LAFCO
City of Willits, 2019
Read the report at Local Agency Formation Commissions ↗
ADOPTED
(Hotels.com, L.P., 2018)
C W
ITY OF ILLITS
Municipal Service Review and
Sphere of Influence Update
Prepared for:
M LAFC
ENDOCINO O
200 South School Street
Ukiah, California 95482
http://www.mendolafco.org/
Workshop: December 3, 2018
Public Hearing: May 6, 2019
Adopted: May 6, 2019
LAFCo Resolution No: 2018-19-10
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WILLITS
ROAD
HEARST
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S H
IG
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CANYON
DRIVE
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Area of Interest 1
Area of Interest 3
SEWER PLANT RD.
HEARST WILLITS ROAD
EAST COMMERCIAL ST. D.
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Area A
Area of Interest 1
EAST HILL ROAD
ALDER LN.
HO
LLANDS
LN.
Area of Interest 2
D.
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City of Willits Area A City of Willits Highways
Area of Interest 1 Parcels Roads
Source: This map was prepared by the Mendocino County
Division of Information Services GIS Program, April 2019. Area of Interest 2 Sphere of Influence °
N o t e : T s h h i o s u m ld a n p o i t s b n e o u t s a e s d u t r o v e d y e p te r r o m d i u n c e t a le n g d a l boundaries. Area of Interest 3 1,000 500 0 1,00 F 0 eet
MSR/SOI Update | City of Willits
TABLE OF CONTENTS
1 INTRODUCTION ............................................................................................................................................ 1-1
1.1 LOCAL AGENCY FORMATION COMMISSION .......................................................................................... 1-1
1.2 MENDOCINO LAFCO ............................................................................................................................. 1-1
1.3 MUNICIPAL SERVICE REVIEW ................................................................................................................ 1-1
1.4 SPHERE OF INFLUENCE .......................................................................................................................... 1-2
1.5 MENDOCINO LAFCO POLICIES ............................................................................................................... 1-2
1.6 SENATE BILL 215 ................................................................................................................................... 1-5
2 AGENCY OVERVIEW ...................................................................................................................................... 2-1
2.1 HISTORY ............................................................................................................................................... 2-1
2.1.1 FORMATION ................................................................................................................................................................ 2-1
2.1.2 BOUNDARY.................................................................................................................................................................. 2-1
2.1.3 SERVICES ..................................................................................................................................................................... 2-2
2.2 GOVERNMENT STRUCTURE................................................................................................................... 2-2
2.2.1 GOVERNING BODY ...................................................................................................................................................... 2-2
2.2.2 PUBLIC MEETINGS ...................................................................................................................................................... 2-2
2.2.3 STANDING COMMITTEES ........................................................................................................................................... 2-3
2.2.4 PUBLIC OUTREACH ..................................................................................................................................................... 2-3
2.2.5 COMPLAINTS ............................................................................................................................................................... 2-4
2.2.6 TRANSPARENCY AND ACCOUNTABILITY .................................................................................................................... 2-4
2.3 OPERATIONAL EFFICIENCY .................................................................................................................... 2-4
2.3.1 MANAGEMENT AND STAFFING .................................................................................................................................. 2-4
2.3.2 AGENCY PERFORMANCE ............................................................................................................................................ 2-7
2.3.3 STRATEGIC PLANNING ................................................................................................................................................ 2-7
2.3.4 REGIONAL AND SERVICE-SPECIFIC COLLABORATION ............................................................................................... 2-8
2.3.5 GOVERNMENT RESTRUCTURE OPTIONS ................................................................................................................... 2-8
2.4 FINANCES ............................................................................................................................................. 2-9
2.4.1 CURRENT FISCAL HEALTH ........................................................................................................................................... 2-9
2.4.2 LONG TERM FINANCIAL CONSIDERATIONS ............................................................................................................. 2-13
2.5 GROWTH ............................................................................................................................................ 2-17
2.5.1 PRESENT AND PLANNED LAND USE AND DEVELOPMENT ...................................................................................... 2-17
2.5.2 EXISTING POPULATION AND PROJECTED GROWTH................................................................................................ 2-17
2.6 DISADVANTAGED UNINCORPORATED COMMUNITIES......................................................................... 2-18
3 MUNICIPAL SERVICES ................................................................................................................................... 3-1
3.1 SERVICE OVERVIEW .............................................................................................................................. 3-1
3.1.1 OUT-OF-AREA SERVICES ............................................................................................................................................. 3-1
3.2 GENERAL GOVERNMENT....................................................................................................................... 3-3
3.3 FINANCE ............................................................................................................................................... 3-5
3.4 PUBLIC SAFETY ...................................................................................................................................... 3-5
3.5 COMMUNITY DEVELOPMENT ............................................................................................................... 3-8
3.6 ENGINEERING ....................................................................................................................................... 3-9
3.7 PUBLIC WORKS ................................................................................................................................... 3-10
3.8 WATER ............................................................................................................................................... 3-12
3.9 WASTEWATER .................................................................................................................................... 3-15
3.10 AIRPORT ............................................................................................................................................. 3-17
3.11 PARKS AND RECREATION .................................................................................................................... 3-18
MSR/SOI Update | City of Willits
3.12 SHARED FACILITIES, RESOURCES, AND SERVICES ................................................................................. 3-18
3.12.1 FIRE PROTECTION ..................................................................................................................................................... 3-18
3.12.2 SOLID WASTE AND RECYCLING ................................................................................................................................ 3-19
3.12.3 WILLITS SOLID WASTE DISPOSAL FACILITY OPERATIONS ....................................................................................... 3-19
3.12.4 SOLID WASTE DISPOSAL SITES AND MANAGEMENT PLAN ..................................................................................... 3-19
3.12.5 EMERGENCY SERVICES ............................................................................................................................................. 3-20
3.12.6 POOLED INSURANCE................................................................................................................................................. 3-20
3.12.7 OTHER SERVICES ....................................................................................................................................................... 3-20
3.13 DETERMINATIONS .............................................................................................................................. 3-21
3.13.1 MSR REVIEW FACTORS ............................................................................................................................................. 3-21
4 SPHERE OF INFLUENCE ................................................................................................................................. 4-1
4.1 SOI UPDATE .......................................................................................................................................... 4-1
4.1.1 EXISTING SPHERE OF INFLUENCE ............................................................................................................................... 4-1
4.1.2 COUNTY POLICIES ....................................................................................................................................................... 4-1
4.1.3 SOI STUDY AREAS........................................................................................................................................................ 4-3
4.1.4 AREA OF INTEREST DESIGNATION ............................................................................................................................. 4-3
4.1.5 PROPOSED SOI CHANGES ........................................................................................................................................... 4-4
4.1.6 POLICY CONSISTENCY ANALYSIS ................................................................................................................................ 4-4
4.1.7 DETERMINATIONS ...................................................................................................................................................... 4-2
5 REFERENCES ................................................................................................................................................. 5-1
6 ACRONYMS................................................................................................................................................... 6-1
7 ACKNOWLEDGEMENTS................................................................................................................................. 7-1
7.1 REPORT PREPARATION ......................................................................................................................... 7-1
7.2 ASSISTANCE AND SUPPORT ................................................................................................................... 7-1
8 APPENDICES ................................................................................................................................................. 8-1
8.1 APPENDIX A – OPEN GOVERNMENT RESOURCES ................................................................................... 8-1
MSR/SOI Update | City of Willits
1 INTRODUCTION
1.1 LOCAL AGENCY FORMATION COMMISSION
Local Agency Formation Commissions (LAFCos) are quasi-legislative, independent local agencies that
were established by State legislation in 1963 to oversee the logical and orderly formation and
development of local government agencies including cities and special districts. There is one LAFCo for
each county in California.
LAFCo is responsible for implementing the Cortese-Knox-Hertzberg (CKH) Local Government
Reorganization Act of 2000 (California Government Code Section 56000 et. seq.) in order to promote
orderly growth, prevent urban sprawl, preserve agricultural and open space lands, and oversee efficient
provision of municipal services.
LAFCo has the authority to establish and reorganize cities and special districts, change their boundaries
and authorized services, allow the extension of public services, perform municipal service reviews, and
establish spheres of influence. Some of LAFCo’s duties include regulating boundary changes through
annexations or detachments and forming, consolidating, or dissolving local agencies.
1.2 MENDOCINO LAFCO
The CKH Act provides for flexibility in addressing State regulations to allow for adaptation to local needs.
Mendocino LAFCo has adopted policies, procedures and principles that guide its operations. These
policies and procedures can be found on Mendocino LAFCo’s website at the following location:
http://www.mendolafco.org/policies.html.
Mendocino LAFCo has a public Commission with seven regular Commissioners and four alternate
Commissioners. The Commission is composed of two members of the Mendocino County Board of
Supervisors, two City Council members, two Special District representatives, and one Public Member-At-
Large. The Commission also includes one alternate member for each represented category.
1.3 MUNICIPAL SERVICE REVIEW
The CKH Act (GC §56430) requires LAFCo to prepare a Municipal Service Review (MSR) for all local
agencies within its jurisdiction. MSRs are required prior to and in conjunction with the update of a
Sphere of Influence (SOI).
An MSR is a comprehensive analysis of the services provided by a local government agency to evaluate
the capabilities of that agency to meet the public service needs of their current and future service area.
An MSR must address the following seven factors:
1. Growth and population projections for the affected area.
2. The location and characteristics of any disadvantaged unincorporated communities within or
contiguous to the sphere of influence.
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
Chapter 1 – Introduction Page1-1
MSR/SOI Update | City of Willits
water, and structural fire protection in any disadvantaged unincorporated communities within
or contiguous to the sphere of influence.
4. Financial ability of agencies to provide services.
5. Status of, and opportunities for, shared facilities.
6. Accountability for community service needs, including governmental structure and operational
efficiencies.
7. Any other matter related to effective or efficient service delivery, as required by commission
policy.
MSRs include written statements or determinations with respect to each of the seven mandated areas
of evaluation outlined above. These determinations provide the basis for LAFCo to consider the
appropriateness of a service provider’s existing and future service area boundary.
1.4 SPHERE OF INFLUENCE
The CKH Act requires LAFCo to adopt a Sphere of Influence (SOI) for all local agencies within its
jurisdiction. A SOI is “a plan for the probable physical boundary and service area of a local agency or
municipality as determined by the Commission” (GC §56076).
When reviewing an SOI for a municipal service provider, LAFCo will consider the following five factors:
1. The present and planned land uses in the area, including agricultural and open space lands.
2. The present and probable need for public facilities and services in the area.
3. The present capacity of public facilities and adequacy of public services that the agency provides
or is authorized to provide.
4. The existence of any social or economic communities of interest in the area if the commission
determines that they are relevant to the agency.
5. For an update of a sphere of influence of a city or special district that provides public facilities or
services related to sewers, municipal and industrial water, or structural fire protection, that
occurs pursuant to subdivision (g) on or after July 1, 2012, the present and probable need for
those public facilities and services of any disadvantaged unincorporated communities within the
existing sphere of influence.
Sphere of Influence Updates include written statements or determinations with respect to each of the
five mandated areas of evaluation outlined above. These determinations provide the basis for LAFCo to
consider the appropriateness of establishing or modifying a service provider’s SOI or probable future
boundary.
1.5 MENDOCINO LAFCO POLICIES
In addition to making the necessary determinations for establishing or modifying a SOI consistent with
the CKH Act, the appropriateness of an agency’s SOI is also based on an evaluation of consistency with
local LAFCo policies.
The following Sphere of Influence policies are from the Mendocino LAFCo Policies and Procedures
Manual, adopted November 5, 2018.
Chapter 1 – Introduction Page1-2
MSR/SOI Update | City of Willits
10.1.1 Legislative Authority and Intent
A sphere of influence is the probable 20-year growth boundary for a jurisdiction’s physical development.
The Commission shall use spheres of influence to:
a) promote orderly growth and development within and adjacent to communities;
b) promote cooperative planning efforts among cities, the County, and special districts to address
concerns regarding land use and development standards, premature conversion of agriculture and
open space lands, and efficient provision of public services;
c) guide future local government reorganization that encourages efficiency, economy, and orderly
changes in local government; and
d) assist property owners in anticipating the availability of public services in planning for the use of
their property.
10.1.2 Definitions
The Commission incorporates the following definitions:
a) an “establishment” refers to the initial development and determination of a sphere of influence by
the Commission;
b) an “amendment” refers to a limited change to an established sphere of influence typically initiated
by a landowner, resident, or agency; and
c) an “update” refers to a comprehensive change to an established sphere of influence typically
initiated by the Commission.
10.1.3 Sphere Updates
In updating spheres of influence, the Commission’s general policies are as follows:
a) The Commission will review all spheres of influences every five years for each governmental agency
providing municipal services. Municipal services include water, wastewater, police, and fire
protection services.
b) Sphere of influence changes initiated by any agency providing a municipal service shall generally
require either an updated or new service review unless LAFCo determines that a prior service review
is adequate.
c) Spheres of influence of districts not providing municipal services including, but not limited to,
ambulance, recreation, hospital, resource conservation, cemetery, and pest control shall be updated
as necessary.
10.1.4 Reduced Spheres
The Commission shall endeavor to maintain and expand, as needed, spheres of influence to
accommodate planned and orderly urban development. The Commission shall, however, consider
removal of land from an agency’s sphere of influence if either of the following two conditions apply:
a) the land is outside the affected agency’s jurisdictional boundary but has been within the sphere of
influence for 10 or more years; or
b) the land is inside the affected agency’s jurisdictional boundary but is not expected to be developed
for urban uses or require urban-type services within the next 10 years.
Chapter 1 – Introduction Page1-3
MSR/SOI Update | City of Willits
10.1.5 Zero Spheres
LAFCo may adopt a “zero” sphere of influence encompassing no territory for an agency. This occurs if
LAFCo determines that the public service functions of the agency are either nonexistent, no longer
needed, or should be reallocated to some other agency (e.g., mergers, consolidations). The local agency
which has been assigned a zero sphere should ultimately be dissolved.
10.1.6 Service Specific Spheres
If territory within the proposed sphere boundary of a local agency does not need all of the services of
the agency, a “service specific” sphere of influence may be designated.
10.1.7 Agriculture and Open Space Lands
Territory not in need of urban services, including open space, agriculture, recreational, rural lands, or
residential rural areas shall not be assigned to an agency’s sphere of influence unless the area’s
exclusion would impede the planned, orderly and efficient development of the area. In addition, LAFCo
may adopt a sphere of influence that excludes territory currently within that agency’s boundaries. This
may occur when LAFCo determines that the territory consists of agricultural lands, open space lands, or
agricultural preserves whose preservation would be jeopardized by inclusion within an agency’s sphere.
Exclusion of these areas from an agency’s sphere of influence indicates that detachment is appropriate.
10.1.8 Annexations Are Not Mandatory
Before territory can be annexed to a city or district, it must be within the agency’s sphere of influence
(G.G. §56375.5). However, territory within an agency’s sphere will not necessarily be annexed. A sphere
is only one of several factors that are considered by LAFCo when evaluating changes of organization or
reorganization.
10.1.9 Islands or Corridors
Sphere of influence boundaries shall not create islands or corridors unless it can be demonstrated that
the irregular boundaries represent the most logical and orderly service area of an agency.
10.1.10 Overlapping Spheres
LAFCo encourages the reduction of overlapping spheres of influence to avoid unnecessary and
inefficient duplication of services or facilities. In deciding which of two or more equally capable agencies
shall include an area within its sphere of influence, LAFCo shall consider the agencies’ service and
financial capabilities, social and economic interdependencies, topographic factors, and the effect that
eventual service extension will have on adjacent agencies. Where an area could be assigned to the
sphere of influence of more than one agency, the following hierarchy typically applies:
a) Inclusion within a city’s sphere
b) Inclusion within a multi-purpose district’s sphere
c) Inclusion within a single-purpose district’s sphere
Territory placed within a city’s sphere indicates that the city is the most logical provider of urban
services. LAFCo encourages annexation of developing territory (i.e., area not currently receiving
services) that is currently within a city’s sphere to that city rather than to one or more single-purpose
special districts. LAFCo discourages the formation of special districts within a city’s sphere. To promote
Chapter 1 – Introduction Page1-4
MSR/SOI Update | City of Willits
efficient and coordinated planning among the county’s various agencies, districts that provide the same
type of service shall not have overlapping spheres.
