.
Figure 8-4: PPC Rating Distribution by Class Throughout California
16 How the PPC Program Works
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Figure 8-5: PPC Rating Distribution by Class Throughout the United States
Facilities and Apparatuses
The Bolinas Fire Protection District owns, operates, and maintains one fire station which is
concurrently used as its administrative building. The station is located at 100 Mesa Road in
Bolinas. The BFPD also has a variety of apparatus that serves the community ranging from
support vehicles to fire engines. The District maintains a Vehicle Replacement Reserve fund
that receives annual allocations based on revenue and expenditure projections. The fund
currently sits at approximately $100,000 in the event that one of their current vehicles requires
replacement. The District’s apparatus are as follows:
• 2010 Spartan Type 1 Engine
• 1997 Ford Type 1 Engine
• 1999 International Type 3 Engine
• 2012 Ford Utility Vehicle
• 2002 Chevrolet Command Vehicle
• 2002 Chevrolet Flatbed Pickup
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8.6 ORGANIZATION STRUCTURE
Board of Directors
The Bolinas Fire Protection District has a five-member board that is elected to four-year terms
through an at-large election. All directors are required to live within the District’s jurisdictional
boundary. Elections for board seats take place in November of each even-numbered year. The
Board of Directors meets regularly on the 4th Wednesday of each month at 7:00 p.m. at the
Bolinas Fire Protection District Headquarters located at 100 Mesa Road in Bolinas.
Table 8-2: Bolinas Fire Protection District Board of Directors
Member Position Date of Next Seat Election
Claire Molesworth President November 2022
Nancy Torrey Vice President November 2022
William Pierce Director November 2022
Chris Martinelli Director November 2024
Simon Dunne Director November 2024
8.7 ACCOUNTABILITY AND TRANSPARENCY
The Bolinas Fire Protection District makes a concerted effort to maintain high accountability and
transparency with all its activities and currently either meets or exceeds all California State
mandates on agency transparency. The BFPD website (www.bolinasfire.org) provides
information on defensible space, board meetings, financial reports, stations, history, response
statistics, disaster preparedness, and more.
Meeting and Agendas
The BFPD Board of Directors meets regularly on the 4th Wednesday of each month at 7:00 p.m.
at the Bolinas Fire Protection District Headquarters at 100 Mesa Road in Bolinas. Special
meetings are held as needed to go over specific topics. Meeting agendas and minutes can be
found on the BFPD website (www.bolinasfire.org/board-meetings-1).
Annual Budget Review
The District’s budget, adopted no later than the June board meeting each year, provides overall
control of revenue and expenditures including appropriations on a line item basis and the means
of financing them. The Administrative Manager produces monthly reports on expense activity
that assist the Chief in monitoring activities and programs. These reports are presented to the
Board every month to assure budgetary compliance.
8.8 FINANCIAL OVERVIEW
The majority of the annual operating revenue brought in by the Bolinas Fire Protection District is
collected in property taxes within the District’s boundaries. Ad valorem property tax accounts
for approximately 60% of annual revenue. In November of 2005, the BFPD Board of Directors
officially adopted a balanced budget policy requiring the District’s budgeted expenses not to
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exceed budgeted revenues in any given fiscal year.17 Over the past decade, the District has
upheld this policy and consistently shown revenues outpacing expenses.
Revenue
Revenue sources for the BFPD come primarily from a portion of the 1% property tax on
residents within its district boundaries. Of the 1% property tax, the BFPD receives an average of
12% which is projected to amount to $554,000 for FY 2021-22. The other major sources of
revenue for the District include rental income (14%), Measure F parcel tax (9%), transient
occupancy tax (7%), a voter-approved tax assessment for paramedic services (6%), as well as an
annual disbursement from the Marin Wildfire Prevention Authority by way of the voter-
approved Measure C parcel tax (4%). For FY 2019-20 (the most recent audited financials
available) the District saw a revenue increase of $152,562 (17.15%) primarily due to an increase
in property tax revenue of $35,386 and the West Marin Transient Occupancy Tax Sharing
(Measure W) of $100,224. Total revenue for the District for FY 2021-22 is projected to be
$1,055,616. A breakdown of the most recent 5-year span currently available of audited actuals
for expenditures and revenues for the district is available below in Table 8-3.
Table 8-3: Bolinas Fire Protection District Budget Analysis
Fiscal Year Revenues Expenditures Net
FY 2015-16 $691,905 $589,394 $102,511
FY 2016-17 $746,631 $578,955 $167,676
FY 2017-18 $809,458 $592,710 $216,748
FY 2018-19 $883,457 $656,542 $226,915
FY 2019-20 $1,052,268 $707,792 $344,476
Debt
As of June 30, 2020, the Bolinas Fire Protection District had approximately $1,518,057 in long-
term debt. In 2003, the District entered into a “lease, lease-back” agreement in order to procure
bonds in the amount of $2,260,000 were issued in order to finance the acquisition and
construction of a new District Headquarters. The bonds were (and continue to be) paid by the
voter-approved parcel tax (Measure F). On December 15, 2016, the District refinanced the
bonds in the principal amount of $1,555,000. The refinancing reduced the principal and interest
payments from the original rates of 4.0% - 5.1% to the updated rates of 3.5% - 4.5%. The bonds
are scheduled to be repaid in August of 2045. In June of 2008, the District was issued Clean
Renewable Energy Bonds (Solar Bonds) in the amount of $189,000 in order to finance the
purchase and installation of solar panels to provide electricity to the District Headquarters. The
panels were installed in 2009. These bonds are scheduled to be fully repaid in 2023, and there is
no interest due on these bonds.
The BFPD also provides a pension plan for employees and is part of the California Public
Employees Retirement System (CalPERS). CalPERS provides retirement, disability, and death
benefits based on the employee’s years of service, age, and final compensation. As of June 30,
17 BFPD Balanced Budget Policy
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2020, the BFPD Net Pension Liability was $222,536. The BFPD pension funded ratio is 81%
which is above average for fire districts.
Financial Audit
The Bolinas Fire Protection District has its financial statements audited on an annual basis. The
District contracts with an outside accounting firm, most recently Nigro & Nigro, to conduct the
audit. The most recent audited financial statement was prepared for the fiscal year ending June
30, 2020.
Table 8-4: Bolinas Fire Protection District Financial Audit Summary
Revenues FY 2019-2020 Audit
Property Taxes $572,894
Special Tax – Paramedic Services $64,502
Parcel Tax $99,024
Solar Recovery Revenue $11,072
Other Revenue and Reimbursements $5,940
Transient Occupancy Tax $100,224
Rental Revenue $139,798
Investment Earnings $50,769
Total Revenues $1,052,268
Expenditures FY 2019-2020 Audit
Salaries and Wages $267,862
Employee Benefits $92,710
Materials and Services $231,458
Capital Outlay $8,839
Debt Service: Principal Payments $46,812
Debt Service: Interest Payments $60,111
Total Expenditures $707,792
Excess of Revenues Over Expenditures $344,476
8.9 WILDLAND FIRE PREPAREDNESS
Local fire protection agencies like the Bolinas Fire Protection District play a critical role in
protecting natural resources and the environment. Extended periods of drought, changing
climate patterns, wind, and low humidity has the potential to increase the occurrence and severity
of wildland fires which could threaten structures and lives in the Wildland Urban Interface.
The BFPD participated in the Marin Community Wildfire Protection Plan that was released in
2020. This was a collaborative effort among fire agencies in the county, local fire organizations
including FIRESafe Marin, land management agencies, and community stakeholders. Through
this effort, areas of concern throughout the county were identified based on population, fire
behavior, vegetation, and other factors. The plan identified BFPD as having the 4th highest
amount of total burnable acres, 5,947, of any fire agency in Marin County. Within the plan,
several goals were stated and associated action items were created to better prepare the
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participating fire agencies throughout the county for wildland fires. One such goal is to
“Increase awareness, knowledge, and actions implemented by individuals and communities to
reduce human loss and property damage from wildland fires, such as defensible space and fuels
reduction activities, and fire prevention through fire safe building standards”. The BFPD is
working towards providing more education to the community about this topic. The District
offers educational material on its website on defensible space for property owners, as well as
guidelines for community members to create a personal preparedness plan to help residents stay
informed and be ready to evacuate quickly if necessary. The District has also prioritized projects
aimed towards defensible space such as chipper days, roadside mowing, and other fuel reduction
efforts to help reduce fire hazards throughout neighborhoods in Bolinas.
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9.0 BOLINAS COMMUNITY PUBLIC UTILITY DISTRICT
9.1 OVERVIEW
The Bolinas Community Public Utility District (BCPUD) was established in 1967 as an
independent special district under Section 15501 of the California Public Utilities Code
following a vote to approve a resolution of the Marin County Board of Supervisors to
consolidate the Bolinas Public Utility District and the Bolinas Beach Public Utility District. The
District is located on the western Pacific shoreline of Marin County on a peninsula with the
Bolinas Lagoon to its east. The District’s jurisdictional boundary encompasses just under 2.6
square miles. BCPUD serves a population of approximately 1,48318 persons. The last Municipal
Service Review that included the BCPUD was conducted in January of 2016 (though only one of
the District’s services was reviewed) as part of the Countywide Water Municipal Service
Review, and the last review of all services offered was in August of 2007.
BCPUD’s currently activated service powers include potable water, wastewater collection and
treatment, solid waste disposal, drainage, and parks and recreation. These services are primarily
provided to the census-designated place (CDP) of Bolinas. The District’s primary potable water
supply is collected locally from the Arroyo Hondo Creek and is secured through permits with the
State Water Resources Control Board. The District has upheld a moratorium on new water
service connections since 1971 when the Board of Directors declared a water shortage
emergency.
Table 9-1: Bolinas Community Public Utility District Overview
Bolinas Community Public Utility District
Primary Contact: Jennifer Blackman Phone: (415)-868-1224
Main Office: 270 Elm Road, Bolinas 94924
Formation Date: July 1, 1967
Services Provided: Potable Water, Wastewater, Drainage, Solid Waste, Parks & Recreation
Service Area: 1,649 acres Population Served: 1,483
9.2 FORMATION AND DEVELOPMENT
The Bolinas Community Public Utility District’s formation took place in July of 1967, taking
over as the chief provider of organized utility services in the area nearly sixty years after the
formation of the community’s first public service agency in 1908 in Sanitary District No. 3
(SD3). SD3 was initially formed to serve the first residential subdivision on the Bolinas
peninsula, Little Mesa, and the surrounding downtown and harbor areas with wastewater
collection and disposal. Another larger subdivision, Big Mesa, was constructed in the late 1920s
and water services for the entire area were organized by a private company that had built a dam
on the nearby Arroyo Hondo Creek. In 1927, voters in the area approved the formation of the
Bolinas Beach Public Utility District to take over potable water services to the Big Mesa area,
18 Population served calculated through the means given in California Code of Regulations Section 64412 using
2020 US Census Redistricting Data on population.
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and in 1935 a second district, the Bolinas Public Utility District, was formed for water services to
the Little Mesa and downtown/harbor areas. The creation of the second district included the
merger and acquisition of wastewater services from Sanitation District No. 3.
As development within Big Mesa surged throughout the 1940s and 1950s, in 1958 voters
approved the formation of the Bolinas Fire Protection District from what had been the Bolinas
Volunteer Fire Department. In 1967 a reorganization of the local governmental structure was
deemed prudent and the merger of the Bolinas Beach Public Utility District and the Bolinas
Public Utility District was approved in order to form the Bolinas Community Public Utility
District. At the time of formation, LAFCo authorized BCPUD to move forward with the
activated service powers of potable water, wastewater, drainage, solid waste, and parks and
recreation. In 1968 LAFCo approved a joint consolidation application submitted by BCPUD and
the Bolinas Fire Protection District. The consolidation19 was intended to dissolve the Bolinas
Fire Protection District and transfer all assets and liabilities to BCPUD but was ultimately
terminated due to conditions lapsing over a dispute involving the allocation of property taxes.
In 1971 the Board of Directors of BCPUD approved a moratorium on new water connections
within the District following an assessment of its water supply and a declaration of a water
shortage emergency. Despite multiple legal challenges, the courts upheld the Board’s decision
with the determination that the District had a solid factual basis for declaring the emergency.
In 1975 the District completed the construction of a new lift station, force main, and wastewater
treatment facility in response to an order from the State of California to discontinue the disposal
of wastewater effluent in the Bolinas Lagoon. The project was funded by a voter-approved bond
measure in 1973 for $144,000 that included the acquisition of 90 acres of land for the
construction of an intergraded pond system for biological aeration with the intention of avoiding
the use of chemicals.
The Bolinas Community Plan was adopted by the County of Marin Board of Supervisors in
December of 1975. The plan, serving as the chief visioning document for land use and related
management policies, was updated in 1983 and again in 1997. The most recent iteration
anticipates a build out of the area of 815 dwelling units with the majority of the remaining
development opportunities existing in the vacant lots within Big Mesa.
In 1996, the District completed the construction of a new water treatment plant with
microfiltration technology in order to reduce the necessitation of chemical treatment of the water.
The project was funded by a loan from the State of California.
19 Marin LAFCo Resolution #2
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Figure 9-1: Bolinas Community Public Utility District Jurisdictional Boundary and Sphere of
Influence
9.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE
Bolinas Community Public Utility District’s jurisdictional boundary is comprised of just over 2.6
square miles and covers 1,649 acres of unincorporated Marin County. Approximately one-fifth
of that acreage (350 acres) is part of the Point Reyes National Seashore. In total there are 1,168
legal parcels encompassed within BCPUD’s boundary. Since its formation, the boundary for the
District has only been amended one time, in October of 2017, with the annexation of 20.6 acres
along Mesa Road20.
The District’s sphere of influence was established by Marin LAFCo in December of 1984. At
that time, the sphere of influence was coterminous with the jurisdictional boundary. Marin
20 Marin LAFCo File #1337
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LAFCo reaffirmed the sphere of influence in 2007. The SOI was most recently updated in 2017
coinciding with a property annexation.
9.4 GROWTH AND POPULATION
The Bolinas Community Public Utility District encompasses the census-designated place (CDP)
of Bolinas. According to 2020 U.S. Census Redistricting Data, the population of the CDP is
1,483, which is approximately an 8% decrease from the 2010 population number 1,62021. The
most recent census data shows the CDP to have 887 total housing units, with 660 of those units
occupied. The theoretical buildout for the planning area is 975 units. The estimated maximum
population projection (2030) based on the County Wide Plan is 2,362, which would be over an
85% increase. This projection, however, does not account for the constraints on water and sewer
capacity within the CDP that are currently in place. While the planning area has approximately
110 parcels remaining that are currently zoned to allow for new construction, the BCPUD has
had a moratorium in place on new water connections to the municipal water supply since 1971.
This moratorium poses a significant hurdle for any new development. A land-use map for the
planning area can be seen below in Figure 9-2.
Figure 9-2: Bolinas Land Use Policy Map
21 2020 US Census Redistricting Data
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9.5 MUNICIPAL SERVICES
Potable Water
The Bolinas Community Public Utility District provides retail potable water services through its
own supply, transmission, treatment, storage, and distribution facilities. The infrastructure
originally was constructed by two separate agencies, the Bolinas Beach Public Utility District
and the Bolinas Public Utility District. The distribution system stretches approximately 19
miles. The District’s water supplies are locally sourced and obtained from surface sources
contained within a 2 square mile watershed area of the Point Reyes National Seashore. These
sources, in combination with the District’s permitted diversions, provide BCPUD with an
estimated maximum available annual yield of 167 acre-feet.
The primary potable water source for BCPUD is the Arroyo Hondo Creek and the direct surface
diversions within it. The District possesses four separate post-1914 appropriated permit rights22
from the State Water Resources Control Board to draw water from the creek at each of the
diversion points and each with different usage allowances. The permits give the District a
specific maximum daily and monthly water volume harvesting allocation that allow the District
to divert up to 113 acre-feet directly from the Arroyo Hondo Creek annually for immediate use.