10.1.11 Memorandum of Agreements (For City Sphere Amendments and Updates)
Prior to submitting an application to LAFCo for a new city sphere of influence or a city sphere of
influence update, the city shall meet with the County to discuss the proposed new boundaries of the
sphere and explore methods to reach agreement on development standards and planning and zoning
requirements as contained in G.C. §56425. If an agreement is reached between the city and County the
agreement shall be forwarded to LAFCo. The Commission shall consider and adopt a sphere of influence
for the city consistent with the policies adopted by LAFCo and the County, and LAFCo shall give great
weight to the agreement to the extent that it is consistent with LAFCo policies in its final determination
of the city sphere.
10.1.12 Areas of Interest
LAFCo may, at its discretion, designate a geographic area beyond the sphere of influence as an Area of
Interest to any local agency. (Resolution No. 2018-19-01)
a) An Area of Interest is a geographic area beyond the sphere of influence in which land use decisions
or other governmental actions of one local agency (the "Acting Agency") impact directly or indirectly
upon another local agency (the "Interested Agency"). For example, approval of a housing project
developed to urban densities on septic tanks outside the city limits of a city and its sphere of
influence may result in the city being forced subsequently to extend sewer services to the area to
deal with septic failures and improve city roads that provide access to the development. The city in
such a situation would be the Interested Agency with appropriate reason to request special
consideration from the Acting Agency in considering projects adjacent to the city.
b) When LAFCo receives notice of a proposal from another agency relating to the Area of Concern,
LAFCo will notify the Interested Agency and will consider its comments.
c) LAFCo will encourage Acting and Interested Agencies to establish Joint Powers Agreements or other
commitments as appropriate.
(LAFCo, Nov 2018)
1.6 SENATE BILL 215
Senate Bill 375 (Sustainable Communities and Climate Protection Act) requires each metropolitan
planning organization (MPO) to address regional greenhouse gas (GHG) emission reduction targets for
passenger vehicles in their Regional Transportation Plan (RTP) by integrating planning for transportation,
land-use, and housing in a sustainable communities strategy. Senate Bill 215 (Wiggins) requires LAFCo to
consider regional transportation plans and sustainable community strategies developed pursuant to SB
375 before making boundary decisions.
Mendocino County is not located within an MPO boundary and therefore is not subject to the provisions
of SB 375. However, the Mendocino Council of Governments (MCOG) supports and coordinates the local
planning efforts of Mendocino County and the Cities of Fort Bragg, Point Arena, Ukiah, and Willits to
address regional housing and transportation needs and helps provide a framework for sustainable
regional growth patterns through the 2018 Mendocino County Regional Housing Needs Allocation
(RNHA) Plan and Vision Mendocino 2030 Blueprint Plan. MCOG is also responsible for allocating regional
Chapter 1 – Introduction Page1-5
MSR/SOI Update | City of Willits
transportation funding to transportation improvement projects consistent with the 2017 RTP for
Mendocino County.
Mendocino County and the Cities of Fort Bragg, Point Arena, Ukiah, and Willits are the local agencies
primarily responsible for planning regional growth patterns through adoption and implementation of
general plan and zoning regulations. While Mendocino County is not subject to the provisions of SB 375,
LAFCo will review applicable regional transportation and growth plans when considering a change of
organization or reorganization application.
Chapter 1 – Introduction Page1-6
WILLITS
ROAD
HEARST
R U S 1 0 1 E Y N O LD
S H
IG
H W
A Y
SH
ER
W D
CANYON
DRIVE
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VALLEY ROAD
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CENTER VALLEY ROAD
D
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EAST HILL ROAD R E D SI
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RIDGEWOOD
RD.
W
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Area of Interest 1
Area of Interest 3
SEWER PLANT RD.
HEARST WILLITS ROAD
EAST COMMERCIAL ST. D.
R
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Area of Interest 2
D.
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City of Willits Area A City of Willits Highways
Area of Interest 1 Parcels Roads
Source: This map was prepared by the Mendocino County
Division of Information Services GIS Program, April 2019. Area of Interest 2 Sphere of Influence °
N o t e : T s h h i o s u m ld a n p o i t s b n e o u t s a e s d u t r o v e d y e p te r r o m d i u n c e t a le n g d a l boundaries. Area of Interest 3 1,000 500 0 1,00 F 0 eet
2 AGENCY OVERVIEW
Table 2.1 City of Willits Profile
Agency Name: City of Willits
Phone Number: (707) 459-4601
Mailing Address: 111 E Commercial Street, Willits, CA 95490
City Hall: 111 E Commercial Street, Willits, CA 95490
Website: http://www.cityofwillits.org/
General Email: citycouncil@cityofwillits.org
Date of Formation: November 19, 1888
Agency Type: General Law City, Multiple-Service Provider
Enabling Legislation: Government Code Section 34000 et seq.
Council Meeting Schedule: 2nd and 4th Wednesday of the month at 6:30 p.m. at City Hall
2.1 HISTORY
2.1.1 FORMATION
The City of Willits (City or Willits) incorporated on November 19, 1888 and is a General Law City under
the California Constitution (LAFCo, 2015).
2.1.2 BOUNDARY
The City of Willits is located in the geographic center of Mendocino County and along the County’s main
transportation corridor of US Highway 101. The City lies within the Little Lake Valley at the edge of the
Jackson State Forest and is known as “The Gateway to the Redwoods”. The City is approximately 2.82-
square miles (1,804-acres) in size and includes two incorporated island areas or non-contiguous land
(Figure 1-1). The contiguous portion, or core, of the City boundary is approximately 2.65-square miles
(1,696 acres) in size. The two incorporated islands include city-owned property comprised of the
Municipal Airport (73-acres) located northwest of the core of the City and the Municipal Water
Treatment Plant (34-acres) located southeast of the core of the City and which is included in the City’s
3,136-acre watershed. There are no unincorporated islands within the City boundary. (LAFCo, 2015;
Willits, Nov 2018)
Until recently, a portion of the US Highway 101 corridor connecting San Francisco to Eureka traversed
the City in a north-south direction along Main Street. In 2016, Caltrans completed the Willits Bypass
project, which re-routed 6-miles of US Highway 101 to the eastern edge of the City limits and added two
interchanges located just south (Haehl Creek) and north (Quail Meadows) of the City limits. The State
Highway 20 corridor traverses the southern portion of the City in a north-south direction along South
Main Street and heads west, just past the Willits Arch, 35-miles to the City of Fort Bragg. The City is
located approximately 20 air-miles northwest of the City of Ukiah. (LAFCo, 2015; Willits, 2018c)
2.1.2.1 Boundary Changes
The most recent addition to the City’s boundary was the “Southeast Annexation” in 1986, which added
260-acres to the City and is zoned for a variety of uses. This annexation area is partially developed and
Chapter 2 – Agency Overview Page 2-1
includes the new Adventist Health Howard Memorial Hospital, which opened in 2015, and the 2006
Haehl Creek Subdivision for Bemcore Enterprises creating 58 residential parcels (Willits, Nov 2018). In
June of 2014, a 5.5-acre non-contiguous parcel that was the site of the City’s former water treatment
plant (and now in private ownership) was detached from the City as required by law. No subsequent
actions relating to City annexations, detachments, or boundary changes have occurred. (LAFCo, 2015)
2.1.3 SERVICES
The City provides a wide range of municipal services including general government, finance, public
safety, community development, engineering, public works, water, wastewater, airport, and parks and
recreation. For more information regarding these City services and other services provided by contract
or Joint Powers Authority (JPA), refer to Chapter 3.
2.2 GOVERNMENT STRUCTURE
2.2.1 GOVERNING BODY
The City operates under the Council‐Manager form of government. The City Council is the legislative
body for the City and is responsible for enacting ordinances, establishing policy, adopting and amending
the annual budget, adopting resolutions, and appointing committees. The City is governed by a five-
member City Council elected at-large to serve staggered four-year terms (Table 2.2). City Council
elections are held in November of even numbered years. City Council members are paid a stipend for
meetings attended in the amount of $200/month for the Mayor and $100/month for the remaining
Council members. The City also contributes annually to health care coverage for the Councilmembers. In
addition, out-of-County travel and other eligible expenses incurred by Councilmembers in the
performance of City-related duties are subject to reimbursement (Willits, Nov 2018). Staff support for
the City Council includes the City Manager, City Clerk, and Contract City Attorney. (LAFCo, 2015)
Table 2.2 City of Willits City Council
Title Term Expiration
Councilmember Nov 2020
Councilmember Nov 2020
Councilmember Nov 2020
Councilmember Nov 2022
Councilmember Nov 2022
Source: LAFCo, 2015; Willits, 2018c; Willits, Nov 2018.
2.2.2 PUBLIC MEETINGS
Regularly scheduled City Council meetings are held on the second and fourth Wednesday of the month
at 6:30 p.m. in the City Council Chambers at City Hall located at 111 E Commercial Street in Willits. In
accordance with the Brown Act, all meetings are open to the public and are publicly posted a minimum
of 72 hours prior to regular meetings and a minimum of 24 hours prior to special meetings at the City
Hall main entrance bulletin board, on the City’s website, and notices are emailed to anyone that has
requested such notification. City Council meetings are broadcast live on Cable Channel 3 by Willits
Community Television, Inc. (WCTV), and rebroadcast at 5:00 p.m. on Saturdays. Minutes are kept for all
public meetings and are adopted at a subsequent meeting. Currently, there is not a searchable
Chapter 2 – Agency Overview Page 2-2
document archive system on the City’s website for past City Council meeting agendas, agenda packets,
public hearing notices, meeting minutes, and adopted ordinances and resolutions. However, there is a
City Council meeting event calendar that provides online access to download agenda packets for specific
meetings starting on April 12, 2017. (LAFCo, 2015; Willits, 2018c)
2.2.3 STANDING COMMITTEES
Boards, commissions, and committees assist in carrying out various functions of local government. The
City Council also serves as the Planning Commission, the Oversight Board of the Successor Agency to the
Willits Redevelopment Agency, and the Industrial Development Authority (not currently active).
Councilmembers serve on various committees including Finance, Revitalization and Economic
Development (Revit-ED), and Water and Wastewater Systems. The 2015 Municipal Service Review
recommended the City consider appointing a separate Planning Commission to provide greater public
input and review, as well as a defined appeal process. (LAFCo, 2015)
2.2.4 PUBLIC OUTREACH
In addition to public meetings and workshops, the City conducts public outreach to help keep citizens
informed regarding current projects and overall governance of the community (see Table 2.3 below).
The City maintains a website at http://www.cityofwillits.org/, which is a helpful communication tool to
enhance government transparency and accountability. The homepage of the City’s website includes
current information such as City Hall hours and location, Councilmember and City staff contact
information, important documents available for download, updated information on current local
elections, and a reference to the County Sheriff’s Facebook page for information regarding current
emergency and safety information (Willits, 2018c). The City’s website could be enhanced to include a
searchable and chronological document archive system to post current and past meeting agendas and
agenda packets, public hearing and workshop notices, adopted meeting minutes, adopted resolutions,
adopted annual budgets, financial audit reports, fee schedules, and draft/final plans, studies, reports,
and maps. The City has hired a consultant to update and improve their website, which is scheduled to
launch in early 2019 (Willits, Nov 2018).
Table 2.3 City of Willits Online Public Outreach Opportunities
Method Link
City Website http://www.cityofwillits.org/
City Council Meetings http://www.cityofwillits.org/city-council-meetings/
Downtown Sidewalk Improvements https://willitsbypass.wordpress.com/
* Official information for the Willits Bypass and Willits Rehabilitation and Relinquishment of
Old Highway 101 from Caltrans.
Willits Municipal Airport Ells Field http://willitsairport.com/
Facebook
City of Willits https://www.facebook.com/CityofWillits
Willits Police Department https://www.facebook.com/WillitsPD
City Pool https://www.facebook.com/willitscitypool
Willits Municipal Code https://library.municode.com/ca/willits/codes
Chapter 2 – Agency Overview Page 2-3
* Interested individuals can subscribe to receive an email notification when there is an
Ordinance Update published through Municode.
Source: Willits, 2018c.
2.2.5 COMPLAINTS
The public may file complaints with the City Clerk and may provide verbal comments or complaints in
person at City Hall during business hours, Monday through Thursday from 9 a.m. to 5:30 p.m., or at the
City Council meetings during the general public comment period. (LAFCo, 2015; Willits, 2018c)
2.2.6 TRANSPARENCY AND ACCOUNTABILITY
The City has adopted the following Mission Statement:
o The City of Willits is primarily responsible for maintaining a safe, pleasant environment within the
community by providing effective delivery of public services.
o In the process of providing representatives local government, the City identifies and anticipates
concerns, problems and opportunities and takes action to address them. The City also provides a
catalyst in the development and maintenance of a well-integrated community.
o The City delivers critical public services in an efficient, professional and timely manner.
o The City is responsible for the preservation of community physical and aesthetic assets, and for the
efficient management and equitable allocation of community fiscal resources.
o Essential to accomplishing the objectives outlined above is the selection, training, motivation and
retention of highly qualified men and women as City employees.
(Willits, 2018a)
The City’s Personnel Policies and Procedures contain a general Code of Conduct (Willits, Nov 2018).
The Political Reform Act requires all state and local government agencies to adopt and promulgate a
Conflict of Interest Code pursuant to Government Code §81000 et seq.
The Political Reform Act also requires persons who hold office to disclose their investments, interests in
real property, and incomes by filing a Statement of Economic Interests (Fair Political Practices
Commission Form 700) each year pursuant to Government Code §87203.
According to AB 1234, if a local agency provides compensation or reimbursement of expenses to local
government officials, then all local officials are required to receive two hours of training on public
service ethics laws and principles at least once every two years and establish a written policy on
reimbursements pursuant to Government Code §53235.
The City complies with the above requirements (Willits, Nov 2018).
Refer to Appendix A for a brief list of educational resources regarding open government laws.
2.3 OPERATIONAL EFFICIENCY
2.3.1 MANAGEMENT AND STAFFING
The City Council appoints a City Manager to support their efforts and oversee the daily operations of the
City to ensure that the Council’s policies, programs, and priorities are implemented. The City is
Chapter 2 – Agency Overview Page 2-4
comprised of nine municipal departments including Administration, Finance, Police, Community
Development, Engineering, Public Works, Water Treatment, Wastewater Treatment, and Seasonal Parks
and Recreation. The City employs both full-time and part-time positions for a total staffing level of 53.60
Full Time Equivalent (FTE) positions in addition to 5 FTEs for Councilmembers. The City contracts for the
City Attorney position. Table 2.4 shows City staffing levels by department.
Table 2.4 City of Willits
Staffing Levels by Department
Department FTE
Administration 3.00
Finance 5.33
Police 16.94
Community Development 4.00
Engineering 4.18
Public Works 7.13
Sewer Treatment 6.00
Water Treatment 5.00
Seasonal Parks & Recreation 2.02
Total 53.60
Source: Willits, 2018a
Table 2.5 shows a comparison of City staffing levels between FY 2012-13 and FY 2018-19.
Table 2.5 City of Willits
Staffing Levels by Fiscal Year
Fiscal Year FTE
FY 2018-19 58.60
FY 2017-18 52.98
FY 2016-17 55.02
FY 2015-16 57.50
FY 2014-15 56.31
FY 2013-14 58.83
FY 2012-13 56.25
Average 56.50
The staffing number includes
5 FTEs for Councilmembers.
Source: Willits, 2018a
Figure 2-1 shows the City’s organizational chart.
Chapter 2 – Agency Overview Page 2-5
2.3.2 AGENCY PERFORMANCE
A component of monitoring agency performance is the routine evaluation of staff productivity by
tracking employee workload through regular timesheets and conducting annual written employee
performance evaluations.