The permits also stipulate that BCPUD is allowed to divert an additional 30 acre-feet annually
from the creek to the Woodrat 2 reservoir for storage.
As a secondary source, the District also maintains separate permits to divert and use water from
unnamed streams which also lie within the Point Reyes National Seashore. These permits allow
the District to divert a maximum of 56 acre-feet (combined) annually for storage in the Woodrat
1 (26 acre feet) and Woodrat 2 (30 acre feet) reservoirs; total withdrawal under these permits
shall not exceed 54 acre feet annually. It has been the general practice of BCPUD to reserve
accessing water from these sources only for emergencies or during storm events, when turbidities
levels in the Arroyo Hondo Creek are very high. Recently, BCPUD has also received approval
from the State Water Resources Control Board to add two emergency groundwater well sources
to the water system in a continued effort to diversify the available water sources to help the
District be more drought resilient.
All water diverted by BCPUD from its surface water sources receives treatment at its Woodrat
Water Treatment Plant. The plant was originally constructed in 1995 and its treatment system
was upgraded in 2007 and again in 2017 to treat the raw water by way of inline coagulation prior
to low-pressure micro-filtration. After filtration, chlorine is added to the water and it then settles
in a 4,000-gallon clearwell tank. The daily treatment capacity of the facility is 144 gallons per
minute which offers the District a daily maximum treatment potential of 207,360 gallons (.64
acre feet).
The distribution system for BCPUD is comprised of approximately 19 miles of water mains that
supply the District’s two pressure zones that connect a 300-foot range in elevation between
22 Any appropriative water right that was acquired after 1914 is called a post-1914 appropriative water right and
requires the holder of that right to apply for a water right permit.
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service connections. The primary pressure zone is gravity-fed from the District’s two treated
water storage tanks, the West Tank and the East Tank, that can store a combined volume of
860,000 gallons. This main pressure zone supplies over 80% of all active connections within the
District. The District currently serves 587 active potable water service connections which are
divided between 562 residential and 25 non-residential users.
BCPUD collects two separate fees from its users: a metered usage fee and an annual service
charge. The charges are set by the Board of Director's by resolution in connection with the
annual budget adoption process and are intended to provide full cost-recovery for the daily
operation of the water system as well as to provide funding for projected capital improvement
projects and debt services. The usage fee is tiered and escalates based on the total volume
consumed. Usage of 100-1500 cubic feet is $1 per 100 cubic feet. The annual charge for service
is currently $1,468 and is collected on the user’s property tax bill. Unlike the other agencies that
provide potable water that are reviewed in this study, BCPUD does not have an adopted
connection fee for establishing new water service connections due to the moratorium negating its
necessity.
Wastewater
BCPUD provides wastewater collection, treatment, and disposal to 162 connections (residential
and business) in the downtown area of the community of Bolinas as well as one additional
connection on the Bolinas Mesa. Wastewater operations were taken over by BCPUD upon its
formation in 1967. The District’s sewer service area encompasses approximately three square
miles with a collection system of pipelines stretching approximately three linear miles and
consisting of pipes ranging in size from two inches to six inches. The system collects, treats, and
disposes of an average of approximately 30,000 gallons per day of wastewater. Within the
system, wastewater is collected from the downtown connections and is pumped to the treatment
facility on the Big Mesa. The treatment facility consists of a series of four oxidation ponds for
stabilization and storage, with ultimate disposal through pond evaporation and spray disposal on
45 acres of grasslands. The District currently charges an annual sewer service charge of $1,453
for residential service and a scalable commercial service rate between $1,478 and $1,903. The
annual sewer service charge is set by the Board of Directors by resolution in connection with the
annual budget adoption process. Sewer service charges are included on the rate payer’s property
tax bill.
In 1990, the District completed an infiltration and inflow correction project in an effort to
eliminate unwanted stormwater runoff and seawater intrusion from the collection system.
Infiltration is groundwater, or groundwater that is influenced by surface or sea water, that enters
sewer pipes through holes, breaks, joint failures, connection failures, and other openings.
Infiltration quantities often exhibit seasonal variation in response to groundwater levels. Storm
events can trigger a rise in groundwater levels and increase infiltration flows. Inflow is surface
water that enters the wastewater system from yard, roof, and footing drains, from cross-
connections with storm drains and downspouts, and through holes in manhole covers. Inflow
occurs as the result of storm events that contribute to excessive sewer flows. Upon the project’s
completion, only one small section (from the BCPUD lift station to the end of Wharf Road) of
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the collection system was not improved, with the rest being slip-lined23 with all manholes
replaced and all service laterals replaced. While the project proved to significantly reduce the
infiltration and inflow, the sewer collection system at times still experiences some inflow and
infiltration during storm events. As such, the District has maintained its moratorium on new
service connections that was enacted in 1985 as a system requirement imposed by the Regional
Water Quality Control Board for Clean Water Grant Program Funding.24
Over the past two years, BCPUD has identified seven properties located on Canyon Road that
are in close proximity to the collection system and whose owners desire to connect to the system.
Two of these property owners have been ordered to connect to the system by Marin County due
to non-performance of their septic systems. BCPUD is currently working with the Regional
Water Quality Control Board staff in an effort to identify a path forward to modify the
moratorium to allow the additional seven connections and possibly remove the moratorium as a
whole. These efforts are taking place alongside the updating of the District’s wastewater
discharge permit with the anticipation of a formal treatment capacity analysis.
Recreation
BCPUD does not have any current direct involvement in day-to-day parks and recreation
activities within the District’s boundary. While the District owns the property on which Mesa
Park, a 12-acre parcel that has been improved with a parking lot, soccer field, baseball field, and
a skate park, the land and the activities programmed there are managed by the Fire House
Community Park Agency (FHCPA). FHCPA is a joint powers authority (JPA) whose member
agencies include BCPUD and the Bolinas-Stinson Union School District. The JPA was created
on January 21st, 1985, with the stated intention of the provision of recreational opportunities to
the taxpayers and residents of the area and to the students of the school and their families.
FHCPA receives no direct funding from BCPUD. The JPA receives funding by way of Measure
A funds and ad valorem property taxes.
Drainage
While BCPUD’s wastewater system has 163 connections, the remainder and majority of
residences within the District’s boundary are served by on-site wastewater treatment systems
(septic systems). In the 1980s, a pollution study was conducted by Marin County on the Big
Mesa in Bolinas that concluded that the septic systems within the study area presented a
“potential public health hazard”. Following a grant from the State Water Resources Control
Board, a plan was put in place for BPCUD to assume authority for management and oversight of
the construction and subsequent management of on-site wastewater treatment systems in the
area. Ultimately, however, the project would be rejected due to local opposition.
23 Sliplining is a technique for repairing leaks or restoring structural stability to an existing pipeline. It involves
installing a smaller “carrier pipe” into a larger “host pipe”, grouting the annular space between the two pipes, and
sealing the ends.
24 BCPUD Sewer System Management Plan; Element 4
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As such, BCPUD changed course along with the community and studied the surface water
drainage on the Big Mesa in an effort to identify improvement projects to lower the water table
and improve septic system functions. In 1993, the services of Todd Engineering were enlisted
by BCPUD and the firm prepared a set of Drainage Improvement Maps. The end goal of the
project was to provide a comprehensive path to improving drainage on the Big Mesa that was
attainable by way of multiple smaller projects by individual residents (as well as groups) over
time. Today BCPUD offers project consultation to District residents who are interested in
implementing surface drainage projects on the Big Mesa. The District also provides culverts to
for project implementation “at cost” for those that are eligible.
Solid Waste
BCPUD provides residential and commercial properties within the District with solid waste
disposal services by way of a contract with Recology Sonoma Marin (Recology). The franchise
agreement was assigned to Recology in September of 2017. The District previously granted the
franchise for solid waste disposal in 2003 to USA Waste of California, Incorporated. In 2007 the
franchise agreement was assigned to Redwood Empire Disposal, who served the District until
2017 at which time the entirety of their assets were acquired by Recology. Recology provides
residential and commercial properties in the District with weekly garbage, recycling, and organic
waste disposal service.
9.6 ORGANIZATION STRUCTURE
Board of Directors
The Bolinas Community Public Utilities District has a five-member board that is elected to
staggered four-year terms. All directors are required to be registered voters within the District’s
jurisdictional boundary. The Board of Directors meets regularly on the 3rd Wednesday of each
month at 7:30 p.m. at the BCPUD District Office located at 270 Elm Road in Bolinas.
Table 9-2: Bolinas Community Public Utility District Board of Directors
Member Position Term Expiration
Jack Siedman President December 2022
Don Smith Vice-President December 2024
Lyndon Comstock Director December 2022
Grace Godino Director December 2022
Kirsten Walker Director December 2024
Administration
The Board of Directors of BCPUD appoints a General Manager who serves on an at-will basis to
oversee all District activities and is exclusively responsible for the implementation of policies
established by the Board of Directors. The General Manager oversees five employees that
include one Chief Operator, three Shift Operators, and an Administrative Assistant.
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9.7 ACCOUNTABILITY AND TRANSPARENCY
The Bolinas Community Public Utility District makes a concerted effort to maintain high
accountability and transparency with all its activities. The BCPUD website (www.bcpud.org)
provides extensive documentation and information on Board meetings, financial reports,
services, history, water conservation, resolutions, and more. At this time the District is meeting
all of the requirements by the State of California for a public agency website.
Meeting and Agendas
The BCPUD Board of Directors meets regularly on the 3rd Wednesday of each month at 7:30
p.m. at the BCPUD District Office located at 270 Elm Road in Bolinas. Special meetings are
held as needed to go over specific topics and, in relation to the other agencies reviewed in this
study, BCPUD conducts a significantly higher number of special meetings annually. This is
primarily the result of the extreme drought conditions in the area over the past 2 years
necessitating the Board to convene more frequently to take action to set policy for the District’s
management of the drought. Meeting agendas and minutes can be found on the BCPUD website
(www.bcpud.org/administration/board-of-directors/boardminutes).
Annual Budget Review
The District’s budget, adopted no later than the July Board meeting each year, provides overall
control of revenue and expenditures including appropriations on a line item basis and the means
of financing them. A mid-year budget revision may occur in February of the fiscal-year after
BCPUD has six months of actual operating revenues and expenses to project out year-end results
and evaluate whether budget adjustments are necessary. The District’s budget is broken down
into four separate financial categories of water, sewer, septic/drainage, and general in order to
maintain proper controls. The General Manager presents financial reports to the Board every
quarter to assure budgetary compliance.
9.8 FINANCIAL OVERVIEW
BCPUD has maintained positive revenue to expense differences in each of the five fiscal years
covered in the financial audits for FY 2015-16 to 2019-20. Average total annual revenues for the
District over the 5-year period were $1,649,018. The primary revenue source for the District is
water and sewer charges which account for approximately two-thirds of the annual revenue.
Property taxes and assessments provide approximately 25% of annual revenue and the Bolinas-
Stinson Resource Recovery Project, a green waste disposal program established by the BCPUD,
Bolinas Fire Protection District, Stinson Beach County Water District, and the Stinson Beach
Fire Protection District that includes composting sales, provides approximately 7%. The primary
annual expense for the BCPUD with approximately half of the District’s annual expenses is staff
salaries and benefits. The projected revenue for the District for fiscal year 2021-22 is
$1,894,277. A breakdown of the past 5 years of revenues and expenses can be seen below in
Table 9-3.
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Table 9-3: Bolinas Community Public Utility District Financial Audit Summary
Revenue FY 2015-16 FY 2016-17 FY 2017-18 FY 2018-19 FY 2019-20 Averages
Water/Sewer
$970,364 $1,033,948 $1,101,285 $1,170,885 $1,185,955 $1,092,487
Charges
Taxes &
$332,637 $356,905 $385,900 $412,850 $442,228 $386,104
Assessments
Resource
$118,180 $111,763 $103,287 $112,550 $122,723 $113,700
Recovery
Grant
$0 $5,000 $5,000 $145,707 $2,000 $31,541
Income
Other $28,290 $22,965 $23,546 $25,740 $25,386 $25,185
Total
$1,443,054 $1,536,998 $1,619,018 $1,867,732 $1,778,292 $1,649,018
Revenues
Expenses FY 2015-16 FY 2016-17 FY 2017-18 FY 2018-19 FY 2019-20 Averages
Salaries $499,287 $525,617 $548,337 $558,604 $570,159 $540,400
Benefits $164,263 $237,587 $261,393 $260,907 $314,689 $247,767
Insurance $20,566 $24,586 $24,799 $18,790 $25,880 $22,924
Plant
$209,012 $145,478 $165,580 $155,879 $133,831 $161,956
Expenses
Power & Fuel $19,707 $27,342 $24,991 $29,621 $29,804 $26,293
Office
$31,963 $29,906 $30,094 $33,860 $41,446 $33,453
Expense
Trucks $3,884 $4,693 $16,555 $7,688 $5,549 $7,673
Professional
$57,666 $52,235 $66,080 $72,248 $56,198 $60,885
Fees
Depreciation $233,838 $248,566 $272,318 $272,961 $273,583 $260,253
Fire Fuel
$0 $0 $2,036 $173,203 $0 $35,047
Reduction
Other $121,063 $70,063 $71,346 $82,079 $99,032 $88,716
Total
$1,376,249 $1,381,063 $1,498,529 $1,680,840 $1,565,171 $1,500,370
Expenses
Debt
As of June 30, 2020, BCPUD was carrying $558,752 in long-term debt. In 2008, the District
received funds from the Municipal Finance Corporation for two issuances (one for water and one
for wastewater) of Clean Renewable Energy Bonds. These funds were used for the purchase and
installation of solar arrays at the District’s water treatment plant and at the wastewater treatment
facility. The bond’s final payments are scheduled for August of 2023.
The second source of long-term debt for the District is in the form of a 2013 loan from the
California Department of Public Health in the amount of $485,000. The loan funds are part of
the Safe Drinking Water State Revolving Fund and were used to pay for one of the District’s
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water construction projects that was completed in July of 2014. The loan’s final payment is
scheduled for 2034.
BCPUD also provides a pension plan for employees and is part of the California Public
Employees Retirement System (CalPERS). CalPERS provides retirement, disability, and death
benefits based on the employee’s years of service, age, and final compensation. As of June 30,
2020, the District’s Net Pension Liability was reported at $674,926 and is 73% funded.
Financial Audit
The Bolinas Community Public Utility District annually has its financial statements audited and
contracts with an outside accounting firm, R.J. Ricciardi, Inc. The most recent audited financial
statement was prepared for the fiscal year ending June 30, 2020.
9.9 SUSTAINABILITY
Local agencies such as the Bolinas Community Public Utility District play a critical role in
protecting natural resources and the environment. Extended periods of drought and increasingly
unpredictable climate patterns have significantly increased the importance for local agencies to
step up their own conservation and long-term planning measures as well as making a concerted
effort towards higher levels of public outreach.
The Bolinas-Stinson Resource Recovery Project offers the residents of Bolinas and neighboring
Stinson Beach a means of disposal for green waste materials. The primary focus of the Resource
Recovery Project is to aid in the continued efforts towards local fire mitigation and fire safety by
removing excessive vegetation throughout the communities. Residents have been shown to be
more inclined to reduce vegetation and increase their property’s defensible space when the
process involves composting as opposed to landfilling. The Resource Recovery Project provides
residents with a year-round facility whereas earlier chipper programs were only available a few
weekends per year. Mulch and topsoil produced by grinding, aeration, and decomposition are
added useful by-products of the process.
The District is also instrumental in water conservation within the community of Bolinas.
BCPUD offers multiple resources on its website for helpful ideas on how residents can be active
in efforts to save water on a daily basis. The site also provides a list of 23 water conservation
tips from the Federal Emergency Management Agency (FEMA). The District redesigned the
home page of its website in early 2021 to include a graphic with the current 7-day running
average of total water consumption within the District after the Board of Directors on February
24, 2021 enacted BCPUD Resolution 682, declaring a prolonged drought condition and
implementing mandatory conservation measures. This running average was used to set a
threshold of 76,000 gallons per day (later reduced to 66,000 gallons per day due to worsening
drought conditions during 2021) that would trigger mandatory water rationing. On November
17, 2021, the Board of Directors suspended BCPUD Resolution 682 due to improved water
supply conditions following the October and November 2021 rain events.
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10.0 MUIR BEACH COMMUNITY SERVICES DISTRICT
10.1 OVERVIEW
The Muir Beach Community Services District (MBCSD) was established in 1958 as an
independent special district under Sections 61600 and 61601 of the California State Government
Code. The District is located in the southwest portion of Marin County and its jurisdictional
boundary encompasses just over 1.3 square miles. The district serves a population of
approximately 44825 persons. The last Municipal Service Review that included the MBCSD
(though only reviewing one of its services) was conducted in January of 2016 as part of the
Countywide Water Municipal Service Review.
MBCSD’s currently activated service powers include potable water, roads, fire protection, and
park and recreation. These services are primarily provided to the census-designated place (CDP)
of Muir Beach. The District’s potable water supplies are collected locally from two groundwater
sites within the Redwood Creek watershed and are secured through a permit with the State Water
Resources Control Board.
Table 10-1: Muir Beach Community Services District Overview
Muir Beach Community Services District
Primary Contact: Mary Halley Phone: (415)-297-1831
Main Office: 19 Seacape Drive, Muir Beach 94965
Formation Date: July 29, 1958
Services Provided: Potable Water, Roads, Fire Protection, Parks & Recreation
Service Area: 848 acres Population Served: 448
10.2 FORMATION AND DEVELOPMENT
The Muir Beach Community Services District formation took place in July of 1958 following the
approval of the service area by the Marin County Boundary Change Commission and a majority
vote by the residents within the new district boundary. At its inception, the District’s boundary
encompassed approximately 790 acres. At that time the majority of the area (nearly 85%) was
undeveloped or being used for agriculture but had the expectation that it would be developed as
the Muir Beach and Seacape neighborhoods expanded. Upon its formation, the MBCSD was
only authorized with providing domestic water services. Beginning in 1928, the Muir Beach
Water Company provided potable water to the approximately 40-acre Muir Beach Subdivision
that was composed primarily of vacation cabins. As development in the area continued and
progressed more towards permanent housing and the plans for a second residential subdivision,
Seacape Subdivision, were formed, the quality of the water being provided came under scrutiny
by the residents in the area. In 1957, landowners in the area submitted a formal petition to the
County of Marin Board of Supervisors for the formation of a new community services district to
25 Population served calculated through the means given in California Code of Regulations Section 64412 using
2020 US Census Redistricting Data on housing units.
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take over management of the area’s water service and in 1958 MBCSD was formed and took
over the assets of the Muir Beach Water Company.
The District was authorized to activate the latent service powers of recreation as well as road and
access easement maintenance by a vote of its residents in 1969. This was quickly followed by
the addition of a second water system through the purchase of the Seacape Mutual Water
Company in 1970 by way of a voter-approved tax assessment. The Seacape Subdivision had
been developed throughout the 1960s and the developer of the subdivision established the
neighborhood’s own water supply from a reliable and high-quality well source in the nearby
Frank Valley area due to the supply and quality limitations of the water supply of MBCSD
during the time of construction.
In 1971 the District was again authorized to activate a latent service power with the addition of
fire protection in order to replace the Bello Beach Volunteer Fire Department. MBCSD
purchased all of the fire protection equipment from the Bello Beach Volunteer Fire Department
and created the Muir Beach Volunteer Fire Department
In 1972, the United States Congress established the Golden Gate National Recreation Area
(GGNRA). These now public lands covered approximately two-thirds of MBCSD’s
jurisdictional boundary. The creation of the GGNRA limited land uses both within and
immediately surrounding the District’s boundary while simultaneously creating a new service
dynamic for the District in the form of day-time visitors for the areas of Muir Woods, Muir
Beach, and the Muir Beach Overlook. In 1978 the County of Marin adopted the Muir Beach
Community Plan which outlined guidelines and a vision for land use for the community in the
future. The plan, eventually usurped by the Marin County Local Coastal Program upon its
adoption in 2013, explicitly states the intention to “maintain the small-scale character of Muir
Beach as a primarily residential community with recreation, small scale visitor, and limited
agricultural use”.
A formal water service plan was created for the District in 1987 by Harris Consultants. The
study concluded that MBCSD’s existing water supply of the three ground wells was sufficient to
provide the necessary resources for the projected build-out of the District’s service area of 175
connections with a per average daily demand of 100 gallons. While the plan confirmed that the
supply was adequate, it noted that the District’s water storage capabilities were lacking and
needed to be addressed, in particular the immediate replacement of a 50,000-gallon tank in the
lower pressure zone. In 1988, this capital improvement was completed with the construction of a
100,000-gallon tank. The District invested in a study performed by Henry Hyde and Associates
and the Associated Business and Community Consultants in 1996 that provided them with a 20
Year Plan for Water System Capital Improvements (1997-2016). The study laid out a schedule
for needed capital improvements for the water system including funding mechanisms for each.
The total projected cost of the plan was $530,000. In November of 2008, the District presented a
ballot measure (Measure C) to the voters for a parcel tax that would levy an annual amount of
$3,250 per commercially zoned property and $300 for all other parcels in order to provide funds
for water capital improvements. The measure was adopted and renewed 4 years later (Measure
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E). The District would make the major capital improvement of the construction of a new
200,000-gallon tank in 2010.
In 1994, the Muir Beach Volunteer Fireman’s Association was established primarily to take over
the fundraising and grant-writing responsibilities to fund the volunteer fire department from
MBCSD. In 2008 it was agreed that funding supplementation for the fire department was needed
and the voters of the District approved Measure B which levied a special tax of $200 per year on
each parcel within the District. The tax measure was reapproved in 2012, and in 2016 it was
approved again with an agreed-upon 10-year lifespan instead of the previous 4-year span. In
2019, the District became a member agency of the Marin Wildfire Prevention Authority which
became operational when Measure C was enacted by the voters in March 2020.
Figure 10-1: Muir Beach Community Services District Jurisdictional Boundary and Sphere of Influence
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10.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE
Muir Beach Community Services District’s jurisdictional boundary is comprised of just over 1.3
square miles and covers 834 acres of unincorporated Marin County. Approximately two-thirds
of that acreage (525 acres) is part of the Golden Gate National Recreation Area. In total there
are 187 legal parcels encompassed within MBCSD’s boundary. Since its creation, the boundary
for the District has only been amended two times, with both instances occurring in 1971. Both
of the boundary changes were annexations (Marin LAFCo files 71-33 and 71-53) along the
coastline that were anticipated as new development properties but were soon after acquired by
the United States Government as part of the GGNRA.
The District’s sphere of influence was established by Marin LAFCo in December of 1984. At
that time, the sphere of influence was coterminous with the jurisdictional boundary. Marin
LAFCo amended the sphere of influence in 2007 to include one additional .6 acre lot where
MBCSD’s well-site is located in Frank Valley. The parcel is the only land within MBCSD’s
sphere of influence that is outside of its jurisdictional boundary.
10.4 GROWTH AND POPULATION
The Muir Beach Community Services District encompasses the developed community of Muir
Beach and the surrounding areas that include the Slide Ranch and the Green Gulch Farm and Zen
Center. According to 2020 U.S. Census Redistricting Data, the population of the census-
designated place (CDP) is 304, which is approximately a 1.9% decrease from the 2010
population number 31026. The most recent census data shows the CDP to have 160 total housing
units, with 135 of those units occupied. With the Muir Beach area having numerous weekend
and seasonal residents, it is difficult to ascertain the actual full-time population. California Code
of Regulations Section 64412 identifies three methods to calculate the number of persons served
by a public water system: census data, service connections multiplied by 3.3, or living units
multiplied by 2.8. With recent census data giving a housing unit total of 160, it can be calculated
that the number of individuals served by MBCSD is approximately 448.
According to the Muir Beach Community Plan, Muir Beach has limited opportunity for future
expansion as it is surrounded by both federal and state parklands, as well as agricultural
preserves and the Pacific Ocean. As such, all future residential and commercial development
will occur within the existing developed area. The current developed area has approximately
90% of the privately-owned parcels that are zoned for residential development having already
been developed. As such, there remain few infill opportunities for growth. A map with the
current zoning for the area is shown below in Figure 10-2.
26 2020 US Census Redistricting Data
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Figure 10-2: Muir Beach Land Use Policy Map
10.5 MUNICIPAL SERVICES
Potable Water
The Muir Beach Community Services District provides retail potable water services through its
own supply, treatment, storage, and distribution facilities. The distribution system spans
approximately 2.5 miles and began with the lines that were laid by the Muir Beach Mutual Water
Company back in the 1920s. The District’s water supplies are locally sourced and obtained from
two groundwater sites lying within the approximately 8.8 square miles of the Redwood Creek
Watershed. These sources in combination with the District’s equipment’s pumping capacities
provide MBCSD with an estimated maximum available annual yield of 209 acre-feet This figure
is significantly reduced, however, to approximately 50 acre-feet based on the current permit
allowances afforded to the agency.
The primary potable water source for MBCSD is a groundwater well on District-owned property
in the Frank Valley area. This source, typically referred to as the 2002 Well, draws on an
underflow from the Redwood Creek. The term “underflow” in California Water Code refers to
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water moving through the sands and gravel under or next to a stream channel and is a sub-
category of subterranean streams. Underflow is considered to be part of the stream and subject
to the same riparian and appropriative rights27 that guide the use of the stream itself. The 2002
Well’s right to access the underflow is secured through a post-191428 appropriative permit29
from the California State Water Resources Control Board. The permit allows MBCSD a
maximum daily collection of .14 acre-feet and an annual maximum of 50.6 acre-feet. The pump
that is attached to this well has a capacity of 60 gallons per minute which amounts to a possible
maximum daily amount pumped of 86,400 gallons, which is nearly double the permitted daily
ceiling of 45,000 gallons. This well has a depth of approximately 60 feet.
The District’s second well, known simply as 2008 Well, is intermittently utilized as a backup
source by MBCSD when necessary. The well sits in the same Frank Valley vicinity as the 2002
Well (approximately 100 feet from it), draws from Redwood Creek underflow, and is also 60
feet deep. The 2008 Well is typically drawn from when the 2002 Well is unavailable due to
routine maintenance or repair work. The pump associated with the 2008 Well is rated at 40
gallons per minute which would allow for a maximum daily production of 57,600 gallons.
The District has no other sources of potable water outside of its currently permitted drawing of
the underflow from Redwood Creek. If it were to become necessary, the only current viable
option for MBCSD for a supplemental source would be trucking in water from outside vendors.
Despite recent climate-related precipitation uncertainty, the District is in a uniquely
advantageous position with its underflow source lying within a fairly secure watershed that is
federally protected from significant future development adding strain to the supply.
All water drawn by MBCSD from both of its wells receives disinfectant treatment by way of
metered injection of liquid chlorine (sodium hypochlorite) into its water main at a small service
building. The district also injects soluble silica (starting in May of 2006) prior to the injection of
chlorine in order to minimize the impact on copper plumbing in residents’ homes. The District’s
treatment capacity is 100 gallons per minute which would allow for a maximum daily total of
144,000 gallons or .44 acre-feet, significantly above the District’s daily accessible production of
.14 acre-feet.
The distribution system for MBCSD is comprised of approximately 2.5 miles of water mains that
supply the District’s two pressure zones, upper and lower, that connect a 500-foot range in
elevation between service connections. The distribution system is dependent upon gravity
pressure for recharge from two storage tanks that have a maximum combined capacity of
300,000 gallons. On a nightly basis, water is pumped from the District’s well site, receives
treatment, and replenishes the amount used. Due to the reliance on gravity pressure, four
27 An appropriative water right is water taken for use on non-riparian land or water that would not be there under
natural conditions on riparian land. Water right permits and licenses issued by the State Water Board are
appropriative rights.
28 Any appropriative water right28 that was acquired after 1914 is called a post-1914 appropriative water right and
requires the holder of that right to apply for a water right permit.
29 MBCSD’s permit with the State Water Resources Control Board was originally issued in 1988 and marked a
transition away from the way the Board viewed the underlying water source from groundwater to underflow.
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connections to residences near the top of the water system require private pressure booster
systems. The District currently serves 163 active potable water service connections which
include 158 residential and five non-residential users. Three of the District’s connections lie
outside of the District’s jurisdictional boundary and include the Mt. Tamalpais State Park Horse
Camp, GGNRA’s Park Ranger residences, and GGNRA’s horse stables. As the service
connections were established prior to the 2001 enactment of State Government Code Section
56133, the connections do not require an outside service agreement.
Muir Beach Community Services District collects fees for its water service on a bi-monthly basis
based on the capacity and usage of each consumer. The charges are set by a Board of Director's
ordinance and are intended to provide full cost-recovery for the daily operation of the water
system as well as providing funding for projected capital improvement schedules. The current
charges for meter reading are $8.13. A meter charge for a 5/8” – 1” meter is $71.60 and a 1.5”
meter is $358.04. The charge for water usage breaks down to $2.02 per 100 gallons used. The
District offers its users the opportunity for discounts for water conservation with users who
consume less than 4,500 gallons in a single billing cycle receiving a 50% discount. MBCSD also
collects a water connection fee for new customers. The connection fee for a single-family home
is $6,500.
Fire Protection
The Muir Beach Community Services District provides fire protection, emergency medical aid,
and disaster preparedness by way of a vote to activate the District’s latent power in 1971 to aid
the private organization of the Muir Beach Volunteer Fire Department (MBVFD). The Muir
Beach Volunteer Fireman’s Association (MBVFA), a private non-profit 501(c)3 entity, is
responsible for generating and managing funding for MBVFD and has a separate eight-member
Board of Directors from the MBCSD Board. The funds that are generated by MBVFA from its
fundraising efforts and grants are transferred to MBCSD by way of a 1994 agreement to provide
a proportional share of the costs of the District’s Manager, worker’s compensation insurance,
general liability and vehicle liability insurance. The Fire Chief began receiving an annual
stipend (paid monthly) in 202 by way of the 2018 Transient Occupancy Tax (Measure W) funds.
MBCSD receives an 8% allocation of Measure W funding. MBCSD holds title to all assets of
MBVFD. MBCSD does not allocate ad-valorem property tax revenue for emergency services in
the Muir Beach Community. Supplemental funding for MBVFD operations is provided by an
MBCSD parcel tax of $200 per parcel annually that was originally adopted in 2008 (Measure B)
and most recently reapproved for $213 per parcel in 2016 (Measure L) with a ten-year lifespan.
In 2019, MBCSD became a member agency of the Marin Wildfire Prevention Authority
(MWPA) which became operational when Measure C was enacted by the voters in March of
2020. MWPA’s 17 member agencies throughout Marin County receive funding for fuel removal
projects, defensible space evaluations, and other helpful resources by way of a voter-approved
parcel tax. MBCSD is allocated .15% of MWPA’s total annual funding.
The Muir Beach Volunteer Fire Department is a fully volunteer operation with ten firefighters
that supplement services provided to the community by Marin County Fire (CSA #31) from the
station at Throckmorton Ridge. Due to the geographical distance and travel time from this
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station to the Muir Beach community and the added seasonal necessity for emergency services
related to visitors to the coastal region, MBVFD response aid is a critical component for the area.