All line employees are evaluated annually by their department heads. Department heads are evaluated
annually by the City Manager. The City Manager is evaluated annually by the City Council. The last City
Manager evaluation was held on June 28, 2017. An evaluation form is utilized for all evaluations and
follows prescribed steps. All employees submit detailed time sheets by job task. This is important
because employees can work in more than one department and/or perform duties tied to a specific
funding source during a pay period. All time sheets are reviewed by the City Manager and entered into
the bookkeeping system by the Finance Department.
The City Manager was tasked with a significant number of duties including City Clerk, the Human
Resources Director, the Risk Manager, and the Director of Emergency Services. Since the 2015 MSR, the
City Manager’s workload has been reduced by adding Assistant City Manager, Human Resources
Analyst, and City Clerk positions. In consultation with the City Council, the City Manager manages
employee workload and makes adjustments as necessary. The City Manager commissioned a bench-
marking study and organizational assessment in 2013. As a result of this study, the City has completed a
reorganization of City Staff to increase the efficiency of City operations.
The City-sponsored Voter Measure I for a Cannabis Industry Tax for the City was approved on the
November 6, 2018 Election and it is estimated that the City could receive annual cannabis related tax
revenue in the range of $250,000 to $400,000 (Willits, 2018b).
(LAFCo, 2015; Willits, 2017f; Willits, Nov 2018)
There are no new opportunities for the City to achieve management or operational efficiencies
identified during the preparation of this update to the City’s 2015 MSR.
2.3.3 STRATEGIC PLANNING
On August 9, 2018, the City Council held a goal-setting workshop and the following goals reflect the
most critical items, projects, and strategic initiatives resulting from that effort. Some of these tasks will
span a number of years and many of these tasks are proposed to be addressed in the FY 2018-19 Draft
Budget:
o ADA accessibility improvements
o Vacancy Ordinance
o Update flood zone maps
o Finance – developing and implementing best practices recommendations
o Develop Purchasing Policy
o Negotiations with WPOA and IBEW; key positions to be recruited include Finance Director, Public
Works Director, and Building Official
o Coordinate with Caltrans and business owners on Main Street Beautification Work and
Relinquishment Project
o Brooktrails Settlement compliance
o Keep abreast of plans for the old Frank R. Howard Memorial Hospital
o Landfill closure
Chapter 2 – Agency Overview Page 2-7
o Redesign website to improve on-line presence
o Emergency Action Plan for City dams
o Work on emergency communications tactics
o City Emergency Plan Update, including hazardous materials
o Close out underground storage tank at the Public Works Yard
o Maintain services levels around everyday operations
o Send out an RFQ and begin General Plan Update
o Interim Zoning adjustments
o Development Impact Fees
o Update Use Fees
o Work with County on annexations and Sphere of Influence
o Continue to develop groundwater resources to ensure water sustainability into the future
o Continue to upgrade 4” steel water line in the oldest sections of town
o Blosser Drainage Improvement Project
o Blosser Lane Rehabilitation Project
o Coast Street Sewer replacement
o East Valley Bridge & Commercial Bridge rehabilitation
o Local limits for wastewater
o Upgrade Maple Water Pump Station
o Seek grants for Main Street Beautification Corridor Enhancement Plan
o Targeted Economic Development Efforts to bring jobs and companies to Willits
o Targeted Economic Development Efforts for downtown businesses
o Enhance cultural arts (public art; art & music fairs)
o Improve recreational opportunities
o Create an Energy Management Plan and examine the use of renewable energy, like solar and
methane
o Create a Landscape and Lighting District to help fund Main Street Beautification and Landscaping
o Set up a recreation district for 95490
(Willits, 2018a)
2.3.4 REGIONAL AND SERVICE-SPECIFIC COLLABORATION
The City participates in regional and service-specific associations and organizations including the League
of California Cities, Mendocino Council of Governments (MCOG), Economic Development and Financing
Corporation (EDFC), Mendocino Solid Waste Management Authority (MSWMA), Mendocino Transit
Authority (MTA), and Visit Willits Tourism Board (Willits, Nov 2018).
2.3.5 GOVERNMENT RESTRUCTURE OPTIONS
Government restructure options should be pursued if there are potential benefits in terms of reduced
costs, greater efficiency, greater accountability, or other advantages to the public. The City of Willits, the
Little Lake Fire Protection District (LLFPD), and the County of Mendocino are the only municipal service
providers in the Little Lake Valley area. The County of Mendocino provides law enforcement,
transportation, and stormwater management services in unincorporated areas adjacent to the City
limits. The Brooktrails Township Community Services District (BTCSD) is a municipal service provider in
the region, but its services do not extend into the Little Lake Valley area except for mutual aid responses
and dispatched service calls for fire protection and emergency medical services. There is no
Chapter 2 – Agency Overview Page 2-8
recommendation for a reorganization of local municipal service providers in the Little Lake Valley area at
this time. To address the provision of municipal services outside the City limits, the City could consider
pursuing an opportunity to create a subsidiary district or sponsor the creation of a new independent
special district.
2.4 FINANCES
The core operations of the City are accounted for in the General Fund and include administration, public
safety, community development, public works, engineering, and community services. The Landfill
closure and remediation activities are also accounted for in the General Fund. The primary sources of
General Fund revenue are sales and use tax, General Fund overhead allocations, motor vehicle license
fees, property tax, transient occupancy tax (TOT), franchise fees, and business license tax. The City also
receives gas tax, which is dedicated to the public works department to maintain roadways and other
services. In addition, the City’s enterprise or business-type operations include water, wastewater, and
airport services. These enterprise activities are accounted for in Enterprise or Proprietary Funds and the
cost of providing enterprise services are intended to be recovered through service rates. (Willits, 2018a)
The City-sponsored Voter Measure I for the Cannabis Industry Tax for the City was approved by the
Voters in the November 6, 2018 Election and it is estimated that the City could receive annual cannabis
related tax revenue in the range of $250,000 to $400,000 (Willits, 2018b).
2.4.1 CURRENT FISCAL HEALTH
The annual budget serves as a financial planning tool and an expense control system. Expenses cannot
exceed the authorized budgeted amounts unless the budget is amended by City Council by resolution
during the fiscal year. Unused appropriations lapse at the end of the fiscal year (June 30) and are
available to be allocated in the following budget.
The City holds quarterly Finance Committee meetings and normally prepares a preliminary budget in
March of each year, which is reviewed in detail by the City Council at scheduled budget workshop
meetings. The Final Budget is then presented to the Council for adoption in June in preparation for the
new fiscal year, which begins on July 1st. However, the most recent budget preparation cycle is behind
the normal schedule. At the June 27, 2018 Regular City Council Meeting, Councilmembers adopted a
resolution authorizing continuation of municipal operations based upon the Fiscal Year (FY) 2017-18
Budget per agenda item 5e on the Consent Calendar. The City held a Budget Workshop on August 21,
2018 and adopted the Final FY 2018-19 Budget on September 20, 2018. The City’s FY 2018-19 Budget
projects operating revenues of $13,097,974 and operating expenses of $14,950,020 and includes both
General Fund and Enterprise Fund activities (Willits, Nov 2018).
Annually audited financial statements prepared by a Certified Public Accountant (CPA) serve as financial
assurance for the use of public funds. The City’s financial records are audited each year by a qualified
CPA. The most recent audit was prepared by Moss, Levy, and Hartzheim, LLP for FY 2016-17 and was
presented to the City Council on May 9, 2018.
2.4.1.1 Financial Summary
The following table (Table 2.6) provides year-end (not budget) financial information for FY 2014-15,
2015-16, and 2016-17. This table summarizes the Statement of Activities prepared by a CPA and
represents the long-term financial standing of the City based on reporting capital asset activity using the
Chapter 2 – Agency Overview Page 2-9
full accrual basis of accounting. This involves depreciation, which is a method of spreading the cost of a
capital asset over its estimated useful life, as opposed to recognizing the cost of a capital asset as an
expenditure at the date of acquisition. The City’s Capitalization Policy defines a capital asset as property,
plant, equipment, and infrastructure with an initial cost of $10,000 or greater, and depreciation is
charged to operations using the straight-line method over the estimated useful lives of the assets as
follows: buildings and improvements 30-years, vehicles 5-years, machinery and equipment 5 to 15-
years, and infrastructure 50 to 80-years (MLH, 2018). Also, refer to Figure 2-2 for the most recent
Statement of Net Position, which represents the difference between the City’s assets and liabilities.
Table 2.6 City of Willits Financial Summary
FY 14-15 FY 15-16 FY 16-17
Ending General Fund Balance $2,321,611 $2,470,229 $2,545,972
Ending Net Position $24,122,740 $26,403,548 $26,792,328
Revenue
General Revenues
Property Taxes $373,917 $392,423 $427,518
Sales and Use Taxes $2,833,771 $2,495,055 $2,451,743
Business License Taxes - $146,819 $148,698
Franchise $221,811 $307,681 $213,787
Transient Occupancy Tax - - $291,908
Other Taxes $563,878 $1,002,561 $537,156
Investment Earnings - $18,057 $42,314
Fines and Forfeitures - $4,425 $4,455
Other Revenue $882,333 $148,705 $321,069
Transfers $15,000 $15,000 $15,000
Sub-total $4,890,710 $4,530,726 $4,453,648
Program Revenues
General Government $176,323 $773,313 $491,806
Public Safety $160,749 $137,060 $245,098
Community Development - $0 $40,382
Public Works $301,261 $23,502 $106,839
Parks and Recreation $46,647 $0 $28,661
Planning - $114,167 $96,882
Community Services - $0 $0
Water Enterprise $3,997,579 $2,764,420 $2,693,891
Wastewater Enterprise $3,112,013 $2,933,363 $3,087,137
Solid Waste - $0 $0
Airport $73,120 $181,016 $106,942
Sub-total $7,867,692 $6,926,841 $6,897,638
Total Revenue $12,758,402 $11,457,567 $11,351,286
Expenses
Chapter 2 – Agency Overview Page 2-10
Table 2.6 City of Willits Financial Summary
FY 14-15 FY 15-16 FY 16-17
General Government $1,111,783 $2,025,406 $1,024,565
Public Safety $1,085,933 $2,353,044 $2,201,409
Community Development - $28,271 $21
Public Works $936,560 $799,729 $756,319
Parks and Recreation $178,655 $181,682 $212,584
Planning $101,430 $286,906 $430,246
Community Services $182,375 $175,032 $205,174
Water Enterprise $2,530,249 $1,589,737 $2,060,281
Wastewater Enterprise $3,373,594 $4,094,837 $3,148,122
Solid Waste - $57 $114
Airport $113,629 $188,870 $90,408
Total Expenses $9,618,820 $11,723,571 $10,129,243
Net Income/(Loss) $ 3,139,582 ($266,004) $1,222,043
Net Accumulated Depreciation $36,438,394 $43,997,410 $44,032,065
Source: RJR, 2016; MLH: 2017, 2018.
The following are financial highlights for FY 2016-17:
o The City’s total net position was $26,792,328 as of June 30, 2017. This was an increase of $388,780
or 1% from the prior year when prior period adjustments are taken into consideration. Of this total,
$2,214,651 was governmental net position and $24,577,677 was business-type net position.
o Government-wide revenues were $5,463,316 and were ($115,452) or 2% less than the prior year.
They include program revenues of $1,009,668 and general revenues of $4,453,648.
o Government-wide expenses were $4,830,318 and were ($1,019,752) or 17% less than the prior year.
o Business-type revenues were $5,924,228 and were $43,183 or 1% greater than the prior year. They
include program revenues of $5,887,970 and general revenues of $36,258.
o Business-type expenses were $5,298,925 and were ($574,576) or 10% less than the prior year.
o General Fund revenues were $4,350,769 and were ($12,983) lower than the prior year.
o General Fund expenditures were $4,452,217 and represented an increase of $222,073 over the prior
year.
o General Fund balance was $2,545,972 as of June 30, 2017 and increased by $75,743 or 3% from the
FY 2015-16 fund balance of $2,470,229 when prior period adjustments are taken into consideration.
(MLH, 2018)
The following are financial highlights for FY 2015-16:
o The City’s total net position was $26,403,548 as of June 30, 2016. Of this total, $1,591,536 was
governmental net position and $24,812,012 was business-type net position.
o Government-wide revenues include program revenues of $1,048,042 and general revenues of
$4,515,726, for a total of $5,563,768.
o Government-wide expenses were $5,850,070.
o Business-type program revenues, other revenue and interest were $5,896,045 while business-type
expenses were $5,873,501.
Chapter 2 – Agency Overview Page 2-11
o General Fund revenues were $4,363,752 and were $82,548 lower than the prior year.
o General Fund expenditures were $4,230,144 and represented an increase of $127,900 over the prior
year.
o General Fund fund balance was $2,455,229 as of June 30, 2016, and increased by $133,618 from the
FY 2015-16 fund balance of $2,321,611.
(MHL, 2017)
The City budgeted for a General Fund deficit in FY 2014-15 and 2015-16 and anticipated using General
Fund Reserves to cover the net loss. By year-end for both fiscal years, the City was able to reduce
expenditures and/or increase revenue to the point that the City successfully increased General Fund
Reserves during that time period. The General Fund balance increased approximately 18% from July 1,
2013 to June 30, 2016. (Willits, 2017f)
2.4.1.2 Enterprise Activities
The City’s enterprise operations include water, wastewater, and airport services. These enterprise
activities are accounted for in Enterprise Funds and the cost of providing enterprise services are
recovered through service rates. The current industry standard is to review service rates every five-years
to ensure that they accurately reflect the cost of operating enterprise funds in a self-sufficient manner.
On August 9, 2017, the City increased the water and wastewater service rates, effective September 1,
2017, based on the 2017 Water and Sewer Rate Study prepared with the assistance of Bartle Wells
Associates.
The water rate schedule includes a projection of the anticipated capital improvement costs through FY
2026-27 and is based on a two-tiered rate schedule, an annual rate increase of up to 4%, a reduced cost
to the fixed “base” charge to all meter sizes, and a proposed increase to the Fire Charges. Single family
water service is currently set at a flat monthly meter fee of $23.50 and a two-tiered usage fee of $5.79
per hundred cubic feet (hcf) for up to 600 hcf, and $8.02 per hcf for over 600 hcf. The wastewater rate
schedule includes a projection of the anticipated capital improvement costs through FY 2026-27 and is
based on incremental increases to the Wastewater Charges per EDU ranging from 4.5% - 7% increases
per fiscal year. Residential sewer service is currently set at an annual rate of $790.73 or $65.89 per
month. (Willits, 2017e; Willits, 2017a)
The water service enterprise operates at a net income. The wastewater service enterprise operates at a
deficit due to debt service interest and payments for loans and bonds used to upgrade the wastewater
treatment facility. The airport enterprise service also operates at a deficit, although the shortfall is
relatively small and has been offset by grants from federal and state agencies. In 2016 and 2017, the
airport operated at a surplus due to an increase in hangar fees adopted in 2016, new tenants at the
airport, grants, and greater operating efficiencies (Willits, 2017f). The City receives income from
emergency response operations requiring the use of the Municipal Airport for Helibase operations; for
example, the City has billed the Mendocino National Forest in the amount of $40,500 for the Eel and
Mendocino Complex Fire incidents (Willits, Nov 2018).
2.4.1.3 Fiscal Year 2018-19 Draft Budget
The information provided in this section is from the FY 2017-18 Draft Budget proposed for the August
21, 2018 City Council Budget Workshop. The General Fund revenue is projected to be $4,536,314 and is
based upon the assumptions of modest economic growth, a gradually improving real estate market, and
Chapter 2 – Agency Overview Page 2-12
increasing development activity within the City. This revenue estimate does not include revenue from
the cannabis excise tax approved by the Voters in the November 6, 2018 Election.
The General Fund expenditures are projected to be $5,508,678 and reflect the baseline on-going
operations from the prior fiscal year, plus additional funding requests from departments to increase
service levels, and restore staff positions that existed in previous years (some of which were vacant in FY
2017-18) including the filled Public Works Director and Community Development Director, the recently
filled Assistant City Planner/Code Compliance Officer (approved in FY 2017-2018), Senior Accountant,
Office Assistant 1, and Police Officer – Willits Unified School District School Resource Officer. Additional
increases in expenditures include increased costs such as utilities and insurance, and dedication of funds
to capital facilities projects and significant strategic projects such as the Willits General Plan Update.
Increased expenditures constitute an increase of $723,531 (15%) from the FY 2017-18 Adopted Budget
expenditures projection. The adopted FY 2018-19 Budget revenue and expenditure estimates for the
General Fund combine to create an initial budget deficit of $765,979, which is anticipated to be reduced
at year-end because the projected revenue is conservatively under-estimated and the projected
expense is over-estimated to allow for flexibility, and the adopted budget meets the City’s General Fund
Reserve Policy to maintain a minimum unassigned fund balance of 35%. In addition, more than half of
the projected budget deficit includes a number of carry-over projects from the prior fiscal year, one-
time purchases, and capital facility expenditures that are consistent with the City’s Reserve Policy for
appropriate or permissible expenditures of available General Fund balance. Finally, it is anticipated that
the City will collect some offsetting user fee revenues for new positions and filled vacant positions
providing services within departments that are substantially funded by user fees, particularly for
community development activities.
The FY 2018-19 Draft Budget proposes to maintain existing services, enhance service levels where
strategic, and fund critical infrastructure improvements. In moving forward, it will be important for the
City to build financial capacity for the development of a General Plan Update, a Long Range Financial
Plan, a Master Facilities Plan, a Development Impact Fee Study, a User Fee Study, Lighting and
Landscaping Assessment Districts, a Recreation District, and continue periodic Utility Rate Studies.
(Willits, 2018a; Willits, Nov 2018)
2.4.2 LONG TERM FINANCIAL CONSIDERATIONS
2.4.2.1 Reserves
Reserves for the City’s special revenue funds and enterprise funds are held in separate accounts.
However, general reserves for the City are not held in a separate account. General reserves are
accounted for in the General Fund balance, which primarily represents unrestricted reserve funds
(Willits, Nov 2018).
The following is the City’s General Fund Reserve Policy.
Reserves for Fiscal Stability, Cash Flow and Contingencies
The City will strive to maintain a minimum unassigned fund balance of at least 35% of operating
expenditures in the General Fund for fiscal stability, cash flow and contingencies. This is based on the
risk assessment methodology for setting reserve levels developed by the Government Finance Officers
Association of the United States and Canada (GFOA) in adequately addressing:
Chapter 2 – Agency Overview Page 2-13
o Revenue source stability, local disasters and other financial hardships or downturns in the local or
national economy.
o Contingencies for unseen operating or capital needs.
o Unfunded liabilities such as self-insurance, pensions and retiree health obligations.
o Dependency of other funds on the General Fund.
o Institutional changes, such as State budget takeaways and unfunded mandates.
o Cash flow requirements.
Whenever the City’s General Fund unrestricted fund balance falls below this target, the City will strive to
restore reserves to this level within five years. As revenues versus expenditures improve, the City will
allocate at least half of any operating surplus to reserve restoration, with the balance available to fund
outstanding liabilities, asset replacements, service levels restoration, new operating programs or capital
improvement projects.
Circumstances in which taking reserves below policy levels would be appropriate include responding to
the risks that reserves are intended to mitigate, such as:
o Meeting cash flow needs during the fiscal year; closing a projected short term revenue
expenditure gap; responding to unexpected expenditure requirements or revenue shortfalls;
and making investments in human resources, technology, liability reductions, economic
development and revenue base improvements, productivity improvements and other strategies
that will strengthen City revenues or reduce future costs.
o Where a forecast shows an ongoing structural gap in providing a strategic bridge to the future.
On the other hand, the City should avoid using reserves to fund ongoing costs or projected systemic
“gaps.” Stated simply, reserves can only be used once, so their use should be restricted to one-time (or
short-term) uses.
Future Capital Project Fund Balance Assignments
The Council may also commit or assign specific General Fund balance levels above the reserve target for
future development of capital projects or other long-term goals that it determines to be in the best
interests of the City.
Other Commitments and Assignments
In addition to the 35% target noted above, unrestricted fund balance levels will be sufficient to meet
funding requirements for programs or projects approved in prior years that are carried forward into the
new year; debt service reserve requirements; commitments for encumbrances; and other restrictions,
commitments or assignments required by contractual obligations, state law or generally accepted
accounting principles.
(Willits, 2017d)
2.4.2.2 Outstanding Debt
Although the City does not have long term debt related to general government activities, it does have
long term debt related to enterprise activities. Debt was acquired to make improvements to the City
water and wastewater treatment facilities. Table 2.7 shows the City’s outstanding financial obligations
based on these bonds and loans. The City will be obligated through FY 2045-46 for current debt
Chapter 2 – Agency Overview Page 2-14
payments and the payment amount will vary as payoff approaches. In addition to the water and
wastewater debt, the City incurred a long term obligation when it closed the City landfill in FY 1997-98.
Table 2.7 City of Willits Long Term Debt Obligations
FY 2016-17 FY 2017-18
Bond and Loan Liabilities
Balance Payment
Water Service Enterprise
1984 California Dept. of Water Resources Loan $483,264 $205,485
2012 Safe Drinking Water State Revolving Fund $2,965,730 $105,919
Wastewater Service Enterprise
2007 USDA Wastewater Sewer Loan A $8,044,500 $469,235
2007 USDA Wastewater Sewer Loan B $1,151,500 $66,939
2011 Wastewater Bonds $7,512,000 $329,013
2015 Wastewater Tax Compliance Certificates $3,207,585 $269,178
Total $23,364,579 $1,445,769
Source: MLH, 2018.
As a result of the Governor’s elimination of redevelopment programs state-wide in 2011, residential
loans are no longer available for low-income home improvement and construction through the
Revolving Loan Account under the Community Development Block Grant (CDBG) program. (LAFCo, 2015)
2.4.2.3 Capital Improvement Plan
The City does not have a Capital Improvement Plan (CIP). However, the City does establish a Fixed
Assets/Capital Projects 5-Year Plan in the annual budget to define capital improvement priorities.
Funding for projects is identified from various sources including: the General Fund, Street Maintenance
Fund, Sales Tax Transportation Improvement Fund, Humboldt Street and Vicinity Rehabilitation Fund,
Baechtel Road/Railroad Avenue Corridor Phase II Feasibility Study, Sewer Fund, Water Fund, and Other
Water Assets/Projects. (Willits, 2018a)
Based on the 2017 Water and Sewer Rate Study, the water and wastewater systems will require
maintenance and capital improvements over the next five-years. The City anticipates spending $4.0
million for capital improvements to the water system and $4.1 million for capital improvements to the
wastewater system. (Willits, 2017c)
Chapter 2 – Agency Overview Page 2-15
2.5 GROWTH
2.5.1 PRESENT AND PLANNED LAND USE AND DEVELOPMENT
Willits has a full range of land uses in the City, ranging from low density residential through multi-family
residential, retail and service commercial, manufacturing, public facilities, recreation, and undeveloped
properties. The 1992 General plan identified general land use categories as follows:
o Residential – 650 acres (37%)
o Commercial – 241 acres (14%)
o Industrial – 646 acres (37%)
o Public Facilities – 174 acres (10%)
o Open Space – 35 acres (2%)
As of January 2014, the State Department of Finance (DOF) estimates that there are 2,082 dwelling units
in the City, of which 1,218 (59%) are single-family units, 587 (28%) are multi-family units and 277 (13%)
are mobile homes. The current vacancy rate in the City is 7.7%.
According to the 2009 General Plan Housing Element adopted in 2014, the top ten employers in the City
are: Adventist Health Howard Memorial Hospital (260), Willits Unified School District (225), Metal/fx
Custom Manufacturing (121), Safeway Stores (107), Sparetime Garden Supply (65), Grocery Outlet (60),
City of Willits (52), Shusters Transportation & Logging, Inc. (42), and Microphor, Inc. Manufacturing (30).
The Sherwood Valley Casino (adjacent to the City limits) employs 90 people.
The City also has important local services including the Willits Branch of the Mendocino County Library
System, the North County Center of Mendocino Community College, the Mendocino County Museum,
The Skunk Train, Willits City Park, Recreation Grove Park, Willits Rodeo Grounds, Willits Center for the
Arts, the Noyo Theater, Roots of Motive Power, and two local newspapers.
The current City General Plan was adopted by the City Council in August 1992 with a planning horizon to
the year 2020. The General Plan contains goals and policies related to public safety services (police, fire,
and emergency medical services) and infrastructure (water, sanitary sewer, and storm drainage).
The General Plan evaluated properties within the existing City limits that could accommodate residential
development. Twenty-seven sites were identified for both single-family and multi-family dwellings that
could accommodate construction of an estimated 1,631 residential units. The General Plan looked at
three growth scenarios: 1.0% population growth per year; 1.7% population growth per year; and 2.5%
population growth per year. The lower the growth rate (currently 0.3% per year) the longer the time
period required to utilize all the land identified on the 27-sites. The City is in the process of seeking a
consultant to prepare a General Plan Update.
(LAFCo, 2015; Willits, Nov 2018)
2.5.2 EXISTING POPULATION AND PROJECTED GROWTH
According to California Department of Finance (DOF), the City of Willits had a population of
approximately 4,937 as of January 2014. Since 2000, the population has declined by 136 residents or
2.7%, which is attributed to an aging population and out-migration. However, the City population
increased between January 2013 and January 2014 by 33 persons, a 0.7% increase.
Chapter 2 – Agency Overview Page 2-17
The 2009 General Plan Housing Element projected a City population of 7,500 at General Plan buildout in
2020. Between 2000 and 2014, there were 69 new residential dwelling units constructed in the City (an
average of five per year) with an associated population increase of 174 (based on 2.52 persons per
household). At this rate of residential construction, the population of Willits will be approximately 5,013
in 2020.
(LAFCo, 2015)
2.6 DISADVANTAGED UNINCORPORATED COMMUNITIES
Senate Bill (SB) 244, which became effective in January 2012, requires LAFCo to evaluate any
Disadvantaged Unincorporated Communities (DUCs), including the location and characteristics of any
such communities, when preparing an MSR that addresses agencies that provide water, wastewater or
structural fire protection services. A DUC is an unincorporated geographic area with 12 or more
registered voters with a median household income (MHI) that is less than 80% of the State MHI of
$63,783, or $51,026 (USCB, 2017). This State legislation is intended to ensure that the needs of these
communities are met when considering service extensions and/or annexations in unincorporated areas.
The City of Willits has an MHI of $36,466, which is less than 80% of the State MHI of $61,632 (LAFCo,
2015). While the City MHI is 59% of the State MHI, the City does not qualify as a DUC because it is an
incorporated area. The areas surrounding Willits may qualify as a DUC, especially given the existing out-
of-area water and wastewater services currently being provided by the City. Special consideration will
be given to any DUCs affected by future annexation proposals consistent with GC §56375(8)(A) and
LAFCo Policy. The City is responsible for providing water and wastewater services. The Little Lake Fire
Protection District is responsible for providing structural fire protection services.
Pursuant to GC §65302.10(b), SB 244 also requires each City to plan for DUCs in their General Plan Land
Use Element in conjunction with adopting their Housing Element. To comply with this requirement, each
City must identify, describe, and map each island and fringe community within the City’s Sphere of
Influence that qualifies as a DUC; analyze the water, wastewater, stormwater drainage, and structural
fire protection needs or deficiencies of the DUCs; and analyze potential funding mechanisms that could
make the extension of services to the DUCs financially feasible.
Chapter 2 – Agency Overview Page 2-18
MSR/SOI Update | City of Willits
3 MUNICIPAL SERVICES
A Municipal Service Review (MSR) is a comprehensive analysis of the services provided by a local
government agency to evaluate the capabilities of that agency to meet the public service needs of their
current and future service area. The MSR determinations inform the SOI Update process and assist
LAFCo in considering the appropriateness of a public service provider’s existing and future service area
boundary. The information and analysis presented in Chapters 2 and 3 of this document form the basis
for the MSR determinations provided under Section 3.13.
3.1 SERVICE OVERVIEW
This section provides information regarding the wide range of municipal services provided by the City of
Willits including the following:
o General Government o Public Works
o Finance o Water
o Public Safety o Wastewater
o Community Development o Airport
o Engineering o Parks and Recreation
Additional municipal services are provided to City residents by other public agencies through
agreements and Joint Powers Authority (JPA) and by private businesses through service contracts, as
detailed in Section 3.12. This MSR only reviews services provided by the City.
This is the second MSR prepared for the City; the first one was adopted by the Commission on February
2, 2015. The City has undergone changes in the last few years that warrant a minor update to the MSR
and associated determinations in order to provide a reliable basis of information for evaluating the
appropriate current and future service area for the City as part of the SOI Update process.
This combined MSR/SOI Update includes information from the 2015 MSR and provides updated
information related to the three following MSR service review factors: capacity of facilities, financial
ability to provide services, and governance and accountability.
3.1.1 OUT-OF-AREA SERVICES
The City has 437 water and 117 wastewater service connections to properties located outside the City
limits (Willits, 2016). As shown on Figure 3-1, many of these out-of-agency (OAS) services are located in
the Della Avenue, Locust Street, Meadowbrook Drive, and Pineview Drive area, with the remaining
located in fringe areas outside the City limits. These OAS connections serve individual homeowners and
groups of homeowners from master meters located at the City limit boundary. The large majority of the
OAS water services were exempt from LAFCo approval pursuant to Government Code Section
56133(e)(4), which states that an extended service that a city or district was providing on or before
January 1, 2001, is exempt from LAFCo review.
Chapter 3 – Municipal Services Page 3-1
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Coordinate System: NAD 1983 StatePlane California II FIPS 0402 Feet
Projection: Lambert Conformal Conic
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Datum: North American 1983
False Easting: 6,561,666.6667
False Northing: 1,640,416.6667
Central Meridian: -122.0000
Standard Parallel 1: 38.3333
Standard Parallel 2: 39.8333
Latitude Of Origin: 37.6667
Units: Foot US Map by Pete Petersen City of Willits
MSR/SOI Update | City of Willits
The City inherited most of the OAS water customers when they acquired the private Little Lake Water
Company through eminent domain from Clifford and Katherine Horn in November of 1983 for $1.4
million. The City’s purchase of the water system was financed through Certificates of Participation, with
the final payment of $340,000 made in September of 2014. The water system was originally acquired by
the Horns from the Pacific Gas and Electric (PG&E) Company and entailed all water collection,
treatment, transmission, and distribution facilities and infrastructure. The purchase of the water system
included a water treatment plant, a 3-million gallon water storage tank, and watershed lands of
approximately 3,136-acres with Morris Lake and Dam, all timber situated on the property, and
associated permits, licenses, easements, and franchise agreements.
By agreement, the City provides wastewater treatment and disposal services to the adjacent domestic
wastewater collection system of Brooktrails Township, and provides 117 wastewater service
connections to the Meadowbrook Manor subdivision and Sherwood Valley Band of Pomo Indians
Rancheria.
(LAFCo, 2015)
The Sherwood Water Group, located along Sherwood Road between the City and Brooktrails Township,
does not have its own water supply and therefore purchases water from the City to serve approximately
25 residences. This common water system includes a 2-inch water supply line from the City, a pump
house, and a redwood water storage tank. (Willits, 2019)
3.2 GENERAL GOVERNMENT
Many of the City’s government functions are housed at City Hall, which is located at 111 East
Commercial Street, including the City Manager, City Clerk, Finance/City Treasurer, Human Resources,
Elections Official, Planning, Building Safety, and Code Enforcement. City Council Chambers are also
located at City Hall. Services available to the public at City Hall include meeting with Councilmembers
and staff, water service payments, business licenses, building permits, job applications, accounts
payable and receivable, various document requests, and filing complaints. The normal business hours at
City Hall are 9:00 a.m. to 5:30 p.m., Monday through Thursday. (LAFCo, 2015)
The City’s General Government services include Administration, Legal Counsel, Human Resources, and
Elections.