Marin County Fire Department (MCFD) is the agency officially responsible for structure and
wildland fire in the area. All emergency (911) calls in the Muir Beach Area are routed by the
Marin County Sheriff’s dispatch center. Both MCFD and MBVFD are dispatched for calls in the
area and incidents are managed under the unifying command.
The general response area for MBVFD includes Muir Beach, Green Gulch Farm, Slide Ranch,
Muir Woods National Monument, and Mount Tamalpais State Park. MBVFD receives an
average of 78 calls for service annually (2015-2020) with the majority of the calls being for
Emergency Medical Service for Basic Life Support. During the calendar year of 2020, the
MBVFD responded to 67 calls for service, of which 23 were for Emergency Medical Service for
Basic Life Support. Each of the firefighters maintains, at a minimum, an Emergency Medical
Responder (EMR) certification. There are also two members who are Emergency Medical
Technician (EMT) certified and one licensed medical physician.
Effective January 25, 2016, Marin County Fire Department (the chief agency responsible for fire
services within Muir Beach Community Services jurisdictional boundary) was given a Class 3/3x
Public Protection Classification (PPC) rating by the Insurance Services Office (ISO), an
organization that independently evaluates municipal fire-protection efforts throughout the United
States. Ratings range on a scale of 1 to 10. Class 1 generally represents superior property fire
protection, and class 10 indicates that the area’s fire suppression program does not meet ISO’s
minimum criteria.30 While many communities receive a single number classification, many
smaller and more rural communities receive a split classification to reflect the risk of loss more
precisely. In the case of a split classification, the first number refers to the classification of
properties within 5 road miles of a fire station and within 1,000 feet of a creditable water supply.
The second number, with either the X or Y designation, applies to properties within 5 road miles
of a fire station but beyond 1,000 feet of a creditable water supply (i.e. fire hydrant). ISO
generally assigns Class 10 to properties beyond 5 road miles. The majority of insurance agencies
throughout the country use the PPC classification for underwriting and calculating premiums on
residential, commercial, and industrial properties. MCFD’s rating of 3/3x puts the department in
the top 14% of fire protection agencies in the country. Figures 10-3 and 10-4 below show the
breakdown of PPC rating data throughout both the United States and California.
MBVFD currently uses a U.S. National Park Services (USNPS) structure at 1760 Shoreline
Highway in Muir Beach as its firehouse and operations hub. Plans are in place and fundraising is
ongoing for the construction of a new firehouse. MBVFD has two vehicles for responding to
calls for service. Squad 660 is a 2011 Ford 550 brush truck and Engine 676 is a 1989
International Type 3 engine.
30 How the PPC Program Works
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Figure 10-3: PPC Rating Distribution by Class Throughout California
Figure 10-4: PPC Rating Distribution by Class Throughout the United States
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Recreation
MBCSD’s Community Center is the central hub for the District’s recreational programming
offerings. The District offers the opportunity for local volunteers and independent contractors to
utilize the space for programming activities such as tai chi, yoga, and other programs. The
Community Center offers users a meeting hall, children’s playground, kitchen, and a small
library space. The facility is offered for private party rentals and is also utilized for District
hosted community events. Other recreational facilities offered by the District include a
volleyball court and barbecue grounds located on the District’s property on Frank Valley Road.
The District’s recreational endeavors also include an inventory of the public trails that run
throughout the Muir Beach community. An ad-hoc Trails Committee was formed in order to
identify maintenance and safety enhancements for local trails as well as setting the goal of
creating a map of public trails and easements throughout the area.
Road Maintenance
The District’s activated service power of roads and access easement maintenance grants MBCSD
authority over private roadways, pedestrian easements, utility easements, and drainage easements
within the District’s jurisdictional boundary. The public roadways within the District are
maintained by the County of Marin and the California Department of Transportation. The
private roadways within the District’s purview include the following:
• Charlotte’s Way
• Cove Lane
• Lagoon Drive
• Pacific Way
• Sunset Way
• Starbuck Extension
• White Way
In 1982, the District adopted the policy stating that it would complete minor maintenance work
to keep roads safe for emergency vehicle use and that residents could continue with additional
repairs at their own cost. The policy stated “General tax revenues shall only be used for the
minor work necessary to keep the roads safe for the passage of emergency vehicles. Residents
who wish improvements beyond such minor repairs may join other residents adjoining their road
to cooperatively finance and undertake the improvements, with the advice and supervision of
MBCSD if desired, but no funding.” The District has the current stated policy intention of
keeping the roads and pedestrian easements open and in good repair for the mutual use and
benefit of the community and public at large.
10.6 ORGANIZATION STRUCTURE
Board of Directors
The Muir Beach Community Services District has a five-member board that is elected to
staggered four-year terms. All directors are required to live within the District’s jurisdictional
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boundary. The Board of Directors meets regularly on the 4th Wednesday of each month at 7:00
p.m. at the Muir Beach Community Center located at 19 Seacape Drive in Muir Beach.
Table 10-2: Muir Beach Community Services District Board of Directors
Member Position Term Expiration
Steve Shaffer President December 2022
David Taylor Vice-President December 2024
Leighton Hills Director December 2022
Lisa Eigsti Director December 2022
Paul Jeschke Director December 2024
Administration
The Board of Directors of MBCSD appoints a General Manager who serves on an at-will basis to
oversee all District activities and is exclusively responsible for the implementation of policies
established by the Board of Directors. The General Manager oversees five part-time employees
that include a Water System Operator, two Water Team Assistants, a Community Center
Maintenance Manager, and one Janitorial Custodian.
10.7 ACCOUNTABILITY AND TRANSPARENCY
The Muir Beach Community Services District makes a concerted effort to maintain high
accountability and transparency with all its activities. The MBCSD website
(www.muirbeachcsd.com) provides extensive documentation and information on Board
meetings, financial reports, services, history, resolutions, and more. At this time the District is
meeting all of the requirements by the State of California for a public agency website.
Meeting and Agendas
The MBCSD Board of Directors meets regularly on the 4th Wednesday of each month at
7:00 p.m. at the Muir Beach Community Center located at 19 Seacape Drive in Muir
Beach. Special meetings are held as needed to go over specific topics such as the annual
budget. Meeting agendas and minutes can be found on the MBCSD website
(www.muirbeachcsd.com/meetings).
Annual Budget Review
The District’s budget, adopted no later than the July Board meeting each year, provides overall
control of revenue and expenditures including appropriations on a line item basis and the means
of financing them. The District’s budget is broken down into five separate financial categories
of fire, water, roads, recreation, and general in order to maintain proper controls. The District
Manager presents financial reports to the Board every month to assure budgetary compliance.
10.8 FINANCIAL OVERVIEW
MBCSD has maintained positive revenue to expense differences in four of the five fiscal years
covered in the financial actuals for FY 2016-17 to 2020-21. Average total annual revenues for
the District over the 5-year period were $591,522. Revenue (as well as expense) sources for
MBCSD are split into 5 main categories: general, fire, water, roads, and recreation. The general
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revenues category accounts for approximately 33% of annual revenues and is mainly comprised
of ad-valorem property tax as well as Educational Revenue Augmentation Fund (ERAF)
funding. The fire revenues category accounts for approximately 12% of annual revenues and
consists of the District’s parcel tax for fire, Measure C and Measure W monies, as well as grants
and donations. The water revenues category accounts for approximately 32% of annual revenues
and is made up of charges for service and meter charges. The roads revenues category accounts
for a slightly skewed percentage of total revenues within this 5-year study window as the
category typically only accrues a small amount of grant funding revenues, however, in this study
window the loan from Marin County in the amount of $300,000 as well as a grant of $60,000
was included in the totals. Lastly, the recreation revenues category accounts for approximately
10% of annual revenues and consists of Measure A funds, program charges, rental fees, and
donations/grants. The projected revenue for the District for fiscal year 2021-22 is $554,554. A
breakdown of the past 5 years of revenues and expenses can be seen below in Table 10-3.
Table 10-3: Muir Beach Community Services District Financial Audit Summary
Revenue FY 2016-17 FY 2017-18 FY 2018-19 FY 2019-20 FY 2020-21 Averages
General $181,856 $185,090 $195,089 $213,284 $220,145 $199,092
Fire $46,971 $71,186 $44,266 $92,830 $112,274 $73,505
Recreation $60,681 $56,954 $53,529 $45,093 $65,835 $56,418
Roads $0 $16,551 $8,462 $360,000 $0 $77,002
Water $173,972 $173,014 $162,048 $210,454 $208,028 $185,503
Total
$463,480 $502,795 $463,394 $921,661 $606,282 $591,522
Revenues
Expenses FY 2016-17 FY 2017-18 FY 2018-19 FY 2019-20 FY 2020-21 Averages
General $170,961 $184,166 $137,460 $136,232 $150,187 $155,801
Fire $27,292 $33,159 $26,834 $57,041 $20,989 $33,063
Recreation $44,624 $59,222 $80,368 $74,350 $61,736 $64,060
Roads $19,849 $17,186 $4,854 $16,616 $8,301 $13,361
Water $217,747 $111,655 $101,122 $138,526 $127,283 $139,266
Total
$480,473 $405,388 $350,638 $422,765 $368,496 $405,522
Expenses
Debt
As of June 30, 2020, MBCSD was carrying two main sources of long-term debt. In 2019, the
District obtained a loan from the County of Marin in the principal amount of $300,000. The
proceeds from the loan were allocated for road infrastructure improvements within the
community. The loan bears interest at 3.5% with three payments due annually on December 5th
with the totality of repayment scheduled for 2022.
The second source of long-term debt for the District is in the form of a loan from David Taylor
as a representative of the Green Lane homeowners group in the amount of $16,750. The loan,
secured in April of 2020, is non-interest bearing and must be repaid in full by April 30, 2030.
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The loan funding was allocated to build the Green Lane Water Main Line and the accompanying
fire hydrant installations.
MBCSD does not have any past or present employee pension obligations.
Financial Audit
The Muir Beach Community Services District annually has its financial statements audited and
contracts with an outside accounting firm, R.J. Ricciardi, Inc. The most recent audited financial
statement was prepared for the fiscal year ending June 30, 2020.
10.9 SUSTAINABILITY
Local agencies such as the Muir Beach Community Service District play a critical role in
protecting natural resources and the environment. Extended periods of drought and increasingly
unpredictable climate patterns have significantly increased the importance for local agencies to
step up their own conservation and long-term planning measures as well as making a concerted
effort towards higher levels of public outreach.
With a location that is deeply impacted by the wildland urban interface, being proactive in
managing the fire fuel load surrounding the community of Muir Beach is a necessity. The
District, by way of the Muir Beach Volunteer Fire Department, has a significant fuel reduction
and defensible space program that receives funding aid for operations from both the Marin
Wildfire Prevention Authority (Measure C) as well as the local parcel tax. These funding
allocations allow the District to target high priority prevention efforts such as hazard tree
removal, vegetation removal, a Highway 1 fuel break, and fuel reduction measures along Pacific
Way.31
The District is also instrumental in water conservation within the Muir Beach community. The
District offers its ratepayers the opportunity for up to a 50% discount based on bi-monthly usage
stats showing that users are below a predetermined water conservation threshold. This has
helped to guide the District to a point in September of 2021 that saw 73% of all of its metered
connections using less than 150 gallons of water per day.
In times of more significant water shortages such as the recent severe drought conditions
throughout California, the District has taken measures to restrict non-essential uses of water. A
resolution originally passed in 2014 (Resolution 2014-8-28) was recently reaffirmed by the
Board of Directors to prohibit what the District deemed non-essential uses. These uses included
(but are not limited to) no landscape irrigation between the hours of 11 a.m. and 7 p.m.,
landscape irrigation limited to no more than twice a week, requiring that garden hoses be
outfitted with a shut-off nozzle at the discharge end, and banning the washing of
sidewalks/driveways/parking areas and the filling of swimming pools. The District also
monitors the water usage of the 20 highest volume consumers in the District after notifying them
of their usage levels to ensure that efforts are made to curtail usage levels.
31 Marin Community Wildfire Protection Plan
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11.0 TOMALES VILLAGE COMMUNITY SERVICES DISTRICT
11.1 OVERVIEW
The Tomales Village Community Services District (TVCSD) was established in 1998 as an
independent special district under Section 61600 and 61601 of the California State Government
Code. The District is the northernmost agency within this study, approximately five miles south
of the Sonoma County Border, with Dillon Beach approximately three miles to the west and is
bisected by Highway 1. The District’s jurisdictional boundary encompasses approximately 169
acres. TVCSD serves a population of approximately 18732 persons.
TVCSD’s currently activated service powers include wastewater collection and treatment as well
as parks and recreation. These services are primarily provided to the census-designated place
(CDP) of Tomales. The last municipal service review that included the TVCSD was conducted
in 2009.
Table 11-1: Tomales Village Community Services District Overview
Tomales Village Community Services District
Primary Contact: Melinda Bell Phone: (707)-878-2767
Mailing Address: P.O. Box 303, Tomales 94971
Formation Date: November 12, 1998
Services Provided: Wastewater Collection & Treatment, Parks & Recreation
Service Area: 169 acres Population Served: 187
11.2 FORMATION AND DEVELOPMENT
While the Tomales Village Community Services District is one of the more relatively recently
formed independent special districts in Marin County, having been established in 1998, the chain
of events that would lead to the creation of the District dates back decades earlier. In the late
1960s, the County of Marin imposed a moratorium on new development within the Tomales
planning area due to the state of disrepair in which many of the local septic systems were in,
combined with the physical proximity of those septic systems to the drinking water wells on the
properties. It was mandated that a water system or sewer system be constructed before any new
property development could occur. Residents voted in favor of a sewer system and by way of
procuring both grants and loans, it was completed in 1975. In 1976, the North Marin Water
District (NMWD) assumed operations and management of the sewer system.
In 1996, secondary treated wastewater spilled out from a broken pipe for several days before
being noticed and corrected. NMWD was fined by the Regional Water Quality Control Board.
In an effort to compensate for the fine, NMWD increased the rates of Tomales residents, which
led to the residents forming a committee to negotiate with NMWD to try to find a more equitable
way to handle the situation. These negotiations led to NMWD spreading the cost of the fine over
its entire customer base as opposed to just on the ratepayers in Tomales. The committee also
procured the services of a third-party operations and maintenance firm to take over day-to-day
32 2020 US Census Redistricting Data
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operations. Ultimately, a movement to form a new independent special district to detach the
sewer system from NMWD led to a vote of community members which passed with over 80%
approval, forming the Tomales Village Community Services District. In addition to the sewer
system, the District assumed the operation and ownership of the Tomales Community Park.
Figure 11-1: Tomales Village Community Services District Jurisdictional Boundary and Sphere of
Influence
11.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE
Tomales Village Community Services District’s jurisdictional boundary encompasses
approximately .26 square miles and covers 169 acres of unincorporated Marin County. In total
there are 139 legal parcels encompassed within TVCSD’s boundary. The District’s boundary
has only one recorded change, with the addition of four parcels in August of 2015.
The District’s sphere of influence was established by Marin LAFCo in November of 1998 as a
zero sphere. The sphere was updated in 2010 to be coterminous with the District’s existing
jurisdictional boundary while adding 6 parcels to the sphere of influence that were not within the
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District’s boundary at that time. With an application for annexation into the District expected to
be heard by the Marin LAFCo Commission in the near future, if approved, an amendment to the
sphere of influence would be in order.
11.4 GROWTH AND POPULATION
The Tomales Village Community Services District encompasses the census-designated place
(CDP) of Tomales. According to 2020 U.S. Census Redistricting Data, the population of the
CDP is 187, which is approximately an 8% decrease from the 2010 population number 20433.