Administration
The basic functions of City Administration include:
o Coordination of legal services
o Management and coordination of all City policies, programs, and services
o Negotiation and management of contracts
o Interface with other local governments, regulatory agencies, and state and federal agencies
o Management and coordination of City fiscal and human resources
o Public and agency notices as required
o Review of correspondence received and preparation/review of correspondence sent
o Implementation of ordinances and policies
o Interaction with and response to media
o Presentations to community groups
Chapter 3 – Municipal Services Page 3-3
MSR/SOI Update | City of Willits
o Staff support to various JPA's and other intergovernmental agencies
o Revenue development, budgets and expenditure control
o Management of special projects
o Various franchise administration activities
o Coordination of economic development activities
o Risk management and insurance
o Management of City facilities
o Management of leases, agreements, etc.
o Response to citizen and community complaints
o Long range planning
o Maintenance of relationship with legislative and congressional representatives
o Other assignments established by City Council
Additional duties of City Administration include:
o Oversee the general administration of police services for the City of Willits.
o Continue to seek alternative sources to fund police services while managing the day to day budget
of the police department.
o Manage the various intergovernmental, community and local partnerships associated with
providing basic police services to the greater Willits community.
o Administer compliance requirements associated with maintaining police services for the City of
Willits.
o Coordinate update of City Emergency Plan with other City Departments.
o Continue work on establishing a Volunteer Program.
o Digitize and catalogue old crime reports for destruction, obtain authorization for destruction from
City Council, and purge by shredding, with goal of being mostly paperless.
The specific duties and responsibilities of the City Clerk include:
o Coordination of Form 700 FPPC filing
o Staff support to Council Members and Council Committees/Commissions
o Attendance at Council and Committee meetings
o Preparation of City Council agendas and minutes
Legal Counsel
The specific duties and responsibilities of the City Attorney include:
o Provision or coordination and management of defense in all litigation and hearings
o Rendering of legal opinions
o Legal support services to City departments
o Attendance at all meetings of Council, Redevelopment Agency, Planning Commission, etc.
o Preparation and/or review of various documents including demand letters, indemnification
agreements, contracts, joint powers agreements, leases, licenses and permits, policies, and
memoranda of understandings
o Other duties as assigned by City Manager
Human Resources
Chapter 3 – Municipal Services Page 3-4
MSR/SOI Update | City of Willits
The purpose of Human Resources is to provide quality services and support to the City Manager, City
Departments, employees and applicants in the areas of employee relations, employee benefits,
recruitment, retention, testing, classification/compensation, and risk management. The basic functions
of Human Resources include:
o Manage and administer all personnel programs and policies for the City and its employees
o Ensure compliance with various state and federally mandated programs including, but not limited
to, OSHA, SB198 compliance, ADA requirements, harassment and workplace violence training,
various federal and state labor code, etc.
o Manage modifications to personnel policies and procedures manual
o Conduct formal and informal negotiations with represented and unrepresented employees
o Employee-related dispute resolution
o Implementation of employee training and certification programs
o Interface with Payroll and City departments regarding application of terms and conditions of labor
agreements
Elections
The City Clerk serves as the City’s Elections Official and is responsible for:
o Coordination of municipal elections, including preparation and review of documents as mandated by
state law.
o Analysis of election correspondence.
o Preparation of resolutions.
o Coordination of County Elections Office contract to conduct consolidated elections.
o Preparation and publication of notices.
o Coordination of special or recall elections.
o Records management.
(Willits, 2018a; Willits, Nov 2018)
3.3 FINANCE
The Finance Director/City Treasurer is the Chief Financial Officer of the City and exercises general
supervision over the accounting of all departments under the direction of the City Manager and City
Council. The Finance department maintains all basic financial information. The specific duties and
responsibilities of this department include: the receipt and disbursement of all City funds, cash
management, compilation of the City budget under the direction of the City Manager, budgetary
control, payroll preparation, billing functions, coordination of annual audit, preparation of various State
and Federal reports, maintenance and improvement of data processing systems, review, approval and
payment of all claims against the City, special projects, attendance at the City Council meetings and
assistance to the various departments as required. (Willits, 2018a)
3.4 PUBLIC SAFETY
The Willits Police Department operates at the joint County of Mendocino-City of Willits Justice Center,
which is located adjacent to City Hall at 125 East Commercial Street. Services are available 24-hours a
Chapter 3 – Municipal Services Page 3-5
MSR/SOI Update | City of Willits
day, seven-days a week and normal business hours are from 8:00 a.m. to 4:00 p.m. on Monday through
Friday. (LAFCo, 2015)
As of October 2018, the City’s Police Department is staffed with one Chief of Police, three Sergeants,
one Corporal, and four Officers for a total of nine sworn Officers. The Department also employs four
Dispatcher/Records Clerks, and one Community Service Officer. In 2017, the Police Department
responded to 10,437 calls for service. As of October 2018, the Police Department responded to 9,951
calls for service with a projected total of 11,941 calls for service in 2018. Officers work many overtime
hours to maintain the existing level of service and address the volume of calls received, thus indicating
that the Officer staffing level is not sufficient. (Warnock, 2018; Willits, Nov 2018)
The City’s Public Safety services include Police Administration, Public Safety Dispatch, Field Operations,
and the State Citizens Options for Public Safety (COPS) Program.
Police Administration
The basic functions of Police Administration include:
o Direct the goals, objectives, policies, and priorities of the Police Department.
o Plan and direct Police Department personnel in preserving order, protecting life and property, and
enforcement of laws.
o Research and implement modern police management methods.
o Confer with citizens and City officials on law enforcement and public safety problems.
o Prepare and administer the Police Department budget.
o Recruit and process applicants for employment.
o Attend City Council meetings, community meetings, county, and area and state law enforcement
meetings with other public officials.
o Supervise, train, and evaluate staff.
o Manage criminal intelligence.
o Assist Director of Emergency Services.
o Personnel and risk management.
o Administration of the jail, dispatch, and records.
o Facility maintenance.
o Parking program management.
o Crime analysis/data entry.
o Payroll.
o Oversight of Arson, Narcotics and Sex Offender Registration Programs.
o Direct/conduct personnel/administrative investigations.
Public Safety Dispatch
The basic functions of Public Safety Dispatch include:
o Through radio communications, provide dispatch in response to calls for service for the Willits Police
Department, Little Lake Fire Protection District, Mendocino County Sheriff, CAL FIRE, and other City
departments.
o Answer 9-1-1 emergency calls for the City of Willits.
o Answer department business telephones.
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MSR/SOI Update | City of Willits
o Provide reception needs to citizens. Operate California Law Enforcement Telecommunications
System (C.L.E.T.S.) terminal and Computer Aided Dispatch (C.A.D.).
o Monitor persons in custody through jail camera/monitor.
o Collect bails and fines.
o Perform records functions: data entry – Alpha and CAD, process reports for submission to the
District Attorney, maintain subpoena logs for the Police Department, process police records for
submission to the Department of Justice, maintain Daily Activity and Press logs, maintain fingerprint
and identification files for arrested persons.
o Complete other duties as required including some of the duties of the supervising administrator
position.
Field Operations
The basic functions of Sworn Officers in Field Operations include:
o Respond to and investigate all types of calls for service involving criminal, civil, traffic, and medical
emergency incidents, and write reports based on the investigation of those incidents.
o Arrest criminal suspects.
o Issue citations to offending drivers.
o Collect and preserves evidence.
o Book, photograph, process, and transport prisoners to County Jail.
o Testify in court when subpoenaed.
o Appear at and provide crime prevention presentations at schools and community based
organizations.
o Attend basic and advanced training sessions to keep current on modern police tactics and methods.
o Assist other law enforcement agencies when called upon, and assist other City departments as
needed.
State COPS Program
The Citizens Options for Public Safety (COPS) is funded through a State grant program. The purpose of
the State COPS Program is to perform a wide variety of tasks to ensure that the Willits Justice Center
Temporary Holding Facility (THF) is in compliance with all applicable laws, rules, and regulations of the
State of California and the Willits Police Department. The basic functions of Community Services Officers
(CSO) and Corrections Officers (CO) in the State COPS Program include:
o Routine security, custodial, and clerical work.
o Book, search, examine, and instruct arrestees.
o Conduct the distribution of meals when necessary.
o Transport arrestees to County Jail.
o Transport arrestees to medical facilities and other facilities when necessary.
o Maintain discipline.
o Monitor and conduct visiting hours when necessary.
o Assist Field Operations by handling selected calls for service.
o Assist in the dispatch center.
o Assist in evidence room and records room when necessary.
o Perform other duties as required.
o A Level II Community Services Officer provide administrative assistance as needed.
Chapter 3 – Municipal Services Page 3-7
MSR/SOI Update | City of Willits
(Willits, 2018a)
3.5 COMMUNITY DEVELOPMENT
The City’s Community Development services include Planning, Building Safety, and Code Compliance.
Planning
The purpose of Planning is to provide professional services and information in four functional areas of
day-to-day operations, current planning, long-range planning, and regional planning. The basic functions
of Planning are related to the four service areas as follows:
A. Day-to-day operations involve interaction with the general public, developers, consultants, and
public officials on planning matters, which include: Responding to questions in the field, in the
office, or over the telephone, promoting the managed growth of the community, meeting and
working with other organizations and jurisdictions, attending public meetings and workshops to stay
aware of programs and policy development, presenting staff recommendations at public meetings,
administration of budgets and grants, and other duties as assigned.
B. Current planning operations involve researching issues concerning zoning, zone text amendments,
general plan amendments, annexations, subdivisions, minor land divisions, lot line adjustments,
variances, conditional use permits, planned unit developments, environmental reviews, and other
minor permits, processing land use applications by conducting field checks, coordinating reviews
with the Technical Advisory Committee, and writing staff reports with legal findings, presenting staff
recommendations and findings on planning matters to the Planning Commission/City Council,
reviewing site plans, landscape plans, and building plans for zoning compliance, writing, editing, and
presenting draft ordinances to the Planning Commission/City Council, writing and editing minutes of
public meetings.
C. Long-range planning operations involve researching issues concerning population, housing, land use
(including the Municipal Service Review and other issues before LAFCO and MCOG), economics, and
transportation, information collection and analysis, developing specific plans, working on special
studies, including monitoring projects and consultants, and promoting public participation.
D. Regional planning includes staff support to Caltrans Main Street Relinquishment Project
Development Team, to MCOG in developing the Regional Transportation Plan Update,
Transportation Overall Work Program, the Regional Housing Needs Plan, and Countywide Capital
Improvement Plan, and the Blueprint planning effort for Mendocino County and to the Willits
Chamber of Commerce and EDFC in developing and implementing local economic development
strategies.
Building Safety
The basic functions of Building Safety include:
o Enforce building codes and municipal code regulations; perform duties as Flood Plain Administrator
and Health and Safety Officer.
o Coordinate building and safety related activities.
o Interface with other City departments regarding future developments.
o Coordinate with all interdepartmental agencies with regard to policies and procedures.
Chapter 3 – Municipal Services Page 3-8
MSR/SOI Update | City of Willits
o Provide plan checks and issue building permits.
o Perform onsite inspections and assist in resolving technical questions relating to various code
requirements.
o Maintain Building and Safety files for department reference and public information.
o Attend meetings as required for City Council, Planning Commission and Technical Advisory
Committee.
o Provide technical staff assistance.
o Investigate complaints of building, housing and zoning violations in conjunction with Code
Enforcement.
o Issues notices and orders, prepare policies, procedures, studies, reports, and code changes. Prepare
and administer department budget.
Code Compliance
The purpose of Code Compliance is to provide comprehensive and competent information, services and
programs associated with the enforcement of those City Ordinances under the purview of the
Community Development Department. The basic functions of Code Compliance include:
o Continue the development of written procedures for initiating, investigating, processing, resolving
and documenting code enforcement cases
o Respond to citizen inquiries, complaints and information requests relating to potential Municipal
Code violations
o Initiate appropriate investigative procedures including property inspections to determine the nature
of potential code violations
o Explain the pertinent codes, their purpose, how they will be enforced and the steps necessary for
gaining compliance
o Work with appropriate agencies to abate abandoned vehicles on private and public property
o Work with appropriate agencies to abate hazardous or blighted conditions on public or private
property
o Work with the City Attorney to prepare cases for legal action and testify in court proceedings
o Maintain files of all documents related to each code enforcement case
(Willits, 2018a)
3.6 ENGINEERING
The Engineering Department serves the engineering related needs of other City departments. This work
includes engineering, construction management, inspection, and contract administration for projects
initiated by departments within the City. Collectively, the Engineering Department is fully capable of
assisting with all phases of project development, from developing plans, specifications, and cost
estimating to construction inspection and management. When specialized engineering or other outside
services are required, the department participates in the selection and supervision of contracted
professional services. The Engineering Department is also responsible for mapping & analysis of city
utilities and infrastructure, locating and enforcing the City’s right-of-way, performing deed research, and
reviewing community initiated construction plans, Boundary Line Adjustments, and legal descriptions.
(Willits, 2018a)
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MSR/SOI Update | City of Willits
3.7 PUBLIC WORKS
The Public Works Department operates at the City’s Corporation Yard located at 380 East Commercial
Street and this facility includes an administrative office. Regular office hours are from 8:00 a.m. to 4:30
p.m. on Monday through Friday. Public access to the Public Works administrative office is from
Commercial Street located behind the Public Library and can be difficult to find. (LAFCo, 2015)
The Public Works services include Administration, Operations and Equipment, Park Maintenance,
Building Maintenance, Traffic Safety Operations, Gas Tax Street Administration, Street Maintenance,
Storm Drain Maintenance, and Transportation Sales Tax Improvement Program.
Administration
Public Works Administration administers and directs the Public Work Department and prepares the
annual departmental budget. Participation in staff meetings, City of Willits Council Meetings, Technical
Advisory Committee (TAC), and other various meetings is required.
This division manages the City’s Public Works projects with duties such as preparation of RFP’s,
administration of outside contracts, development of project specifications, development and
management of project scheduling and funding, management of the public bidding process, and some
project inspection during construction. Project management also requires the development and
preservation of positive working relationships with other City departments as well as with outside
agencies.
Public Works Administration is also responsible for various community needs such as the issuance of
encroachment permits, including review and inspection, participation in the acknowledgement and
resolution of Citizen Reports; and the administration and technical support for the Willits Community
Pool and Willits Unified School District. This department serves as a funding mechanism for the County
of Mendocino Animal Control and Weed Abatement contracts. Additionally, Public Works
Administration acts as the lead public agency for the administration, oversight, and monitoring of the
REMCO facility, as required by the Consent Decree, including remedial investigation, feasibility study,
IRA, work plans, and for the duties and expenditures related thereto.
Operations and Equipment
Public Works Operations is responsible for maintaining the City’s infrastructure and buildings including:
maintenance and support to water and sewer departments, airport buildings, grounds, and fuel system,
Public Works buildings and grounds, City Hall and Community Center buildings and grounds, arch
inspection and maintenance, holiday decorations installation and removal.
Public Works Operations is also responsible for overseeing vehicle and equipment repairs, including
processing purchase orders, ordering parts, scheduling repairs and safety inspections, and reviewing
operating costs. The using funds or departments are charged a sum to recover the cost of personnel,
fuel and oil, and vehicle maintenance.
Park Maintenance
The Public Works Parks Department is responsible for the maintenance of the City’s parks, including
grounds and buildings, electrical repairs, graffiti removal, tree trimming, tree removal, painting,
vandalism repair, plumbing repairs, restroom supplies, playground equipment, skate park,
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MSR/SOI Update | City of Willits
baseball/soccer grounds, fences, parking areas and the irrigation system from City well. This department
also support for community activities which utilize City parks traffic control, garbage collection, etc.
Building Maintenance
Public Works Building Maintenance coordinates maintenance activities with other departments and
outside agencies, orders and maintains inventory of parts and supplies, is responsible for cleaning
schedules, coordinates Community Center activities and schedules, manage all related building
maintenance contracts, and performs other duties as required.
Traffic Safety Operations
The Traffic Safety Department oversees and administers the City’s traffic safety program. Basic functions
include assistance with the engineering and design of projects, vegetation management for sight
distance and sign visibility, repair and replacement of traffic and street signs, painting of pavement
markings, such as curbs, crosswalks, stop bars, railroad crossings, and traffic lane stripping. This
department communicates traffic safety concerns directly with Caltrans and assists with the
development and engineering review of existing and proposed traffic control devices. Grant applications
and other funding applications are developed and filed with appropriate federal, state and local offices.
The Traffic Safety Department also provides traffic control for parades including Frontier Days and
Homecoming.
Gas Tax Street Administration
The Street Administration Department oversees and administers all Gas Tax funded departments. Gas
Tax revenues are the funding mechanism for City wide street lights. Basic functions include scheduling
street maintenance projects, such as grading, pothole patching, brush clearing, storm drain projects,
engineering review and implementation of the City’s Pavement Management Program. Public Works
engineering drawings and specifications are prepared and reviewed. RFPs are administered for outside
engineering contracts storm damage projects, etc. This department provides contract administration,
construction engineering and project inspection for Public Works projects, working closely with MCOG
to secure street rehabilitation funding.
Street Maintenance
The Street Maintenance Department is responsible for the maintenance and repair of City streets and
sidewalks, including pothole patching, section patching, chip sealing, dust control, tree trimming safety,
sight distance and sweeping of City streets, US Highway 101, and State Highway 20. The street crew
coordinates work with other departments to maintain City streets in a safe drivable condition to
reduce/limit City’s liability exposure.
Storm Drain Maintenance
The Storm Drain Maintenance Department is responsible for the clearing of debris from storm drain
grates, catch basins and drainage channels, construction and replacement of storm drains and catch
basins, coordination of storm drain rehabilitation projects, contract administration and project
inspection.
Transportation Sales Tax Improvement Program
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This Department funds projects from the City Transportation Sales Tax revenues (0.5% approved in
2003). Projects include local streets and roads maintenance, rehabilitation, reconstruction and
construction, including sidewalks, curbs and gutters, ADA accessibility, and drainage facilities. Funds are
applied to local street projects and administrative expenses such as Board of Equalization contract costs,
account maintenance fees, and fiscal audit costs.
(Willits, 2018a)
3.8 WATER
The City owns, operates, and maintains a public water system including water supply facilities, a Water
Treatment Plant (WTP), and distribution infrastructure. The City’s water system is classified as a Large
Water System because it has more than 500 connections and is under the jurisdiction of the State Water
Resources Control Board (SWRCB) Division of Drinking Water. The City’s Water Department is
responsible for the water enterprise service.
The City’s water system serves 1,817 (82%) residential customers and 400 (18%) non-residential
customers for a total of 2,217 water customers (Willits, 2017c). Of the total, there are 437 (20%) water
customers located outside the City limits and 1,780 (80%) water customers located within the City
(Willits, 2016). The City’s water system also serves 51 fire customers, which are defined as providing fire
protection for commercial and industrial buildings (Willits, 2017c; Willits, Nov 2018).
Through an agreement executed in November of 1995, the City provides water and wastewater services
to the Sherwood Valley Band of Pomo Indians Rancheria located southwest of the City limits, which
includes residential units, a community center, and the Sherwood Valley Casino. This agreement
provides for the water needs of up to 50 residential units or their functional equivalent. (LAFCo, 2015)
The City’s water supply is a combination of surface water from Davis Creek and groundwater from the
Elias Replacement Well. Davis Creek is a tributary to Outlet Creek, which is tributary to the Eel River. The
City stores water along Davis Creek at Morris Reservoir with 726 acre-feet (AF) capacity and Centennial
Reservoir with 635 AF capacity. The watershed area for Davis Creek upstream from Morris Dam is 4.9
square miles (3,136 acres). (LAFCo, 2015; Willits, Nov 2018)
The City’s WTP is located adjacent to Morris Dam, has a capacity of 3.3 million gallons per day (MGD),
and utilizes alternative filtration technology and an upflow clarifier process to produce treated water.
The City has five water storage tanks, with a total capacity of 4.711 million gallons (MG), including: a 3.0
MG tank installed in 1980, a 1.5 MG tank and clear well installed in 1989 (both adjacent to the
treatment plant), a 0.125 MG tank on Locust Street installed in 1993, a 0.043 MG tank on Laurel Street
installed in 1977, and a 0.043 MG tank on Berry Hill installed in 1980. There are eight pressure zones
within the City’s water distribution system. (LAFCo, 2015)
The City has taken the following corrective actions to meet drinking water standards: completely
upgraded the Water Treatment Plant in 2015, added a third filter and a 220,000-gallon pre-treatment
upflow solids contact clarifier, lined the 3 MG main water storage tank in 2016, and replaced 3,400-feet
of 10-inch steel pipe with 12-inch ductile iron and C-900 piping in 2009 and 2016 (Willits, Nov 2018).
On October 17, 2014, the SWRCB issued the City a compliance order which determined that the City did
not have a reliable supply of water to serve its customers due to the drought conditions and senior
water right demands. The order allowed the City to serve existing customers, but prohibited new service
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connections. It also required the City to secure a reliable long-term supply of water. This order by the
SWRCB was rescinded at the end of November 2014 based on further information provided by City Staff
to the SWRCB that addressed their concerns. (LAFCo, 2015)
On August 9, 2017, the City Council approved full-time use of the Elias Replacement Well to supplement
the City's surface water supply. Groundwater is now a regular water supply to the City’s water system,
instead of being limited to emergency situations. A Source Capacity Analysis prepared for the City by
GHD consultants specified a maximum well capacity of 800 gallons per minute (gpm); however, with
head-loss, friction, and overcoming system pressure, the well pump is a limiting factor. The City
routinely pumps this groundwater well at a production rate of 330 gpm and proposes not to exceed a
total annual use of 400 AF (131 MG). The City is currently evaluating potential enhancements to this
groundwater system including changing the configuration and increasing the pump size. The Elias
Replacement Well offers a consistent high quality water source that is not prone to seasonal water
quality issues like surface water sources. (Willits, 2017b; Willits, Nov 2018)
Based on a water supply planning study prepared by West Yost and Associates in 2006, the City’s water
demand was 886 AF per year, of which 565 AF per year was for residential use. Based on 2,245 water
service connections at that time, the average water usage was 154 gallons per person per day. Between
1994 and 2002, the WTP pumped an average of 445 MG per year (1.22 MGD). In 2011, the WTP
produced 270 MG per year (0.74 MGD). Based on a City-estimated population of 8,062 served at the
time, the average water usage was 92 gallons per person per day. (LAFCo, 2015)
The City’s annual metered water consumption between July 2015 and June 2016 was 257,350 hundred
cubic feet (CCF) or 192.5 MG. The City’s projected annual water demand is approximately 200 MG or
614 AF. The City currently has 2,931 Equivalent Domestic Units (EDU) of water service provided within
and outside the City limit. (Willits, 2017c)
With the City’s 330 gpm groundwater well providing a regular supplement to the City’s existing surface
water supply, the City now has the ability to serve an additional 460 EDUs (16%), based on the
assumption that a single family home uses 230 gallons of water per day. (Herman, 2018)
In the case of wildfire disaster, the best-case scenario for the total amount of water supply available
from the City’s water system in a 24-hour period is 1,387.05 AF (452 MG) based on full surface water
storage (1,361 AF), groundwater pumping capacity (1.46 AF), WTP capacity (10.13 AF), and full water
storage tanks (14.46 AF). Due to the unpredictable nature of wildfire, the water system facilities and
infrastructure (WTP, pumps, tanks, piping, etc.) may not be fully functional in this type of an emergency.
Chapter 14-90 of the Willits Municipal Code addresses drought conditions and provisions for
implementing a Water Shortage Emergency Plan. The last time the City declared a state of drought
emergency was in 2014. (LAFCo, 2015)
The Water Enterprise services include Water Administration, Water System Maintenance, Groundwater
Plant Operations, Water Plant Operations, and Water Engineering.
Water Administration
This department is responsible for compliance with laws and regulations relating to the water system,
such as reporting, data storage and correspondence with California Department of Public Health,
Division of Safety of Dams, Department of Forestry and Department of Water Resources. Staff assigned
to the Water Administration Department maintain American Water Works Association training and
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certification programs, oversee mandated water quality testing, reporting and public notification
functions. This division assures that proposed changes in the system and treatment facilities meet the
needs of the community and comply with all regulatory agencies requirements. Water Administration
staff also assist water customers and contractors. Administrative tasks include: assisting with program
administration, preparing correspondence on behalf of the Water Department, contract administration
for water related professional services contracts, preparing and transmitting regulatory agency reports,
purchasing, record keeping, and file maintenance. Staff participates in the Technical Advisory
Committee, Water Resources Committee, and Council meetings. This department is also responsible for
long range planning, including researching and preparing project proposal documents, such as requests
for proposals (RFP), technical reports, proposal packets and preparing Council reports for water related
projects. It also includes the preparation of the annual Water and Capital Improvement Budgets.
Water System Maintenance
The Water System Maintenance Department is responsible for the operation and maintenance of water
lines, pump stations, tanks, leak detection, utility locating, pipeline replacement, fire hydrants, system
flushing, construction liaison, inspection of all pipeline and service installations, valve exercising
program, maintenance of easements, emergency response, coordination with water billing staff,
notifications, service termination and restoration, 24-hour on-call service, data storage, meter reading
and reporting, installation of meters and customer shut-off valves and related components, cross
connection control program and corrosion control.
Groundwater Plant Operations
The Groundwater Treatment Plant Operations Department is responsible for the operation and
maintenance of the groundwater treatment plant and associated wells.
Water Plant Operations
The Water Plant Operations Department is responsible for the operation and maintenance of the water
treatment plant and watershed. Tasks for this department include: process monitoring and adjustment,
chemical laboratory analysis and treatment strategy, instrumentation calibrations, installation and
repair, filter and clarifier inspection and servicing, disinfection systems, chemical storage, handling and
application, map file system, computer systems, cathodic protection systems, report generation,
disaster response, lake and dam operation and maintenance, lake level and stream releases, algae
control, pumps, tanks, forestry management, tree planting, fire protection program, security, fence, sign
and road maintenance, review of plans and specifications, liaison with engineering. Generate Annual
Consumer Confidence Report. Conditions require operators to respond quickly, safely and decisively in
rapidly changing conditions with knowledge of treatment demands and options in emergency situations.
Operators provide continuous coverage by remaining on call 24 hours a day, 7days a week. Operators
are also responsible for trouble-shooting processes, doing complex mathematical calculations, and
staying abreast of state and federal regulations and plan accordingly.
Water Engineering
This division is a component of the Engineering Department. It is responsible for the production of plans
and specifications for water related projects. Staff also conducts reviews consultant produced
engineering drawings and specifications.
(Willits, 2018a)
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3.9 WASTEWATER
The City owns, operates, and maintains a public wastewater system including wastewater collection
infrastructure, the recently upgraded Wastewater Treatment Plant (WWTP), and water reclamation
facilities. The City’s Wastewater Department is responsible for the wastewater enterprise service.
The City’s wastewater system serves an estimated total population of approximately 8,600 people
including: 5,000 located in the City limits, 3,300 located in the Brooktrails Township Community Services
District, 200 located in the Meadowbrook Manor Sanitation District, and 100 in the Sherwood Valley
Band of Pomo Indians Rancheria.
The City provides wastewater service outside the City limits by agreement. The City has provided
wastewater treatment and disposal services to the Brooktrails Township Community Services since
1967, and 117 wastewater service connections to the Meadowbrook Manor Sanitation District since
1970 and the Sherwood Valley Band of Pomo Indians since 1989.
The City’s WWTP is located in the northeast corner of the City at the end of Sewer Plant Road via North
Lenore Avenue and East Commercial Street and the northerly portion of the treatment plant area is
located outside the City limits. The City’s wastewater system includes a sewage collection system
consisting of approximately 22-miles of gravity-fed sewer mains ranging in size from 4-inches in
diameter to 24-inches in diameter and one lift station and 450 manholes. The WWTP also includes
associated reclamation and disposal facilities. From October 1 through May 14, treated wastewater is
discharged from Discharge Point 003 to Outlet Creek, downstream of the confluence of Broaddus Creek
and Baechtel Creek, consistent with the City’s NPDES permit #CA0023060 from the North Coast Regional
Water Quality Control Board (RWQCB), and from May 15 through September, and all other times
seasonally appropriate, treated wastewater is recycled via irrigation on adjacent pasture lands (Willits,
2019).
The original secondary aeration treatment plant dates from 1975. Subsequent upgrades included
headworks with grit removal, two extended aeration basins, a circular clarifier, a chlorine contact
chamber, and dechlorination capability. That facility was designed to treat an average dry weather flow
(ADWF) of 1.3 MGD and peak flows up to 3.0 MGD. However, the City experienced wet weather flows
exceeding secondary treatment capability due to Inflow and Infiltration (I&I) and utilized up to five
holding basins with a capacity of 16 MG to capture the overflow. The City was operating under North
Coast Regional Water Quality Control Board (RWQCB) Order No. R1-2001-71. Between January 2000 and
May 2006, the City was fined $21,000 related to effluent discharge violations (Willits, Nov 2018).
In response to Statewide General Waste Discharge Requirements issued in 2006, and a Supplemental
Report of Waste Discharge submitted by the City in 2009, the City proposed to upgrade its WWTP to
include enhanced secondary-level treatment of wastewater. Construction of the upgraded WWTP
included septage receiving stations prior to the existing headworks, extended aeration/activated sludge
processes with nutrient removal, ultraviolet (UV) disinfection, and enhanced effluent polishing within a
new 30-acre treatment wetland.
In July of 2010, the North Coast RWQCB issued Order No. R1-2010-0017 establishing new waste
discharge requirements as well as reclamation requirements for the City. The Regional Board also
required relocation of the discharge point on Outlet Creek, prohibited discharge of treated effluent
between May 15th and October 30th of each year, set new limitations on biochemical oxygen demand
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(BOD), total suspended solids (TSS), pH, nitrogen, and total coliform, placed requirements for land
disposal of treated effluent, and specified standard provisions and additional monitoring requirements.
In October 2015, the North Coast RWQCB issued the current waste discharge requirements and master
reclamation permit under Order No. R1-2015-0029 which will expire on November 30, 2020. The
enhanced secondary-level treatment WWTP was completed in 2013 and has a design discharge capacity
of 7.0 MGD and a permitted average monthly flow of 4.0 MGD (Willits, Nov 2018). The City requested
that permitted flow be limited to 4.0 MGD based on projected needs through 2025. The treatment plant
currently treats an average of 0.65 MGD dry weather flow (without I&I) and 1.20 MGD wet weather
flow.
The City and the Brooktrails Township Community Services District (BTCSD) entered into an agreement
on September 11, 1967 for treatment and disposal of BTCSD wastewater at the City’s WWTP. This
agreement has been amended over time. Contract amendment No. 2 in 1975 granted BTCSD an
exclusive right to dispose of 0.16 MGD of effluent and a subsequent contract amendment in 2014
increased the allowable volume of effluent from BTCSD to 0.49 MGD. BTCSD contributes approximately
30% of the effluent treated at the City’s WWTP.
In 2007, the City commenced construction of improvements to the WWTP, which included new
headworks and metering facilities. In 2010 the City began the second phase of WWTP improvements,
which included the construction of treatment wetlands for storage, polishing, and discharge of treated
effluent, which was completed in 2012. In 2010, BTCSD filed a lawsuit against the City seeking, among
other things, declaratory relief regarding wastewater accounting methods and allocation of operating
costs and annual audits. The City filed a cross complaint against BTCSD to recover certain costs and
expenses incurred by the City related to the WWTP improvement project.