The most recent census data shows the CDP to have 108 total housing units, with 86 of those
units occupied. The remaining development potential in the planning area, assuming that the
maximum residential densities under the various zoning designations would occur, puts the
buildout for the area at 193 units. Since 1990, only 17 units have been added to the planning
area, making the annual residential unit additions approximately .5 units per year. While
TVCSD has the wastewater capacity to support growth within the planning area’s potential
buildout, minimal growth is anticipated in the area. A land-use map for the planning area can be
seen below in Figure 11-2.
Figure 11-2: Tomales Land Use Policy Map
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11.5 MUNICIPAL SERVICES
Wastewater Collection and Treatment
TVCSD provides wastewater collection, treatment, and disposal to 123 connections (residential
and business) to the census-designated place of Tomales including the Tomales campus of the
Shoreline Unified School District, which uses approximately one-third of the total capacity of the
District’s system. Wastewater operations were taken over by TVCSD upon its formation in 1998
from the previous agency, the North Marin Water District. The District’s sewer service area
encompasses approximately .26 square miles with a collection system of pipelines stretching
approximately 2.75 linear miles and consisting of pipes ranging in size from two inches to eight
inches. The system collects, treats, and disposes of an average of approximately 17,000 gallons
per day of wastewater. Within the system, wastewater is collected from the community of
Tomales’ connections and is pumped (or flows by gravity) to a treatment system that consists of
three ponds. Within this system, wastewater is continually treated by settling and aeration as it
moves from one pond to the next, with the cleanest water within the first pond flowing into the
second pond, and the cleanest water in the second pond flowing into the third. The treated water
from the third pond is then pumped to storage ponds where the water is disinfected with chlorine
and given additional time for further settling and breakdown of organic materials. These ponds
allow for storage of the treated water in the wintertime when irrigation is not permitted, and in
the summer months, the fully treated water is dispersed on a 23-acre irrigation field.
The treatment facilities and collection system have undergone substantial rehabilitation since the
formation of TVCSD. In 2002, the District employed the services of Phillips and Associates for
the first phase of the renovations which included repairs to designated sites along the collection
line, rehabilitation of 10 manholes, and the replacement of the lift station. In 2005, the second
phase of the rehab was designed by Erickson Engineering, which included the redesign of the
biological treatment system from a single pond to a three-pond Hypalon lined system. The new
ponds liners are rated for 50-years and ensure there is no leakage into the surrounding ground.
This phase also included the replacement of two high lift pumps, three aerators, and new
metering equipment. Currently, the District is planning for additional significant improvements
in FY 2026-27 with the slip-lining of a substantial amount of its collection system, as well as the
rehabilitation of 10 manholes throughout the service area.
The operations and maintenance of the wastewater system has been handled by a third-party
vendor since the District’s formation. The contract for services was originally awarded to
Philips & Associates. This agency served the District through 2016, at which time it was
purchased by Natural Systems Utilities. Natural Systems Utilities continues to serve the district
with operations and maintenance at this time. The contract treatment plant operator makes
weekly inspections of the District’s treatment plant and the lift station to ensure effective
operation, in compliance with Regional Water Quality Control Board requirements. These
weekly inspections are documented in a weekly log.
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Parks and Recreation
TVCSD owns, maintains, and makes available for public rental the Tomales Community Park,
located at 10 Valley Street in Tomales. The park, originally built in 1979, is .89 acres and
underwent a complete overhaul in order to be brought up to current state and federal safety and
accessibility guidelines. The full expanse of the park was re-graded and terraced, and
containment borders for fall surfaces were added to each play area. Multiple play apparatuses
were added including two sets of swings, a climbing dome, and a climbing structure known as
the “Dutton House” that was designed after a photo of a house that once stood on the property.
Other additions included a large outdoor barbecue pit, picnic benches, and ADA-accessible
bathrooms. All of the upgrades to the park were funded by way of grants and donations.
Beginning in 2013 and continuing today, park improvements and maintenance receive funding
by way of Measure A funds.
Most recently, TVCSD completed the construction of a large gazebo area in the park. The final
inspection of the structure was conducted by the district on June 30, 2020. The gazebo, which
was originally built in 1979, was demolished and removed in 2019 due to its dilapidated
condition. The District is currently in the process of hiring an engineer for the addition of ADA-
compliant ramps from the gazebo to the restrooms and other areas of the park.
11.6 ORGANIZATION STRUCTURE
Board of Directors
The Tomales Village Community Services District receives oversight and policy direction by
way of a five-member board that is elected to staggered four-year terms. All directors are
required to be registered voters within the District’s jurisdictional boundary. The Board of
Directors meets regularly on the 2nd Wednesday of each month at 7:00 p.m. at the Tomales Town
Hall located at 27150 Shoreline Highway in Tomales.
Table 11-2: Tomales Village Community Services District Board of Directors
Member Position Term Expiration
Donna Clavaud President December 2024
Bill Bonini Vice-President December 2022
Dru Fallon Director December 2022
Peter MacLaird Director December 2024
John Ward Director December 2022
Administration
The Board of Directors of TVCSD contracts with a consultant for the District’s General Manager
services. The General Manager conducts the day-to-day management of the District as
specifically outlined within the contract. The General Manager oversees the work of the
contracted operations and maintenance agency.
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11.7 ACCOUNTABILITY AND TRANSPARENCY
The Tomales Village Community Services District makes a concerted effort to maintain high
accountability and transparency with all its activities. The TVCSD website
(www.tomalescsd.ca.gov) provides extensive documentation and information on Board
meetings, financial reports, services, history, contracts, resolutions, and more. At this time,
District staff has been notified that it has fallen behind on posting the required up-to-date
financial documentation as well as document remediation for ADA compliance. Staff is making
an effort to update the necessary parts of the page but due to current turnover in management
staff, this process has been delayed.
Meeting and Agendas
The TVCSD Board of Directors meets regularly on the 2nd Wednesday of each month at 7:00
p.m. at the Tomales Town Hall located at 27150 Shoreline Highway in Tomales. Special
meetings are held as needed to go over specific topics. Meeting agendas and minutes can be
found on the TVCSD website (www.tomalescsd.ca.gov/2022-packets-and-minutes ) and are
always posted at least 72 hours prior to a meeting being held.
Annual Budget Review
The District’s budget, typically adopted no later than the July Board meeting each year, provides
overall control of revenue and expenditures including appropriations on a line item basis and the
means of financing them. The Financial Manager presents financial reports to the Board every
month to assure budgetary compliance.
11.8 FINANCIAL OVERVIEW
TVCSD has maintained a positive operational revenue to expense differential in each of the five
fiscal years FY 2016-17 to 2020-21 without the inclusion of depreciation and debt payments into
the operational equation. While depreciation and debt repayments are ultimately included within
the balance sheets, the sewer operations for the District have shown to be positive and two rate
increases over the study period implemented to address any possible liquidity issues have helped
the District to maintain positive cash balances. The average total annual revenues for the District
over the 5-year period were $239,671. The primary revenue source for the District is sewer
service charges (95%) with a negligible amount of property taxes supplementing. The District
receives Measure A monies which account for 98% of its annual parks funding. With Measure
A up for renewal this year, despite having a sizeable reserve fund from which to draw, it will be
critical for the District’s continued parks operations for the measure to be renewed. The primary
annual expenses for TVCSD are administrator’s fees and the contract for maintenance and
operations services. The projected revenue for the District for fiscal year 2021-22 is $237,867.
A breakdown of the past 5 years of revenues and expenses can be seen below in Table 11-3.
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Table 11-3: Tomales Village Community Services District Financial Audit Summary
Revenue FY 2016-17 FY 2017-18 FY 2018-19 FY 2019-20 FY 2020-21 Averages
Parks $35,598 $36,648 $40,486 $64,825 $36,792 $42,869
Sewer $176,652 $179,617 $207,889 $206,317 $213,531 $196,801
Total $212,250 $216,265 $248,375 $271,142 $250,323 $239,671
Expenses FY 2016-17 FY 2017-18 FY 2018-19 FY 2019-20 FY 2020-21 Averages
Parks $18,651 $10,874 $18,248 $12,175 $25,604 $17,110
Sewer $223,561 $211,537 $202,035 $204,428 $221,106 $212,533
Total $242,212 $222,411 $220,283 $216,603 $246,710 $229,643
Debt
As of June 30, 2021, TVCSD was carrying $97,419 in long-term debt. In 2003, the District
entered into a loan agreement with the State Water Resources Control Board in order to make
major capital improvements throughout TVCSD’s infrastructure. In 2008, it was converted into
a note payable. The loan is repaid annually in installments of $24,137 and accrues interest at
2.5%. The loan is set to mature in December of 2022.
The second source of long-term debt for the District is in the form of clean renewable energy
bonds that were issued in the amount of $305,000 at 0% interest. The District used the monies to
install two solar-powered systems at the irrigation field and the treatment plant. Annual
payments of $17,941 are made annually in December with the final payment being due in 2025.
Financial Audit
The Tomales Village Community Services District annually has its financial statements audited
and contracts with an outside accounting firm, Robert W. Johnson. The most recent audited
financial statement was prepared for the fiscal year ending June 30, 2021.
11.9 SUSTAINABILITY
Local agencies such as the Tomales Village Community Services District play a critical role in
protecting natural resources and the environment. Extended periods of drought and increasingly
unpredictable climate patterns have significantly increased the importance for local agencies to
step up their own conservation and long-term planning measures as well as making a concerted
effort towards higher levels of public outreach.
TVCSD operates its wastewater treatment facilities by way of solar energy that is produced by
solar arrays that were constructed by the District through the use of clean energy bonds in 2009.
The two solar arrays combine to generate 31.8 kilowatts of energy. The District was supported
by the community in this endeavor through the agreement of a $5 per month rate increase that is
specifically allocated towards paying down the balance of the bonds. The California Solar
Initiative also offered the District refunds based upon the usage and generation of energy from
the system. In addition to the sustainability efforts shown by the District, over the years there
has been a significant financial improvement as far as annual energy expenses.
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12.0 INVERNESS PUBLIC UTILITY DISTRICT
12.1 OVERVIEW
The Inverness Public Utility District (IPUD) was established in 1948 as an independent special
district under Section 15501 of the California Public Utilities Code. The Marin County
Boundary Change Commission approved the jurisdictional boundary of the District which was
followed by a successful vote of the residents within the boundary. The District is located on the
west shore of the Tomales Bay, with the Point Reyes National Seashore to its west and south.
The District’s jurisdictional boundary encompasses just under 2.2 square miles. IPUD serves a
population of approximately 1,44734 persons. The last municipal service review that included
the IPUD was conducted in January of 2016 (though only one of the District’s services was
reviewed) as part of the Countywide Water Municipal Service Review. The last full municipal
service review was in 2007.
IPUD’s currently activated service powers include potable water and fire protection. These
services are primarily provided to the northern half of the census-designated place (CDP) of
Inverness. The District’s primary potable water supply is collected locally from the three
perennial creeks within the District by way of permits with the State Water Resources Control
Board.
Table 12-1: Inverness Public Utility District Overview
Inverness Public Utility District
Primary Contact: Shelley Redding Phone: (415)-669-1414
Main Office: 50 Inverness Way North, Inverness 94937
Formation Date: 1948
Services Provided: Potable Water and Fire Protection
Service Area: 1,410acres Population Served: 1,447
12.2 FORMATION AND DEVELOPMENT
The Inverness Public Utility District’s formation took place in 1948 with the intention for the
District to be the conduit for the purchase of the private water company, Inverness Water Works,
and proceed with potable water service duties following the acquisition. Between 1949 and
1951, three separate voter measures failed to pass in order to purchase the water company,
leaving the District essentially dormant until activating its fire protection services in 1951. A
vote of the District’s Board of Directors enabled IPUD to assume all service responsibilities of
the Inverness Volunteer Fire Department. In 1954 a bond measure was passed in order to fund
the construction of the firehouse.
In June of 1979, IPUD received voter approval for the issuance of up to $750,000 in bonds for
the purchase and rehabilitation of two privately owned water systems in the area. Upon
acquiring the water systems, the Board of Directors for IPUD voted to activate its latent power to
34 Population served calculated through the means given in California Code of Regulations Section 64412 using
number of current service connections multiplied by 2.8.
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provide domestic water service which was possible due to it predating legislation that requires
agencies to have latent powers approved by LAFCo.
In June of 1980, the voters within the District approved a special tax to fund fire protection and
prevention efforts within the District. The tax was levied at six cents per square foot of each
structure within the boundary and $5 per parcel acre for all unimproved properties. The tax
contains no sunset date and continues funding the District’s fire-related efforts to this day.
In January of 1982, IPUD’s water system experienced significant damages from major flooding
and mudflows due to an overwhelming storm that swept across a majority of the Bay Area.
Road access to the District was cut off for several days which only served to delay repairs. The
incident led the District to begin considering different avenues for supplemental water supplies
in the event of any emergency need. The North Marin Water District (NMWD) seemed a natural
partner in this endeavor as NMWD serves the area to the south of IPUD’s boundary. An intertie
between the two districts was installed and an agreement was signed enabling either district to
import water from the other in the event of a natural or man-made disaster (excluding drought
shortages). The two districts began a preliminary discussion in early 1987 for IPUD to purchase
supplemental water from NMWD on a regular basis. A petition by residents was circulated
forbidding the District to negotiate any agreement with NMWD without voter approval. The
proposed initiative ordinance was accepted and enacted by the Board of Directors on July 20,
1987. A year later, the Board of Directors submitted to the voters a proposal asking for
permission to negotiate a supplemental water purchase agreement with NMWD. A vote was
held in November of 1988 and the measure was defeated by the voters with the faction opposed
to negotiations for an agreement to import water capturing over 70% of the vote.
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Figure 12-1: Inverness Public Utility District Jurisdictional Boundary and Sphere of Influence
12.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE
Inverness Public Utility District’s jurisdictional boundary encompasses approximately 2.2 square
miles and covers 1,410 acres of unincorporated Marin County. Approximately one-tenth of that
acreage (196 acres) is part of the Tomales Bay State Park and is owned by the State of
California. In total there are 745 legal parcels encompassed within IPUD’s boundary. The
District’s boundary was expanded twice in the 1970s to take in the Pine Hill and Seahaven
neighborhoods. The area of the District’s boundary is shared by the North Marin Water District
(NMWD), despite all water services within IPUD’s boundary being provided by IPUD and the
District’s boundary not being included in NMWD’s sphere of influence. In a sphere of influence
update conducted in 2017, the Commission concluded that IPUD’s boundary continues to be
excluded from NMWD’s sphere of influence as “… these areas merit detachment from NMWD
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given the lack of social and economic communities of interests, and furthermore, the
Commission encourages the District (NMWD) to submit one or more proposals to facilitate the
referenced changes.”
The District’s sphere of influence was established by Marin LAFCo in November of 1984. At
that time, the sphere of influence was coterminous with the jurisdictional boundary. Marin
LAFCo reaffirmed the sphere of influence in 2007.
12.4 GROWTH AND POPULATION
The Inverness Public Utility District encompasses the northern half of the census-designated
place (CDP) of Inverness. According to 2020 U.S. Census Redistricting Data, the population of
the entire CDP is 1,379, which is approximately a 6% increase from the 2010 population number
1,30435. The most recent census data shows the CDP to have 1,085 total housing units, with 702
of those units occupied. The remaining development potential within the IPUD boundary appears
limited to the 55 privately owned undeveloped parcels that meet the minimum development size
under existing County zoning standards and appear relatively unhindered by the area’s
topographical constraints. A land-use map for the planning area can be seen below in Figure 12-
2.