(LAFCo, 2015)
Per the contract terms, BTCSD agreed to reimburse the City for costs allocated to BTCSD based on the
ratio of total flow entering the City’s treatment plant; the cost allocation was carried over from previous
years. On April 6, 2015, the City and BTCSD settled the lawsuit stipulating a new cost allocation to BTCSD
of $22,000 per month beginning July 1, 2015 in addition to 36% of the bond payments. (MLH, 2018)
The Wastewater Enterprise services include Sewer Administration, Sewer Maintenance, Sewer Plant
Operations, Sewer Engineering, and Septage Receiving.
Sewer Administration
This department provides administrative support to the Sewer Department. Administrative tasks
include: assisting with program administration, preparing correspondence on behalf of the Sewer
Department, contract administration for sewer related professional services contracts, preparing and
transmitting regulatory agency reports, purchasing, record keeping, and file maintenance. Staff
participates in the Technical Advisory Committee, Sewer Task Force Committee, and Council meetings.
This department is also responsible for long range planning, including researching and preparing project
proposal documents, such as RFPs, technical reports, proposal packets and preparing Council reports for
sewer related projects. It also includes the preparation of the annual Sewer and Capital Improvement
Budgets.
Sewer Maintenance
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This department maintains and repairs the City sewer collection system. This work includes: inspection,
cleaning, and repair of sewer pipelines. This department is also responsible for the implementation and
enforcement of the Inflow and Infiltration I&I Program, Fats Oils and Grease (FOG) Program, Flow
Monitoring Program, and Wastewater Discharge Program. Staff responds and resolves sewer problems,
including emergency overflows. Staff also performs lift station maintenance, inspects new pipeline
construction and marks sewer facilities for Underground service Alert.
Sewer Plant Operations
This department is responsible for the operation and maintenance of the City’s sewer plant and
reclaimed water irrigation, sludge thickening & dewatering, compost mixing and disposal systems.
WWTP operators conduct laboratory testing as defined by regulatory agencies. This department is also
responsible for the disinfection and disposal of effluent water as defined by the City’s NPDES permit.
Operators respond to all sewer plant alarms and emergencies. Operators also maintain plant grounds
and equipment.
Sewer Engineering
This department is a component of the Engineering Department and responsibilities include:
o Preparing and reviewing engineering plans, specifications, construction engineering, and providing
inspection for projects.
o Securing permit approval from outside agencies including Caltrans, Mendocino County Department
of Public Works, Fish & Wildlife, Regional Water Quality Control Board, and Army Corps of
Engineers.
o Preparing sewer line and appurtenances standard details, specifications, and infiltration and inflow
(I&I) analysis.
Septage Receiving
This department is responsible for providing a NPDES compliant point of receipt for wastewater trucked
in from the City’s outlying areas. The volume of wastewater is metered, and the fees collected for
receipt of the wastewater pay for a portion of the overall costs of the Sewer Enterprise Fund. This
department is also responsible regulating septage haulers and reporting to state and regional
authorities.
(Willits, 2018a)
3.10 AIRPORT
The City owns the Willits Municipal Airport (FAA LID O28), also known as Ells Field, which is managed
under contract by Mulligan Aviation. This public airport facility is located on 76-acres approximately 3-
miles northwest of the City. The airport began private operations in the 1960s by the Deerwood
Corporation as a destination for flights from Oakland to prospective buyers of parcels in the adjacent
Brooktrails Vacation Village subdivision known today as Brooktrails Township. The Airport property was
donated to the City in 1964. (LAFCo, 2015)
The Airport is used for General Aviation and recreation-oriented flights. Facilities at the airport include a
single 3,000-foot runway (16-34), 23 hangars on-site for rent and 25 tie-downs available for $5.00 per
night, lights for night operations, a 24-hour self-serve fueling station, and the Pilot Cave facility which
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includes a pilot’s lounge, restrooms, showers, kitchen, and outdoor picnic tables. REACH Air Medical
Services has a helicopter for medical transport services at the Municipal Airport. (LAFCo, 2015; Willits,
Nov 2018)
The Airport Manager represents the interests of the airport to the City, Federal Aviation Administration,
and Cal Trans Aeronautical Division. The duties and responsibilities of the Airport Manager include:
o Producing required reports and managing grant obligations.
o Managing the airport fuel facility for the City, including inventory and sales of fuel and maintenance
and testing as required by the fuel supplier.
o Inspecting and maintaining airport facilities for the City, including buildings, hangars, runways,
taxiways, and lighting systems.
o Reporting airport facility conditions and repair requirements to the City and performing basic
repairs.
o Working with the City, volunteers, and CAL FIRE crews to maintain airport grounds.
o Promoting airport facilities and related Willits attractions to the community and visiting pilots.
(Willits, 2018a)
3.11 PARKS AND RECREATION
The City operates and maintains a park system that includes two family parks with playground
equipment, three neighborhood parks, four baseball diamonds, one soccer field, four tennis courts, one
3-acre open use field, and one skate park. Park and recreation facilities are maintained by the Public
Works Department. (LAFCo, 2015)
During the summer months (June to August) the City funds full-time use, and during September and
October part-time use, of the community pool for recreation purposes including swimming lessons and
water aerobics. A fee is charged to the public and used to partially offset the maintenance, utilities, and
other costs of operating the pool. A number of seasonal employees are hired each year, including a Pool
Manager, Assistant Pool Manager, Swim Instructors, and Lifeguards, to staff and supervise the use of the
pool. Since 2012 the pool has been open additional hours for private swim lessons and water aerobics.
(Willits, 2018a; Willits, Nov. 2018)
3.12 SHARED FACILITIES, RESOURCES, AND SERVICES
The City works cooperatively with other service providers to deliver services more effectively or
efficiently by sharing public facilities, resources, and/or service delivery responsibility when feasible.
This section provides information regarding municipal services provided to City residents by other public
agencies through agreements and Joint Powers Authority (JPA) and by private businesses through
service contracts.
3.12.1 FIRE PROTECTION
The Little Lake Fire Protection District (LLFPD) is 239.4 square miles in size and provides fire protection
services to the City of Willits and the surrounding Little Lake Valley area. Fire protection services to the
Brooktrails Township subdivision are provided by Brooktrails Township Community Services District. In
1964, the Little Lake Volunteer Fire Department was established to serve the area immediately adjacent
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to the City of Willits. In 1974, the City of Willits Fire Department joined the Little Lake Volunteer Fire
Department to create the LLFPD.
The LLFPD provides the following services: structural fire protection, emergency medical services to an
Emergency Medical Technician (EMT)/First Responder level, rescue and extrication, first responder for
hazardous materials incidents, fire prevention, and wildland fire protection. Ambulance service is also
provided to the Willits area by Verihealth, Inc. which is located at 1135 S. Main St in Willits (Willits, Nov
2018).
The LLFPD operates two fire stations. The Main Station is located at 74 E Commercial Street in Willits
and the Sub-station is located at 1575 Baechtel Road in Willits. LLFPD has an ISO rating of 4 within the
City of Willits and in adjacent areas with water hydrants, a Rural ISO rating of 8 in outlying areas within
5-miles of a fire station, and a Rural ISO rating of 10 outside the 5-mile limit from a fire station. Within
the City of Willits and along major roads, water supply for firefighting is supplied by the City water and
hydrant system; there are 298 fire hydrants on the City water system. However, in rural subdivisions
there are few or no hydrants available. Water for fire protection in portions of LLFPD outside the City is
provided by one 4,000-gallon water tender, one 2,000-gallon tactical water tender, on-board tanks on
each engine, and other available water supplies such as ponds, creeks, swimming pools, and cisterns.
More information regarding the LLFPD is available in the Multi-District Fire Protection Services Sphere of
Influence Update adopted on May 7, 2018 and at the following website: https://www.littlelakefire.org/.
(LAFCo: 2015, May 2018)
3.12.2 SOLID WASTE AND RECYCLING
The City contracts with Solid Wastes of Willits, Inc. (SWOW) for collection, transportation, disposal, and
recycling of garbage, refuse, and rubbish. SWOW pays a franchise fee to the City as the service provider.
Curbside pickup for both garbage and recycling occurs Monday through Friday depending on the
location within the City. In addition, SWOW maintains a recycle center at the Willits Transfer Station
located at 350 Franklin Street. Recyclables are accepted at no charge and may include: newspapers,
cardboard, office paper, food and beverage glass, steel cans, plastic food and beverage containers, and
aluminum cans. Yard waste is picked up on Fridays with an alternating schedule between areas located
west and east of the former US Highway 101 corridor. (LAFCo, 2015)
3.12.3 WILLITS SOLID WASTE DISPOSAL FACILITY OPERATIONS
The City and the County of Mendocino have entered into a Solid Waste Disposal Facility Operations
Agreement for the purpose of joint ownership, maintenance, and operation of the solid waste landfill
serving the City and certain unincorporated areas. Per the contract terms, the City has complete control
of and authority over the administration, operation, and maintenance of the landfill and the City and
County equally share the costs associated with the landfill including the purchase of equipment and
closure/post-closure costs. (MLH, 2018)
3.12.4 SOLID WASTE DISPOSAL SITES AND MANAGEMENT PLAN
The City is a member of the Mendocino Solid Waste Management Authority which consists of three
Mendocino County cities and the County of Mendocino and was created for the purpose of (a) siting,
licensing, developing, constructing, maintaining, and operating disposal sites and sanitary landfills, and
(b) preparing and implementing a solid waste management plan. (MLH, 2018)
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3.12.5 EMERGENCY SERVICES
The City is a member of the Mendocino Emergency Services Authority which consists of all four
Mendocino County cities and the County of Mendocino and was created for the purpose of coordinating
disaster and other emergency preparedness planning and recovery programs, training employees and
volunteers, administering disaster recovery programs, and other related activities. (MLH, 2018)
3.12.6 POOLED INSURANCE
The City is a member of the Redwood Empire Municipal Insurance Fund (REMIF) which is a group of
Northern California cities that participate in an agreement to provide themselves with various levels of
liability, property, and workers’ compensation insurance. (MLH, 2018)
3.12.7 OTHER SERVICES
Below are additional examples of the City’s interagency collaborative arrangements:
o The City’s Police Department is the Public Safety Answering Point (PSAP) for emergency (9-1-1) calls
within the City and in the surrounding area. The Police Department coordinates with the Mendocino
County Sheriff’s Office, the California Highway Patrol, the Little Lake Fire Protection District, and
CALFIRE.
o The City’s Police Department provides dispatch services for the Little Lake Fire Protection District.
o A School Resource Officer position is staffed by the City’s Police Department for the Willits Unified
School District.
o The City, in conjunction with the Willits Unified School District, operates a summer swim program at
the Community Pool on the Willits High School campus.
o The City leases a portion of the Corporation Yard to the Mendocino Transit Authority (MTA) for
parking public buses.
o The City contracts with the Mendocino County Information Services Division for all computer
hardware and software technology repairs, upgrades, and maintenance including all network
computers, internet, email, servers, copiers, desktops, laptops and documentation.
(LAFCo, 2015; Willits, 2018a)
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3.13 DETERMINATIONS
This section presents the required MSR determinations pursuant to California Government Code
§56430(a) for the City of Willits.
3.13.1 MSR REVIEW FACTORS
3.13.1.1 Growth
Growth and population projections for the affected area
1. As of January 2014, the Department of Finance (DOF) estimated the population of Willits was 4,937.
2. Since 2000, the population of Willits has declined by 136 residents or 2.7%. However, between
January 2013 and January 2014, the City added 32 persons, a 0.7% increase.
3. Population growth for the City is projected to be a small increase to 5,013 by 2020, based on the
historical average of five new dwelling units constructed per year.
4. The City’s wastewater system serves approximately 8,600 persons; the City (population 5,000),
Brooktrails Township Community Services District (population 3,300), Meadowbrook Manor
Sanitation District (population 200), and the Sherwood Valley Rancheria (population 100).
5. The current City General Plan was adopted in 1992 and has a planning horizon ending in 2020. The
City is in the process of seeking a consultant to prepare a General Plan Update.
6. The City of Willits has land use authority within incorporated areas and Mendocino County has land
use authority within unincorporated areas of the Little Lake Valley area. The City and the County
make land use decisions based on their respective General Plans and Zoning Regulations.
3.13.1.2 Disadvantaged Unincorporated Communities
The location and characteristics of any disadvantaged unincorporated communities within or contiguous
to the sphere of influence
7. The median household income (MHI) for the City of Willits is $36,466, which is 59% of the State
MHI. While the City MHI is less than 80% of the State MHI, the City does not qualify as a
disadvantaged unincorporated community (DUC) because it is an incorporated area. The areas
surrounding Willits may qualify as a DUC. Special consideration will be given to any DUCs affected by
future annexation proposals consistent with GC §56375(8)(A) and LAFCo Policy.
3.13.1.3 Capacity of Facilities and Adequacy of Services
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
8. The City provides a wide range of municipal services including general government, finance, public
safety, community development, engineering, public works, water, wastewater, airport, and parks
and recreation. The City owns the Willits Municipal Airport, which is managed under contract by
Mulligan Aviation. The City contracts with Solid Wastes of Willits, Inc. (SWOW) for solid waste
services and recycling. The Little Lake Fire Protection District provides fire protection services to the
City and the surrounding Little Lake Valley area.
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MSR/SOI Update | City of Willits
9. The City has 437 water service connections to properties located outside the City limits. The City
provides wastewater treatment and disposal services to the adjacent domestic wastewater
collection system of Brooktrails Township, and provides 117 wastewater service connections to the
Meadowbrook Manor subdivision and Sherwood Valley Band of Pomo Indians Rancheria located
outside the City limits. The Sherwood Water Group purchases water from the City for a common
water system serving approximately 25 residences.
10. The City’s water system serves 2,217 customers. The City’s water supply is a combination of surface
water from Davis Creek, including Morris Reservoir (726 acre-feet) and Centennial Reservoir (635
acre-feet), and groundwater from the Elias Replacement Well (400 acre-feet). The City’s WTP has a
capacity of 3.3 million gallons per day and the City has five water storage tanks with a total capacity
of 4.711 million gallons. The City’s projected annual water demand is approximately 200 MG (614
acre-feet) and the City currently has 2,931 Equivalent Domestic Units (EDU). The City’s 330 gpm
groundwater well has allowed the City to serve an additional 460 EDUs.
11. Although not required because the City has less than 5,000 water connections, the City should
consider developing an Urban Water Management Plan (UWMP) for the 2015 cycle of the State
Water Resources Control Board. The UWMP can evaluate future water needs, long-term supply,
drought response, and identification of new water sources.
12. The new WWTP has a design discharge capacity of 7.0 MGD; however the City requested that
permitted flow be limited to 4.0 MGD based on projected needs through 2025. The treatment plant
currently treats an average of 0.65 MGD dry weather flow (without I&I) and 1.20 MGD wet weather
flow.
13. Inflow and infiltration (I&I) into the City’s wastewater collection system still occurs but is no longer a
significant problem. The City has a program to systematically eliminate the major sources of I&I. The
City also has a low-interest loan program that will allow property owners to take out loans from the
City to pay for repairs to private sewer laterals.
14. On April 6, 2015, the City and BTCSD settled the lawsuit stipulating a new cost allocation to BTCSD of
$22,000 per month beginning July 1, 2015 in addition to 36% of the bond payments.
15. As of October 2018, the City’s Police Department was staffed with nine sworn Officers, four
dispatcher/records clerks, and one Community Service Officer. In 2017, the Police Department
responded to 10,437 calls for service. As of October 2018, the Police Department responded to
9,951 calls for service with a projected total of 11,941 calls for service in 2018. Officers work many
overtime hours to maintain the existing level of service and address the volume of calls received,
thus indicating that the Officer staffing level is not sufficient.
16. There are no significant capacity issues or major infrastructure needs for the City that need to be
addressed within the timeframe of this MSR.
17. It is suggested that the City prepare a Capital Improvement Plan that identifies current and long-
term City facility and equipment needs, including upgrades, renovations, and major maintenance,
capital improvements and purchases, and facility expansions, and identifies potential revenue
sources for addressing those capital needs.