Figure 12-2: Inverness Land Use Policy Map
35 2020 US Census Redistricting Data
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12.5 MUNICIPAL SERVICES
Potable Water
The Inverness Public Utility District provides retail potable water services through its own
supply, treatment, storage, and distribution facilities. The infrastructure originally was
constructed by two separate private water companies, the Inverness Land & Water Company
(which later became simply Inverness Water Company) and the Seahaven Water Company. The
distribution system extends approximately 10.5 miles. The District’s water supplies are locally
sourced and obtained from surface and groundwater sources from an approximately 600-acre
area within the 400 square mile area that comprises the Tomales Bay watershed. These sources,
provide the District with an estimated maximum available annual yield of 100 acre-feet.
The primary potable water sources for IPUD are eight diversion points on three separate
perennial creeks: First Valley Creek, Second Valley Creek, and Third Valley Creek. Each of the
creeks runs across the District and are tributaries to Tomales Bay. The surface diversions are
permitted as pre-1914 appropriative rights from the State Water Resources Control Board and
allow IPUD to draw water throughout the year without being subject to any external limitations.
These pre-1914 diversions account for approximately four-fifths of IPUD’s annual supply.
As a secondary source, the District also maintains two additional surface diversions on First
Valley Creek and Second Valley Creek that are used as necessary. The permits for these two
diversions are post-1914 appropriative rights and can be accessed year-round but are subject to
volume restrictions. The District typically reserves accessing these sources to necessitation in
the summer months with the permit restrictions limiting IPUD to withdrawing 30 gallons per
minute only between June 1st and November 15th. The District is allowed to draw up to 50% of
available flows from the sources after that timeframe. The District also manages three
groundwater well sites to supplement the surface sources as needed. Two of the three wells have
a 1.5 gallons per minute capacity and the third has a 4 gallons per minute capacity and are
therefore used sparingly.
IPUD has two separate treatment facilities, F1 and F3, that provide nano-filtration and chlorine
disinfectant treatment to all of the raw water drawn. Combined, the treatment facilities have the
capacity to treat 120 gallons per minute for a possible daily treatment production level of .53
acre-feet. The F1 treatment facility is responsible for the majority of the treated water that is
produced. The plant treats the water that is gravity fed to it from six of the eight main diversion
points off of First Valley Creek and Second Valley Creek. The facility also receives water that is
pumped to it from the two lower elevation diversion points as well as from the three well sites.
The F1 treatment plant was originally constructed in 1983 and originally used two membrane
sediment filters to separate organic/inorganic materials without the addition of chemicals in the
initial filtration process. In 2014 a new nano-filtration system was installed. After filtration,
chlorine is added to filtered water before being pumped into storage tanks where it is gravity fed
into the distribution system. The treatment capacity of the F1 facility is 100 gallons per minute.
The F3 facility is operated as needed and treats raw water that arrives by way of gravity from the
two main diversion points on the Third Valley Creek. The F3 treatment plant was updated in
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2014 using nano-filtration and treats raw water in the same process manner as the F1 facility but
with a significantly reduced treatment capacity of 20 gallons per minute.
The distribution system for IPUD is comprised of approximately 10.5 miles of water mains that
supply the District’s seven pressure zones that connect a 300-foot range in elevation between the
517 service connections. Over three-fourths of IPUD’s water distribution comes from the
pressure zones receiving distribution from the F1 treatment facility. Both gravity and pumping
are used to recharge the pressure zones for both F1 and F3. Seven tanks within the F1 portion of
the distribution system combine for a storage capacity of 326,400 gallons (including one 43,700
gallon tank currently under construction), while three additional tanks in the F3 distribution zone
hold 140,000 gallons.
IPUD collects two separate fees from its users: a metered usage fee and a bi-monthly fixed
charge. The fixed charge is currently composed of two separate charges. The first, a basic
charge, is $150 for two months and covers water system operating expenses. The second is a
temporary charge that is a drought surcharge. At $30 every two months, this charge aims to
recoup debt recognized during the 2019-2021 drought period and will sunset after June 30, 2023.
The final charge within the fixed charges is a cross-connection program charge which applies to
only 18 ratepayers who have a well or a private water storage tank on their property. This charge
is $12 per two months. The charges are set by a Board of Directors’ ordinance and are intended
to provide full cost-recovery for the daily operation of the water system as well as providing
funding for projected capital improvement schedules. The usage fee is tiered and escalates based
on the total volume consumed. Usage of 1-499 cubic feet is included within the basic charge;
500-1,199 cubic feet is $3 per 100 cubic feet.
Fire Protection
The Inverness Public Utility District provides fire protection, emergency medical response, and
disaster preparedness by way of a vote to activate the District’s latent power in 1951 to assume
the management of the Inverness Volunteer Fire Department (IVFD). The District maintains a
roster of approximately 20 volunteer firefighters as well as one paid Fire Chief. The response
area for fire services matches the District boundary, with Tomales Bay State Park to the north,
Point Reyes National Seashore to the west, Tomales Bay to the east, and Marin County Fire
Department’s service area to the south.
The Tomales Bay State Park and the Point Reyes National Seashore both receive fire protection
services by way of a contract with the Marin County Fire Department whose closest stations for
response are in Point Reyes and Hicks Valley. The District contracts with MCFD for dispatch
services and an automatic mutual aid response protocol was established with MCFD in 1994.
The Department is part of a Cooperative Fire Agreement with the Point Reyes National
Seashore; other participants in this agreement include MCFD, Bolinas Fire Protection District,
Stinson Beach Fire Protection District, Muir Beach Fire Department, South Marin Fire
Protection District, and Sausalito Fire Department. The District is also a part of the Marin
Wildfire Prevention Authority (MWPA) which helps to provide annual funding for its 17
member agencies’ fire-related projects and services. The District receives .52% of MWPA’s
total annual funding allocations.
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The District has a single station, at 50 Inverness Way, on the Village Green near the commercial
center of town. The District owns the Firehouse/Village Green parcel. The Firehouse was built
in 1956 and remodeled and expanded slightly in 1992. It houses the Fire Department, a
community meeting room, and the District and Water System offices. District fire suppression
equipment includes two Type 1 engines, one Type 6 engine, one small rescue vehicle, and two
command/utility vehicles.
Effective September 1, 2021, Inverness Public Utility District was given a Class 5/5x Public
Protection Classification (PPC) rating by the Insurance Services Office (ISO), an organization
that independently evaluates municipal fire-protection efforts throughout the United States.
Ratings range on a scale of 1 to 10. Class 1 generally represents superior property fire
protection, and class 10 indicates that the area’s fire suppression program does not meet ISO’s
minimum criteria.36 While many communities receive a single number classification, many
smaller and more rural communities receive a split classification to reflect the risk of loss more
precisely. In the case of a split classification, the first number refers to the classification of
properties within 5 road miles of a fire station and within 1,000 feet of a creditable water supply.
The second number, with either the X or Y designation, applies to properties within 5 road miles
of a fire station but beyond 1,000 feet of a creditable water supply (i.e. fire hydrant). ISO
generally assigns Class 10 to properties beyond 5 road miles. The majority of insurance agencies
throughout the country use the PPC classification for underwriting and calculating premiums on
residential, commercial, and industrial properties. Figures 12-3 and 12-4 below show the
breakdown of PPC rating data throughout both the United States and California.
Figure 12-3: PPC Rating Distribution by Class Throughout California
36 How the PPC Program Works
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Figure 12-4: PPC Rating Distribution by Class Throughout the United States
12.6 ORGANIZATION STRUCTURE
Board of Directors
The Inverness Public Utilities District was originally formed with a three-member governing
board. The board was expanded in the mid-1970s to its current levels today of a five-member
board that is elected to staggered four-year terms. All directors are required to be registered
voters within the District’s jurisdictional boundary. The Board of Directors meets regularly on
the 4th Wednesday of each month at 9:00 a.m. at the IPUD Administrative Office located at 50
Inverness Way in Inverness.
Table 12-2: Inverness Public Utility District Board of Directors
Member Position Term Expiration
Ken Emanuels President December 2022
Dakota Whitney Vice-President December 2024
Kathryn Donohue Director December 2024
Brent Johnson Director December 2024
David Press Director December 2022
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Administration
The Board of Directors of IPUD appoints a General Manager who serves on an at-will basis to
oversee all District activities and is exclusively responsible for the implementation of policies
established by the Board of Directors. The General Manager oversees four employees that
include one Chief of Operations, one Senior Water Operator, one Customer Services Manager,
and one part-time Administrative Assistant.
12.7 ACCOUNTABILITY AND TRANSPARENCY
The Inverness Public Utility District makes a concerted effort to maintain high accountability
and transparency with all its activities. The IPUD website (www.invernesspud.org) provides
extensive documentation and information on Board meetings, financial reports, services, history,
water conservation, resolutions, and more. At this time the District is meeting all of the
requirements by the State of California for a public agency website.
Meeting and Agendas
The IPUD Board of Directors meets regularly on the 4th Wednesday of each month at 9:00 a.m.
at the IPUD Administrative Office located at 50 Inverness Way in Inverness. Special meetings
are held as needed to go over specific topics. Meeting agendas and minutes can be found on the
IPUD website (www.invernesspud.org/board-meetings).
Annual Budget Review
The District’s budget, typically adopted no later than the July Board meeting each year, provides
overall control of revenue and expenditures including appropriations on a line item basis and the
means of financing them. The District Manager presents financial reports to the Board every
month to assure budgetary compliance.
12.8 FINANCIAL OVERVIEW
IPUD has maintained a positive budgeted revenue to expense differential in each of the five
fiscal years FY 2016-17 to 2020-21. The average total annual revenues for the District over the
5-year period were $1,059,040. The primary revenue sources for the District are water charges
and property taxes, which combined account for approximately 90% of IPUD’s annual revenue.
The primary annual expense for the IPUD with approximately 70% of the District’s annual
expenses is personnel costs. The projected revenue for the District for fiscal year 2021-22 is
$1,377,564. A breakdown of the past 5 years of projected revenues and expenses can be seen
below in Table 12-3.
Table 12-3: Inverness Public Utility District Financial Audit Summary
Revenue FY 2016-17 FY 2017-18 FY 2018-19 FY 2019-20 FY 2020-21 Averages
Taxes $557,089 $561,893 $579,900 $747,100 $641,495 $617,495
Water
$388,250 $291,293 $427,200 $457,850 $561,400 $425,198
Charges
Miscellaneous $2,304 $0 $2,400 $41,390 $34,890 $16,196
Total
$948,391 $853,186 $1,009,500 $1,246,340 $1,237,785 $1,059,040
Revenues
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Expenses FY 2016-17 FY 2017-18 FY 2018-19 FY 2019-20 FY 2020-21 Averages
Personnel Costs $641,215 $482,266 $701,000 $722,726 $732,319 $655,905
Dispatch and
$35,677 $15,350 $36,600 $25,141 $26,450 $27,843
Communications
Collection and
$46,564 $35,323 $45,500 $4,500 $6,000 $27,577
Treatment
Lab and
$8,317 $9,869 $15,000 $9,968 $10,800 $10,790
Monitoring
Maintenance
$6,195 $4,018 $6,300 $66,322 $80,100 $32,587
and Utilities
Storage and
$18,692 $24,873 $20,500 $3,772 $4,900 $14,547
Distribution
Supplies and
$11,165 $8,647 $13,600 $15,890 $27,000 $15,260
Inventory
Training $9,855 $10,212 $9,900 $6,000 $14,644 $10,122
Vehicle
$8,396 $10,296 $9,200 $18,000 $18,000 $12,778
Operations
Administration $100,279 $106,952 $110,330 $111,607 $103,863 $106,606
Total Expenses $911,021 $720,576 $990,530 $990,927 $1,028,576 $928,326
Debt
IPUD provides a pension plan for employees and is part of the California Public Employees
Retirement System (CalPERS). CalPERS provides retirement, disability, and death benefits
based on the employee’s years of service, age, and final compensation. The District maintains
two distinct benefit packages – one for public safety (fire) and one for non-public safety (water).
As of June 30, 2021, the District’s Net Pension Liability was reported at $440,675 and is 76%
funded. In addition to the pension plan, the District provides other post-employment benefits
(OPEB) to its retirees. As of June 30, 2021, the District carried a net OPEB liability of $825,164.
The District currently has 11 employees, both active and inactive, in its OPEB plan.
Financial Audit
The Inverness Public Utilities District annually has its financial statements audited and contracts
with an outside accounting firm, R.J. Ricciardi, Inc. The most recent audited financial statement
was prepared for the fiscal year ending June 30, 2021.
12.9 SUSTAINABILITY
Local agencies such as the Inverness Public Utility District play a critical role in protecting
natural resources and the environment. Extended periods of drought and increasingly
unpredictable climate patterns have significantly increased the importance for local agencies to
step up their own conservation and long-term planning measures as well as making a concerted
effort towards higher levels of public outreach.
As the District is located in the wildland-urban interface and having experienced a significant
wildland fire (Vision Fire) destroy 48 homes in 1995 just outside of the District, IPUD is
proactive within its financial capabilities in wildland fire fuel abatement. In the past the District
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provided “Chipper Days” for residents to participate in improving their defensible space. With
the recent addition of funding from the Marin Wildfire Prevention Authority, FIRESafe Marin
now coordinates the annual chipping activities within the District. This effort, along with the
strong probability of a voter-initiated ballot measure this coming November for a new parcel tax,
give the District a strong possibility to expand its fuel management efforts in the near future by
creating a Local Hazard Mitigation Plan by partnering with community groups and
organizations.
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13.0 FLOOD CONTROL ZONE NO. 5
13.1 OVERVIEW
Flood Control Zone No. 5 (FCZ5) encompasses approximately 2.28 square miles and includes
the census-designated place (CDP) of Stinson Beach and the Easkoot Creek Watershed area to
the east of the developed residential area. The boundaries of FCZ5 were formed by the Marin
County Flood Control and Water Conservation District and approved by the Board of
Supervisors. FCZ5 is also part of the Stinson Beach Flood Protection and Watershed Program.
The Zone was established in 1961 in an effort to curtail flooding events from both seasonally
rising creeks and high tides.
Table 13-1: Flood Control Zone 5 Overview
Flood Control Zone 5
Primary Contact: Hannah Lee, Senior Civil Engineer Phone: (415)-473-2671
Main Office: 3501 Civic Center Drive, San Rafael
Formation Date: October 2, 1961
Services Provided: Sediment removal in Easkoot Creek for the purpose of reducing flood risk
Service Area: 1,457 acres
Population Served: ≈750
13.2 FORMATION AND DEVELOPMENT
Flood Control Zone 5 was originally established by the Marin County Board of Supervisors on
October 2, 1961. The Zone was created with a primary focus on the need for the periodic
dredging of the Easkoot Creek due to material from a large landslide in a canyon just above
Stinson Beach severely reducing the capacity of the creek. In the years prior to the official
creation of the zone, maintenance dredging of the creek had intermittently been performed by the
Marin County Department of Public Works, the California State Division of Beaches and Parks,
and the Army Corps of Engineers. Since the creation of the zone, the Flood Control and Water
Conservation District has performed at least six major sediment removal operations despite
limited funding.
In 2014, a major flooding event in Stinson Beach prompted a heightened community awareness
to the area’s propensity for flooding and the need for additional preventative measures. In May
of 2014, the Stinson Beach Flood Study and Alternatives Assessment was released by the Marin
County Flood Control and Water Conservation District. The study identified ten options to
improve flood protection for the community, restore natural habitat, and maintain emergency
access. The study created a framework for bypass of flood flows, restoration of wetlands and
riparian habitat, dredging of the Easkoot Creek from Arenal to Calle del Arroyo, and maintaining
channel conveyance through sediment removal at key sites along with continued vegetation
management. The total projected cost for the plan was $5.7 million. In order to generate the
funds, a special tax of $250 per improved parcel was put on the ballot in 2015. Despite an
abundance of community engagement on the issue, the tax measure failed to receive the
necessary voter support. No other ballot measures have been brought to the zone’s voters since
this effort.
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13.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE
FCZ5’s jurisdictional boundary encompasses approximately 1,457 acres (2.8 square miles) and
contains 921 parcels in total. The Zone encompasses the community of Stinson Beach and the
boundaries of the zone and the Easkoot Creek Watershed are nearly coterminous. Tributaries
within the boundary that join the mainstem before it flows into the Bolinas Lagoon include
Fitzhenry, White Rock, and Black Rock Creeks. FCZ5’s sphere of influence is coterminous with
its jurisdictional boundary.
Figure 13-1: Flood Zone 5’s Jurisdictional Boundary and Sphere of Influence
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13.4 GROWTH AND POPULATION
Flood Control Zone 5 encompasses the census-designated place (CDP) of Stinson Beach.
According to 2020 U.S. Census Redistricting Data, the population of the CDP is 541, which is
approximately a 14% decrease from the 2010 population number 63237. The most recent census
data shows the CDP to have 751 total housing units, with only 290 of those units occupied. With
the Stinson Beach area having numerous weekend residents, it is difficult to ascertain the actual
full-time population. Due to this, the number of registered voters is another measurement of
population that is used. According to 2020 U.S. Census Redistricting Data, the number of
registered voters in Stinson Beach is 505.
According to the Stinson Beach Community Plan, Stinson Beach has limited opportunity for
future expansion since federal and state lands (Golden Gate National Recreation Area and Mount
Tamalpais State Park) and the Pacific Ocean surround the community. As such, all future
residential and commercial development will occur within the existing developed area. Stinson
Beach is already extensively developed and there remain few infill opportunities for growth. A
map with the current zoning for the area is shown below in Figure 13-1.
Figure 13-2: Stinson Beach Land Use Policy Map
37 2020 US Census Redistricting Data
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13.5 MUNICIPAL SERVICES
FCZ5 provides sediment removal and vegetation management along .25 miles of the Easkoot
Creek in Stinson Beach. While full sediment removal operations have been performed by FCZ5
in the past, the current level of funding for the zone is not adequate for a project of that scale.
Until the 2000s there was primarily a focus on spot removal of sediment at the creek crossings at
Calle del Pinos, Calle del Pradero, Calle Del Sierra, Calle del Onda, and Calle del Arroyo
(known collectively as “the Calles”). Since 2013 a project was constructed in Easkoot Creek by
FCZ5 with permission from the National Park Service through a Special Use Permit adjacent to
the Parkside Café and the beach parking lot that was designed to encourage sediment to drop out
of the water at this location which is more cost-effective and less environmentally impactful to
reach with equipment. Over the subsequent five years sediment removal only took place at this
location rather than at the Calles, and sedimentation at the Calles was monitored. The project
was successful in eliminating the need for periodic maintenance sediment removal at the Calles.
Sediment removal does occur most years at the site adjacent to the café, either during the
summer as part of annual maintenance and/or during the winter on an emergency basis should a
storm loosen material in the watershed and fill the creek there. FCZ5 has no pump stations or
levees.
13.6 ORGANIZATION STRUCTURE
Board of Supervisors
Flood Control Zone 5 was formed as a part of the dependent special district of the Marin County
Flood Control and Water Conservation District with the Marin County Board of Supervisors as
its governing body. County Supervisors are elected to four-year terms of office, with no term
limits. The members are elected by district and they are required to live in the district they
represent. The Board serves as the legislative and executive body of Marin County.
Table 13-2: Marin County Board of Supervisors
Member Position Current Term
Damon Connolly Supervisor Expires January 2023
Stephanie Moulton-Peters Vice President Expires January 2025
Katie Rice President Expires January 2025
Dennis Rodoni 2nd Vice-President Expires January 2025
Judy Arnold Supervisor Expires January 2023
Advisory Board
The FCZ5 Advisory Board consists of 5 members that are residents within the zone’s
jurisdictional boundary. Members serve 4-year terms. The Advisory Board meets annually on
the third Thursday of February. At that meeting, one additional meeting is scheduled to be held
within that calendar year. Special meetings may also be called when necessary. While meetings
have recently been held virtually due to the Covid-19 emergency order, meetings are typically
held at the Stinson Beach Community Center at 32 Belvedere Avenue in Stinson Beach.
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Table 13-3: Flood Control Zone 5 Advisory Board
Member Current Term
Barry Harris Expires December 2024
Howard Schechter Expires November 20204
Jamie Sutton Expires December 2024
John Washington Expires December 2024
Toby Bisson Expires December 2024
Staffing and District Operations
As a dependent 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 Government Code Section 53891.
13.7 ACCOUNTABILITY AND TRANSPARENCY
Meeting and Agendas
Advisory Board meetings are typically held at least twice per year and more often as needed.
Advisory Board meeting notices are posted in three public places. Meeting notices and meeting
documents are posted on the District’s website (marinwatersheds.org). Members of the public
who have requested to be notified of Advisory Board meetings are notified via email. The
meeting date, time, and location are posted on the Marin Watershed Program website. Also
posted on the website are agendas, staff reports, and prior meeting minutes. The most recent
meeting was February 18th, 2021.
Annual Budget Review
FCZ5 posts draft budgets on the Marin Watershed Program website as part of the advisory board
meeting packet materials. In recent years draft budgets typically included actuals for the prior
year, a proposed budget for the upcoming year, and an estimated budget for the following year.
Starting in FY 2020-2021 the County Administrator, consistent with other funds they oversee,
requested a baseline budget to start out the fiscal year and for the budget to be adjusted
throughout the year for major project expenses as contracts are approved by the District Board of
Supervisors. This means the advisory board will review an expenditure plan for the upcoming
fiscal year and that the baseline budget submitted to the District Board will be adjusted as
contracts are awarded for design and implementation. The FCZ is included in the County of
Marin Comprehensive Annual Financial Report as a line item under Public Protection of the
Budgetary Comparison Schedule.
13.8 FINANCIAL OVERVIEW
FCZ5 is funded primarily by ad valorem taxes supplemented by a small amount of excess
Educational Revenue Augmentation Fund (ERAF) monies. These tax revenues make up
approximately 98% of the zone’s annual revenue. Additional revenue was sought by way of a
ballot measure for a parcel tax in March of 2015 (Measure A), however, this ballot measure
failed to receive the necessary support for approval. Every year staff prepares a proposed
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expenditure plan for Advisory Board recommendation and the District Board of Supervisors
approves a baseline program budget and budget adjustments for major project expenses up to the
amount in the expenditure plan. A breakdown for the current year’s adopted baseline budget as
well as the budgets for the past 3 fiscal years can be seen below in Figure 13-3. While the zone
has proposed expenditures exceeding revenues for the current and previous fiscal year, the
overages are covered by a sizeable fund balance of $406,170 as of the start of FY 2020-21 that
has been built up over the past few years. The budget includes enough funding for approximately
one summer-time sediment removal effort and two emergency sediment removal efforts, but
typical years only require one to two sediment removal efforts allowing some funding to be
saved in the fund balance.
Figure 13-3: Flood Control Zone 5 Financial Overview
13.9 SUSTAINABILITY
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.
FCZ5’s mission is to reduce the risk of flooding for the protection of life and property while
utilizing sustainable practices. This mission is implemented through effective, transparent, and
responsive planning, design, construction, operation, and maintenance of District-owned
facilities such as bypass drains, creeks, and ditches. FCZ5’s efforts, both direct and indirect, are
impacting the community of Stinson Beach’s battle against seasonal flooding and long-term sea-
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level rise issues. The district has worked collaboratively with the National Park Service in the
planning process of the rehabilitation of the Stinson Beach Parking Lot Project. The updated
project endeavors to allow out of bank flows on Easkoot Creek to be directed out to the beach in
a more controlled manner to minimize future infrastructure damage. The district has also
partnered with other Marin County departments in the Stinson Beach Nature Based Adaptation
Feasibility Study in an effort to find ways to enhance the natural surrounding beach and dune
habitat to improve flood and erosion protection.
District-led projects focus on integrating multiple benefits including flood risk mitigation,
ecosystem restoration, improved fish passage, and emergency response access. The District’s
maintenance practices pay special attention to limiting any negative impact to wildlife,
particularly threatened and endangered species. The district has adjusted its sediment capture and
removal project processes in order to minimize the impact on the Steelhead Trout and Coho
Salmon that inhabit that waterway.
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14.0 FLOOD CONTROL ZONE NO. 10
14.1 OVERVIEW
Flood Control Zone No. 10 (FCZ10) encompasses approximately 6.48 square miles of the west
shore of the Tomales Bay and the eastern side of the Inverness Ridge and includes a majority of
the census-designated place (CDP) of Inverness and multiple creeks of the Inverness
subwatershed including Third Valley Creek, Second Valley Creek, First Valley Creek, Dream
Farm Creek, Fish Hatchery Creek, Haggerty Gulch Creek, Silver Hills Creek, and an area of
Olema Creek. The boundaries of FCZ10 were formed by the Marin County Flood Control and
Water Conservation District and approved by the Board of Supervisors. The Zone was
established in 1982 in an effort to address the impacts of a major flooding event in the area.
Table 14-1: Flood Control Zone 10 Overview
Flood Control Zone 10
Primary Contact: Hannah Lee, Senior Civil Engineer Phone: (415)-473-2671
Main Office: 3501 Civic Center Drive, San Rafael
Formation Date: March 30, 1982
Services Provided: Reduce flood risk within its boundaries by removing debris from creeks
Service Area: 4,148 acres
Population Served: ≈1,000
14.2 FORMATION AND DEVELOPMENT
Flood Control Zone 10 was originally established by the Marin County Board of Supervisors on
March 30, 1982, as a means of funding the early stages of cleanup from a major storm on
January 4th, 1982. The storm destroyed homes, caused livestock losses, and brought severe
mudslides that blocked roads and cut the community off for days on end. The zone was
officially formed prior to an election for a tax measure to fund the work within the zone. The
estimated costs for cleanup of damages were $180 per taxable and continued maintenance was
anticipated at $30 per taxable acre. The tax measure that was ultimately put on the ballot in June
of 1982 was for $56 per taxable acre for the first year and $20 each following year. The measure
failed and the efforts were paid for out of the General Fund. A grant of $100,000 from the San
Francisco Foundation was awarded for storm damage repair. A loan for the monies was made
from Flood Control Zone 4 until the grant funds were received.
Through the next three years, FCZ10 operated and completed projects surrounding creek
restoration by way of primarily grant funding. In November of 1986, a special tax was proposed
of $50 for parcels larger than 1 acre, $25 for parcels between .5 and 1 acre, and $10 for parcels
less than .5 acres. The ballot measure failed with only 49% of the vote. The zone continued to
operate throughout the 1980s and early 1990s completing smaller projects when grant funding
allowed and being mindful of expenditure control in an effort to preserve the approximately
$40,000 in reserve funds in case of an emergency.
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On October 3, 1995, the Mount Vision Fire began. The fire burned over 12,000 acres, many
inside of Flood Control Zone 10, destroying 45 homes in Inverness Park. The cleanup for this
natural disaster was a collaboration between the County of Marin and the Emergency Watershed
Protection Program (EWP). The EWP was created by Congress to allow communities to quickly
address serious and long-lasting damages to infrastructure and land without requiring a disaster
declaration by federal or state government officials for program assistance to begin. The
program is administered by the United States Department of Agriculture Natural Resources
Conservation Service.
Since that time, the zone has been fairly dormant with only emergency or grant-funded work
performed due to there being no consistent funding source. The work performed has been
mainly creek maintenance upon specific request from the FCZ10 Advisory Board members.
Prior to a recent meeting of the Advisory Board in March of 2021, the Board had not met since
2016. It was agreed to by the Advisory board at a meeting in 2014 to forego regularly scheduled
meetings in an effort to conserve funds.
14.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE
FCZ10’s jurisdictional boundary encompasses approximately 4,148 acres (6.48 square miles).
The Zone encompasses much of the community of Inverness, excluding the area of Paradise
Ranch Estates, and borders parts of the communities of Point Reyes and Olema. The Zone
encompasses numerous creeks along the west shore of the Tomales Bay and the eastern slope of
the Inverness Ridge. FCZ10’s sphere of influence is coterminous with its jurisdictional
boundary. A map of the boundary can be seen below in Figure 14-1.
Figure 14-1: Flood Zone 10’s Jurisdictional Boundary and Sphere of Influence
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14.4 GROWTH AND POPULATION
Flood Control Zone 10 encompasses an apportionment of the census-designated place (CDP) of
Inverness. According to 2020 U.S. Census Redistricting Data, the population of the CDP is
1,379, which is approximately a 5.75% increase from the 2010 population number 1,30438. The
most recent census data shows the CDP to have 1,085 total housing units, with 702 of those units
occupied. The buildout projection for the planning area is 1,317 units. Due to both
topographical constraints in combination with current zoning, additional future development is
expected to be minimal. A map with the current zoning for the area is shown below in Figure
14-2.
Figure 14-2: Inverness Land Use Policy Map
38 2020 US Census Redistricting Data
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14.5 MUNICIPAL SERVICES
FCZ10 provides emergency creek maintenance and vegetation management along the Inverness
Ridge subwatershed. The zone typically contracts with the Conservation Corps North Bay
(CCNB) for maintenance projects. The work is performed within tight budgetary constraints as
necessary with an annual project funding allotment of approximately $6,000 that is allocated
from a reserve fund of just approximately $40,000 that is kept for emergency response. The most
recent project performed by the CCNB with the help of a grant was in 2009 in Redwood Canyon
Creek, Fish Hatchery Creek, and the Valley Creeks and included removal of debris and
vegetation, removal of invasive species that cause tree branches to fall into the creeks, and hand
removal of sediment at key culverts in the County road right-of-way. The work within the
boundary is focused on the Third Valley Creek, Second Valley Creek, First Valley Creek, Dream
Farm Creek, Fish Hatchery Creek, Haggerty Gulch Creek, Silver Hills Creek, and an area of
Olema Creek. The Marin County Flood Control and Water Conservation District do not own
any property or easements within the zone.
14.6 ORGANIZATION STRUCTURE
Board of Supervisors
Flood Control Zone 10 was formed as a part of the dependent special district of the Marin
County Flood Control and Water Conservation District with the Marin County Board of
Supervisors as its governing body. County Supervisors are elected to four-year terms of office,
with no term limits. The members are elected by district and they are required to live in the
district they represent. The Board serves as the legislative and executive body of Marin County.
Table 14-2: Marin County Board of Supervisors
Member Position Current Term
Damon Connolly Supervisor Expires January 2023
Stephanie Moulton-Peters Vice President Expires January 2025
Katie Rice President Expires January 2025
Dennis Rodoni 2nd Vice-President Expires January 2025
Judy Arnold Supervisor Expires January 2023
Advisory Board
The FCZ10 Advisory Board consists of 5 members that are residents within the zone’s
jurisdictional boundary. Members serve 4-year terms. According to the by-laws, the Advisory
Board originally met annually on the second Thursday of February, May, August, and
November. At the meeting held on May 15th, 2014, County staff recommended that regular
meetings not be held in order to save district funding. Rather than hold regular meetings, a
statement of proposed action is sent via mail to Advisory Board members for review and
comment. Since this time, the Advisory Board has convened on two other occasions in 2016 and
2021. Special meetings may also be called when necessary.
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Table 14-3: Flood Control Zone 10 Advisory Board
Member Current Term
James Fox Expires September 2023
John Hope Expires September 2023
Leslie Adler-Ivanbrook Expires March 2025
Peter Gradjansky Expires March 2025
Robert Johnston Expires September 2023
Staffing and District Operations
As a dependent 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 Government Code Section 53891.
14.7 ACCOUNTABILITY AND TRANSPARENCY
Meeting and Agendas
Advisory Board meetings are typically held only when deemed necessary for project review or
emergency maintenance. Advisory Board meeting notices are posted in three public places.
Meeting notices and meeting documents are posted on the District’s website
(marinwatersheds.org). The meeting date, time, and location are posted on the Marin Watershed
Program website. Also posted on the website are agendas, staff reports, and prior meeting
minutes. The most recent meeting was on March 4th, 2021.
Annual Budget Review
FCZ10 posts draft budgets on the Marin Watershed Program website as part of the advisory
board meeting packet materials. As there have been no Advisory Board meetings, no project
activity in the zone, and the zone has no revenue stream, the most recent budget that has been
posted to the District’s website prior to FY 2021-22 was for FY 2016-17. The budgets are still
contained within the Final Budget for the County of Marin. Starting in FY 2020-2021 the
County Administrator, consistent with other funds they oversee, requested a baseline budget to
start out the fiscal year and for the budget to be adjusted throughout the year for major project
expenses as contracts are approved by the District Board of Supervisors. This means the advisory
board will review an expenditure plan for the upcoming fiscal year and that the baseline budget
submitted to the District Board will be adjusted as contracts are awarded for design and
implementation. The FCZ is included in the County of Marin Comprehensive Annual Financial
Report as a line item under Public Protection of the Budgetary Comparison Schedule.
14.8 FINANCIAL OVERVIEW
Unlike the other zones within the Marin County Flood Control and Water Conservation District,
FCZ10 has no annual tax revenue stream. Tax measures to fund the work within the zone were
brought to the voters in both 1982 and 1986 with both failing to meet the necessary threshold for
adoption. No additional attempt has been made to seek a tax measure since 1986. Small
maintenance projects are funded only when necessary from the reserve fund. The zone receives
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a fairly negligible amount of revenue annually from investment interest. The zone’s reserve fund
is approximately $20,000.
14.9 SUSTAINABILITY
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.
FCZ10’s purpose is to reduce the risk of flooding for the protection of life and property while
utilizing sustainable practices. While the work within the zone has been minimal in recent years
due to a lack of funding, the projects that have been completed in the numerous creeks within the
zone are critical for repairing and maintaining habitat as well as being preventative measures
against flooding that could cause damage to infrastructure and private property.
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15.0 COUNTY SERVICE AREA 33
15.1 OVERVIEW
Marin County Service Area 33 (CSA 33) is a dependent single-purpose special district that
provides park maintenance services to the community of Stinson Beach’s Village Green Park.
The CSA is been funded by a special assessment that was approved by the voters within the
District’s boundary in 2003. The assessment aids in offsetting the costs incurred by Marin
County Parks for its services within the CSA. CSA 33 has a local advisory board that advises
the Marin County Parks Department and the Marin County Board of Supervisors on all matters
relating to its services in the CSA.
Table 15-1: County Service Area 33 Overview
County Service Area 33 Overview
Primary Contact: Jim Chayka, Superintendent Marin County Parks
Main Office: 3501 Civic Center Drive, Suite 260 San Rafael, CA
Contact Information: (415)-473-3639
Formation Date: August 19, 2003
Services Provided Park Maintenance
15.2 FORMATION AND DEVELOPMENT
The main service of CSA 33 is the upkeep and maintenance of two adjacent parks in the
community of Stinson Beach: Village Green 1 and Village Green 2. In 1987 a group of Stinson
Beach residents constructed a plan to transform a vacant lot in the middle of the community at
3481 Highway 1 into a park. In 1989, the group secured a grant from the State of California in
the amount of $450,000 which they used to purchase the lot and begin construction. All of the
work done building the park was donated by local contractors and after 2 years of work, Village
Green 1 was completed in the spring of 1991. Upon completion, the land was donated to Marin
County Parks. In order to fund the maintenance of the park, a ballot measure was passed to
create a landscaping and lighting district to levy an annual parcel tax within the community of
$17. Directly across the street from Village Green 1 was a lot with a gas station that had been
closed for over a decade. A local community member purchased the lot and the gas station was
demolished so that the second half of the park, Village Green 2, could be constructed. Upon
completion of Village Green 2 in 2003, this land was also donated to Marin County Parks. In the
same year, the community and the County agreed to dissolve the landscaping and lighting district
and create a new county service area. A special election was held on August 19, 2003, at which
time the voters in the community passed Measure D to create CSA 33 and continue the parcel tax
at the same rate of $17.
15.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE
Marin County Service Area 33’s service boundary, which currently encompasses just over 4304
acres (6.7 square miles), includes the entire Stinson Beach residential area, as well as the Seadrift
area, and stretches to the north to Ridgecrest Boulevard. The District’s sphere of influence is
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coterminous with its jurisdictional boundary. A map of the District’s jurisdictional boundary and
sphere of influence can be seen below in Figure 15-1.
Figure 15-1: County Service Area 33 District Jurisdictional Boundary and Sphere of Influence
15.4 GROWTH AND POPULATION
CSA 33 encompasses the census-designated place (CDP) of Stinson Beach. According to 2020
U.S. Census Redistricting Data, the population of the CDP is 541, which approximately a 14%
decrease from the 2010 population number 63239. The most recent census data shows the CDP to
have 751 total housing units, with only 290 of those units occupied. With the Stinson Beach area
having numerous weekend residents, it is difficult to ascertain the actual full time population.
Due to this, the number of registered voters is another measurement of population that is used.
According to 2020 U.S. Census Redistricting Data, the number of registered voters in Stinson
Beach is 505.
39 2020 US Census Redistricting Data
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According to the Stinson Beach Community Plan, Stinson Beach has limited opportunity for
future expansion since federal and state lands (Golden Gate National Recreation Area and
Mount Tamalpais State Park) and the Pacific Ocean surround the community. As such, all
future residential and commercial development will occur within the existing developed area.
Stinson Beach is already extensively developed and there remain few infill opportunities for
growth. A map with the current zoning for the area is shown below in Figure 15-2.
Figure 15-2: Stinson Beach Land Use Policy Map
15.5 MUNICIPAL SERVICES
CSA 33 provides park maintenance services to the community of Stinson Beach administered by
the Marin County Parks Department with a primary focus on the Stinson Beach Village Green
Park. Marin County Parks provides daily upkeep and maintenance as well as planning and
execution of larger special projects. The Parks Department provides three Park Rangers to
support the facility (as well as other neighboring West Marin locations) for tasks such as
playground inspections and repairs, landscaping improvements, restroom monitoring, and other
duties as necessitated. A few of the larger projects that CSA 33 has accomplished over the past
few years include:
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• Added lighting for the basketball court
• Added a permanent concrete ping pong table
• Replacement of the children’s play structure
• Irrigation replacement throughout Village Green 2
The CSA is currently working on and has allocated funding for work on the entry area of Village
Green 1 that would include an expansion of the entry with the addition of bicycle parking and the
replacement of the bus stop bench.
15.6 ORGANIZATION STRUCTURE
Board of Supervisors
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 9:00am 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.
CSA 33 also has a local advisory board that is comprised of members who reside within the
CSA’s boundaries. The Board of Supervisors appointed Advisory Board consists of five
members serving two-year terms. The Board acts in an advisory capacity to Marin County Parks
staff and the Board of Supervisors on matters relating to projects and programs that can be
conducted with funding from the CSA 33 budget and that affect county land contained within the
boundaries of CSA 33. The Advisory board typically meets twice a year in March and October,
unless there is a need to schedule a special meeting for more urgent matters. Advisory Board
meetings are typically held at the Stinson Beach Community Center at 32 Belvedere Avenue, in
Stinson Beach.
Table 15-2: Marin County Board of Supervisors
Member Position Term Expiration
Damon Connolly Supervisor Expires January 2023
Stephanie Moulton-Peters Vice President Expires January 2025
Katie Rice President Expires January 2025
Dennis Rodoni 2nd Vice-President Expires January 2025
Judy Arnold Supervisor Expires January 2023
Table 15-3: County Service Area 33 Advisory Board
Member Term Expiration
Christopher Fitting February 4, 2022
John Archibald November 3, 2022
Lance Meade November 19, 2021
Mark White June 8, 2023
Vacant
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Staffing and District Operations
As a dependent 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 Government Code Section 53891. CSA 33 is provided
general oversight and management by the Marin County Parks Department with input and
project guidance from the CSA 33 Advisory Board.
15.7 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 access. Currently, CSA 33 offers information about its services, meetings,
finances, and the decision-making processes, with the CSA 33 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
are posted in accordance with the Brown Act. In addition, meetings are properly noticed and
time is provided for public comment at each meeting.
15.8 FINANCIAL OVERVIEW
The funding for the CSA 33 budget has two primary sources of annual revenue for the District.
The first source is the voter-approved tax assessment, Measure D, which levies $17 per parcel
per year in the District’s service area. The projected revenue from this special tax for FY 2021-
22 is $17,082. The second primary source of revenue is an annual transfer from Marin County
Parks of $15,000. While CSA 33 is projected for expenses to outpace revenues by an average of
approximately $3,254 in FY 2021-22 due to larger-scale maintenance projects that have been
planned for, the District began the fiscal year with a fund balance from which to draw the
overages from. A breakdown of CSA 33’s budget for the past 3 years can be seen below in
Figure 15-3.
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Figure 15-3: County Service Area 33 Financial Overview
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16.0 COUNTY SERVICE AREA NO. 28
16.1 OVERVIEW
Marin County Service Area 28 (CSA 28) is a dependent special district that provides funding for
paramedic service throughout the unincorporated area of West Marin. The CSA has been funded
by a special assessment approved by the voters within the District’s boundary in 1995. The
assessment aids in offsetting the costs incurred in providing year-round 24-hour availability of
paramedic services. The service area includes the West Marin communities of Stinson Beach,
Bolinas, Point Reyes Station, Inverness, Marshall, Tomales, San Geronimo Valley, Olema,
Nicasio, Hicks Valley, and Chileno Valley.
Table 16-1: County Service Area 28 Overview
County Service Area 28 Overview
Primary Contact: Dan Eilerman, Assistant County Administrator
Administrative Contact Chief Jason Weber
Formation Date: December, 1995
Services Provided: Advanced Life Support
Service Area: 351 Square Miles
16.2 FORMATION AND DEVELOPMENT
On November 7, 1995, the voters in West Marin approved a special assessment of $40 per
residential unit within the designated 351 square mile service area to provide funding to the
Marin County Fire Department for round-the-clock advanced life support (paramedic) services.
In December of 1995, the Marin County Board of Supervisors approved the resolution officially
creating CSA 27. The District originally provided two year-round and round-the-clock response
units, and over time added a seasonal response unit for the summer months to serve the high
visitation areas of Stinson Beach, Bolinas, and Mount Tamalpais State Park. On November 2nd
of 2010, the voters approved a $24 increase to the assessment in order to help cover the increased
costs to provide the services.
16.3 DISTRICT BOUNDARY AND SPHERE OF INFLUENCE
Marin County Service Area 28’s service boundary, which currently encompasses just over 351
square miles, includes coverage for the communities of Stinson Beach, Bolinas, Point Reyes
Station, Inverness, Marshall, Tomales, Olema, San Geronimo Valley, Nicasio, Hicks Valley, and
Chileno Valley. The area also encompasses privately and publicly owned parklands including
portions of the Golden Gate National Recreation Area and the Mount Tamalpais State Park. The
District’s sphere of influence is coterminous with its jurisdictional boundary.
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Figure 16-1: Marin County Service Area 28 Jurisdictional Boundary and Sphere of Influence
16.4 GROWTH AND POPULATION
CSA 28 encompasses a majority of the land that makes up what the County of Marin has
designated as the West Marin Planning Area. The planning area is comprised of five census
tracts: 1322, 1321, 1130, 1311, and 1330. According to 2020 U.S. Census Redistricting Data,
the population of the planning area is 12,125, which is less than a 1% increase from the 2010
population number 12,005. The most recent census data shows the planning area to have 7,153
housing units. The current zoning for the area puts the theoretical buildout at 7,307 housing
units.
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16.5 MUNICIPAL SERVICES
CSA 28 provides funding to the Marin County Fire Department to supplement the costs the
Department incurs in providing year-round and round-the-clock paramedic services throughout
West Marin. The CSA’s revenue, which is accrued by way of a voter-approved tax measure, is
transferred to the Marin County Fire Department who provides the service throughout the area.
The District is provided with two permanent response units as well as one seasonal response unit.
The first of the two permanent units provides service from Point Reyes (Medic 94) north to the
county border and south to Stinson Beach. The second response unit provides service from
Woodacre (Medic 96 and Medic 95) east to San Geronimo. The seasonal response unit (Medic
97)is staffed during the summer months in order to serve the high visitation areas of Stinson
Beach, Bolinas, and Mount Tamalpais State Park.
Over the past 3 years, the above four response units have averaged 845 annual calls for service in
CSA 28. During that time, Point Reyes Station averaged the highest number of calls of the
eleven included communities. A breakdown of the calls for service for all 4 responding units can
be seen below in Table 16-2.
Table 16-2: Marin County Service Area 28 Calls for Service
Responding Unit 2018 2019 2020
Medic 94 235 420 428
Medic 95 110 62 34
Medic 96 155 392 433
Medic 97 83 86 97
16.6 ORGANIZATION STRUCTURE
Board of Supervisors
As a dependent special district, the Marin County Board of Supervisors servces as the CSA’s
governing body. The five-member Board of Supervisors meets the second and fourth Tuesday
every month at 9:00am 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.
Table 16-3: Marin County Board of Supervisors
Member Position Term Expiration
Damon Connolly Supervisor Expires January 2023
Stephanie Moulton-Peters Vice President Expires January 2025
Katie Rice President Expires January 2025
Dennis Rodoni 2nd Vice-President Expires January 2025
Judy Arnold Supervisor Expires January 2023
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Staffing and District Operations
As a dependent 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 Government Code Section 53891. CSA 28 is primarily
managed by the Marin County Fire Department which oversees staffing and calls for service.
16.7 ACCOUNTABILITY AND TRANSPARENCY
Meeting and Agendas
The Board of Supervisors meeting agendas, minutes, and recordings can be viewed on the Marin
County website. Board documents such as resolutions and ordinances can also be found on the
Board of Supervisors page of Marin County’s website.
Annual Budget Review
The County of Marin contracts with an independent financial auditor, Clifton Larson Allen, to
conduct an annual financial report. CSA 28 is included in the report under Budgetary
Comparison Schedule for County Service Areas Fund. The latest audit was prepared for the year
ending June 30, 2020.
Every year the Marin County Fire Department develops a proposed budget for CSA 28 and
presents it to the Board of Supervisors for review and approval. It is based on the prior year’s
expenses and projected parcel tax revenue for the upcoming fiscal year.
16.8 FINANCIAL OVERVIEW
CSA 28 provides funding to the Marin County Fire Department by way of a voter-approved tax
measure that was initially passed in 1995. The most recently adopted update of the tax measure,
Measure M, was passed by the voters within the service area of the CSA on November 2nd, 2010
and has no sunset date or escalators. The tax measure as it currently stands levies a charge in the
amount of $64 on all properties with residential units. The tax is the CSA’s only form of
revenue. For FY 2020-21 the CSA realized $375,869 of revenue and $371,427 in expenditures.
While the CSA has shown recent occurrences of expenditures outpacing revenues for the fiscal
year, in each instance the balance of the added expenditures was covered by a fund balance that
was carried over from the prior fiscal year. A breakdown of the district’s finances over the past
5 fiscal years can be seen below in Table 16-4.
Table 16-4: Marin County Service Area 28 Financial Overview
Fiscal Year Revenues Expenditures Net
FY 2016-17 $376,329 $378,406 $-2,079
FY 2017-18 $376,202 $392,408 $-16,206
FY 2018-19 $376,222 $370,419 $5,803
FY 2019-20 $376,298 $376,506 $-208
FY 2020-21 $375,869 $371,427 $4,442
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