3.13.1.4 Financial Ability of Agency
Financial ability of agencies to provide services
18. The City prepares an annual Budget and has annual Independent Financial Audits prepared by a
qualified Certified Public Accountant.
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19. The City budgeted for a General Fund deficit in FY 2014-15 and 15-16 and anticipated using General
Fund Reserves to cover the net loss. By year-end for both fiscal years, the City was able to reduce
expenditures and/or increase revenue to the point that the City successfully increased General Fund
Reserves during that time period. The General Fund balance increased approximately 18% from July
1, 2013 to June 30, 2016.
20. Based on the FY 2016-17 Audit, General Fund revenues were $4,350,769 and were $12,983 lower
than FY 2015-16, General Fund expenditures were $4,452,217 and were $222,073 higher than FY
2015-16, and the General Fund balance was $2,545,972 and increased by $75,743 or 3% from the FY
2015-16 fund balance of $2,470,229 when prior period adjustments are taken into consideration.
21. The City’s Budget for FY 2017-18 was $11.2 million and included both General Fund and Enterprise
Fund activities. Enterprise Fund activities account for almost half of the FY 2017-18 Budget and are
primarily funded by charges for services. The City’s General Fund has no long term debt but
Enterprise Funds have $23 million in long term debt with payments of $1.4 million in FY 2017-18.
22. The water enterprise operates at a net income. The wastewater enterprise operates at a deficit due
to debt service interest and payments for loans and bonds used to upgrade the wastewater
treatment facility. On August 9, 2017, the City increased the water and wastewater service rates
effective September 1, 2017. The City anticipates spending $4.0 million over five-years for capital
improvements to the water system and $4.1 million over five-years for capital improvements to the
wastewater system. In 2016 and 2017, the Municipal Airport operated at a surplus due to an
increase in hangar fees adopted in 2016, new tenants at the airport, grants, and greater operating
efficiencies.
23. The City-sponsored Voter Measure I for the Cannabis Industry Tax for the City was approved by the
Voters in the November 6, 2018 Election and it is estimated that the City could receive annual
cannabis related tax revenue in the range of $250,000 to $400,000.
3.13.1.5 Shared Facilities
Status of, and opportunities for, shared facilities
24. The City has an agreement with Mendocino County to share the cost of operations and closure of
the Willits Solid Waste Disposal Facility.
25. The City is a member of the Mendocino Solid Waste Management Authority which consists of three
Cities and Mendocino County formed for the purpose of siting solid waste disposal facilities and
solid waste management planning.
26. The City is a member of the Mendocino Emergency Services Authority which consists of all four
Cities and Mendocino County and was created for the purpose of coordinating disaster and other
emergency preparedness planning and recovery programs.
27. The City is a member of the Redwood Empire Municipal Insurance Fund (REMIF) which is a group of
Northern California cities that participate in an agreement pooled insurance including liability,
property, and workers’ compensation.
28. The City’s Police Department is the Public Safety Answering Point (PSAP) for emergency (9-1-1) calls
within the City and in the surrounding area. The Police Department coordinates with the Mendocino
County Sheriff’s Office, the California Highway Patrol, the Little Lake Fire Protection District, and
CALFIRE.
29. The City’s Police Department provides dispatch services for the Little Lake Fire Protection District.
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MSR/SOI Update | City of Willits
30. A School Resource Officer position is staffed by the City’s Police Department for the Willits Unified
School District.
31. The City, in conjunction with the Willits Unified School District, operates a summer swim program at
the Community Pool on the Willits High School campus.
32. The City leases a portion of the Corporation Yard to the Mendocino Transit Authority (MTA) for
parking public buses.
33. The City contracts with the Mendocino County Information Services Division for all computer
hardware and software technology repairs, upgrades, and maintenance including all network
computers, internet, email, servers, copiers, desktops, laptops and documentation.
3.13.1.6 Accountability, Structure, and Operational Efficiencies
Accountability for community service needs, including governmental structure and operational
efficiencies
34. The City of Willits is a General Law City and operates under the Council‐Manager form of
government. The City is governed by a five-member City Council elected at-large to serve staggered
four-year terms. Regularly scheduled City Council meetings are held on the second and fourth
Wednesday of the month at 6:30 p.m. in the City Council Chambers at City Hall located at 111 E
Commercial Street in Willits. All meetings are open to the public and are publicly posted prior to the
meeting in accordance with the Brown Act.
35. The City Council also serves as the Planning Commission and the Oversight Board of the Successor
Agency to the Willits Redevelopment Agency. The 2015 Municipal Service Review recommended the
City consider appointing a separate Planning Commission to provide greater public input and review,
as well as a defined appeal process.
36. The Willits City Council is very receptive to public input and new ideas, and may benefit from
establishing a Task Force to evaluate City operations, practices, and activities. A Task Force has not
been established to date; however, the City conducted an organizational analysis in 2013 which
resulted in a number of organizational changes.
37. The City Manager was tasked with a significant number of duties including City Clerk, the Human
Resources Director, the Risk Manager, and the Director of Emergency Services. Since the 2015 MSR,
the City Manager’s workload has been reduced by adding Assistant City Manager, Human Resources
Analyst, and City Clerk positions.
38. The City is comprised of nine municipal departments including Administration, Finance, Police,
Community Development, Engineering, Public Works, Water Treatment, Wastewater Treatment,
and Seasonal Parks and Recreation. The City employs both full-time and part-time positions for a
total staffing level of 53.60 Full Time Equivalent (FTE) positions. A review of City staffing levels did
not identify any instances where government functions are over-staffed. On the contrary, the City of
Willits operates in a very efficient manner with employees who are capable of accomplishing
different tasks in a seamless manner.
39. The City works cooperatively with other service providers to deliver services more effectively or
efficiently by sharing public facilities, resources, and/or service delivery responsibility when feasible.
There are no new opportunities for the City to achieve management or operational efficiencies
identified during the preparation of this update to the City’s 2015 MSR. There is no
recommendation for a reorganization of local municipal service providers in the Little Lake Valley
area at this time. To address the provision of municipal services outside the City limits, the City
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MSR/SOI Update | City of Willits
could consider pursuing an opportunity to create a subsidiary district or sponsor the creation of a
new independent special district.
40. The City maintains a website at http://www.cityofwillits.org/, which is a helpful communication tool
to enhance government transparency and accountability. The City has hired a consultant to update
and improve their website, which is scheduled to launch in early 2019.
41. The public may file complaints with the City Clerk and may provide verbal comments or complaints
in person at City Hall during business hours, Monday through Thursday from 9 a.m. to 5:30 p.m., or
at the City Council meetings during the general public comment period.
3.13.1.7 Other Service Delivery Matters
Any other matter related to effective or efficient service delivery, as required by commission policy
42. There are no other matters related to service delivery required by Mendocino LAFCo Policy.
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MSR/SOI Update | City of Willits
4 SPHERE OF INFLUENCE
LAFCo prepares a Municipal Service Review (MSR) prior to or in conjunction with the Sphere of Influence
(SOI) Update process. An SOI Update considers whether a change to the SOI, or probable future
boundary, of a local government agency is warranted to plan the logical and orderly development of
that agency in a manner that supports CKH Law and the Policies of the Commission. The MSR and
required determinations for the City of Willits are presented in Chapters 2 and 3 of this document and
form the basis of information and analysis for this SOI Update. This chapter presents the SOI Update and
required determinations pursuant to California Government Code §56425(e) for the City of Willits.
4.1 SOI UPDATE
4.1.1 EXISTING SPHERE OF INFLUENCE
There is no information available to indicate that a Sphere of Influence (SOI) has been adopted by
Mendocino LAFCo for the City of Willits. The City’s 1992 General Plan Planning Area is limited to the
then (and current) City limits. The current SOI for the City is considered to be coterminous with the
contiguous or core portion of the current City jurisdictional boundary. (LAFCo, 2015)
4.1.2 COUNTY POLICIES
Mendocino County’s 2009 General Plan established a policy framework for the Willits area in Chapter 6
Community Specific Policies. The following four goals, eleven policies, and five actions are specific to the
Willits area, and supplement the countywide goals and policies included elsewhere in the County’s
General Plan.
Willits Community Goals
Goal CP-W-1: Coordinate planning and development of the areas around Willits in a manner that
complements the City of Willits’ role as the local center for services and civic life.
Goal CP-W-2: Plan for the development of the Brooktrails Township through implementation of the
Brooktrails Township Specific Plan and resolution of infrastructure issues.
Goal CP-W-3: Adopt planning policies to govern new development opportunities along the State Route
101 Willits Bypass route east of the City in advance of development demand.
Goal CP-W-4: Maintain the rural character of Little Lake Valley using “smart growth” principles including
defining a stable limit to urban growth and avoiding a proliferation of rural ranchettes.
Willits Community Area Policies
Policy CP-W-1: Places and facilities that create a sense of community should be established in the Willits
area.
Policy CP-W-2: The County will work with the City of Willits to create a unified community encompassing
urban development both within and adjacent to the City.
Policy CP-W-3: Residential uses in the unincorporated area should be focused in areas south of the City
of Willits and in the Brooktrails Township (as supported by necessary water and sewer service
connections).
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Policy CP-W-4: The County supports expanded and diversified economic ventures for the Willits area.
Potential strategies include:
o Accommodate State Route 20 and 101 tourist-based traffic by establishing, expanding and
redeveloping commercial uses suitable to meet the needs of residents and visitors.
o Support operation of the Skunk Train as a significant tourist feature for the Willits area.
Policy CP-W-5: The County shall seek to maximize the compatibility of the US 101 Willits Bypass with
community identity and the protection of economic ventures and agricultural resources.
Policy CP-W-6: The County shall actively plan for changes in circulation and associated effects that will
accompany the US 101 Willits Bypass. The following concepts shall be included in the County’s plans for
the Willits area when the Bypass is complete:
o Maintain land use patterns as they existed in 2007 around the Bypass interchanges unless
contiguous to the City.
o Bypass ramp design should provide convenient access to downtown commercial areas while
minimizing impacts on residential neighborhoods.
o New development should be focused on the western side of the Bypass.
o The side of the Bypass closest to the City should develop first before permitting development to
the “outside” of the Bypass.
o Create substantial green space buffers around the Bypass ramps reflecting a rural perspective
and mitigating the visual impacts of new development where allowed.
o Avoid locating highway commercial uses (gas stations, fast food, convenience store, etc.) within
green space buffers around the Bypass ramps.
Policy CP-W-7: The County supports improvements to the State Route 20 and 101 corridors in the
suburban areas around the Willits City limits.
Action Item CP-W-7.1: Work with Caltrans to evaluate and support measures to reduce traffic hazards
associated with pedestrian crossings of US 101.
Action Item CP-W-7.2: Establish public parking areas with easy access to, but substantially screened
from, State Route 20 and 101.
Policy CP-W-8: Minimize the visibility of parking areas, utilities and similar improvements.
Policy CP-W-9: Highway visitor travel should be accommodated through visually enhanced parking and
streetscapes.
Policy CP-W-10: The County shall collaborate with the City of Willits in providing services, housing and
economic opportunity to support a healthy community.
Action Item CP-W-10.1: Work with the City of Willits in planning for the efficient extension of water and
wastewater services and annexation to facilitate compact development patterns, efficient service
delivery, and affordable housing, consistent with County goals.
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MSR/SOI Update | City of Willits
Action Item CP-W-10.2: Negotiate an equitable property tax revenue sharing agreement between the
County and the City of Willits to facilitate annexations, ensuring that the County receives credit for the
transfer of its regional housing needs allocation.
Policy CP-W-11: The County will support the Brooktrails Township Community Services District in its
efforts to implement the Brooktrails Township Specific Plan, including the District’s efforts to resolve
major services and infrastructure problems and reduce the risk of wildfire in the urban-rural interface.
Action Item CP-W-11.1: Organize an annual meeting with the City of Willits and the California
Department of Forestry and Fire Protection to ensure continuity of action and address planning issues of
mutual concern.
(Mendocino County, 2009)
4.1.3 SOI STUDY AREAS
There is an existing residential neighborhood located directly south of the City limits and accessed from
Meadowbrook Drive, Crest Drive, and Pineview Drive that receives water and wastewater services from
the City.
There is a large area located directly south of the City limits and accessed from Della Avenue, Locust
Street, Holly Street, and Popular Avenue developed with a mixture of residential and rural residential
parcels that receives water and/or wastewater services from the City.
There are two areas adjacent to the new highway interchanges located north and south of the City limits
created from the Caltrans US Highway 101 Bypass project with the potential for new commercial and
residential development and associated municipal service needs.
4.1.4 AREA OF INTEREST DESIGNATION
LAFCo’s Area of Interest Policy, per Section 10.1.12, provides for the designation or identification of
unincorporated areas located near to, but outside the jurisdictional boundary and established SOI of a
city or district, in which land use decisions or other governmental actions of another local agency
directly or indirectly impact the subject local agency.
An Area of Interest designation serves as a compromise approach that recognizes situations involving
challenging boundary or municipal service delivery considerations, or for which urbanization may be
anticipated in the intermediate or long range planning horizons. It is a tool intended to enhance
communication and coordination between local agencies.
An Area of Interest designation is most helpful when the county and city or district can reach agreement
that development plans related to LAFCo designated Areas of Interest will be treated the same as if
these areas were within the city or district SOI boundary regarding notification to and consideration of
input from the city or district.
Three of the above SOI Study Areas, including the Della Avenue/Holly Street parcels and the parcels
adjacent to the two new Highway 101 interchanges, have been designated as an Area of Interest as
shown on Figure 1-1. These areas are consistent with many of the Mendocino County General Plan goals
and policies noted in Section 4.1.2 and are identified on the Sphere map to further emphasize and
support the City in requesting consideration from the County regarding discretionary land use
entitlements or other development plans with the potential to impact City lands, facilities, and/or
services.
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MSR/SOI Update | City of Willits
4.1.5 PROPOSED SOI CHANGES
The first SOI Study Area described above is proposed to be added to the City’s SOI boundary, and
eventually the City’s jurisdictional boundary. This SOI Study Area encompasses an existing residential
neighborhood shown as Area A on Figure 1-1 and contains 61 parcels and adjacent roadways for a total
of 12 acres.
Area A - List of Assessor Parcel Numbers (APNs):
038-450-10 038-440-09 038-450-04 038-440-10
038-450-11 038-440-41 038-450-05 038-440-11
038-440-42 038-440-44 038-450-15 038-440-14
038-440-43 038-450-09 038-440-45 038-440-29
038-440-46 038-450-19 038-450-02 038-440-22
038-440-47 038-440-23 038-440-18 038-440-15
038-440-37 038-440-16 038-440-33 038-450-13
038-440-36 038-440-24 038-440-34 038-450-14
038-440-02 038-440-30 038-440-21 038-450-06
038-440-03 038-450-18 038-440-31 038-450-16
038-440-05 038-450-08 038-440-17 038-440-20
038-440-06 038-450-07 038-440-32 038-440-13
038-440-01 038-440-12 038-440-25 038-440-28
038-440-04 038-450-17 038-440-35
038-440-07 038-450-12 038-450-01
038-440-08 038-450-03 038-440-19
4.1.6 POLICY CONSISTENCY ANALYSIS
Area A is developed with single-family residences and no extension of utility service is needed since this
neighborhood already receives water and wastewater service from the City; currently three parcels are
undeveloped and two parcels do not receive water service.
Area A is zoned Suburban Residential (SR) by Mendocino County, and the SR zone allows for variable
density. For SR zoned property served by water and wastewater, the minimum parcel size is 6,000
square feet which is consistent with the City’s Single Family Residential (R1) zone. All parcels in Area A
are under 12,000 square feet in size and do not have the potential to allow further subdivision.
Area A does not contain any agricultural and open space lands.
Area A is contiguous to the City’s existing southern boundary. While the addition of Area A to the City
SOI will create a peninsula, this irregular boundary represents the most logical and orderly shape based
on the existing land use pattern of the neighborhood and municipal services provided to the area.
Further, Area A is located directly west of Area of Interest (AOI) 1 and together they form a regular
boundary. AOI 1 will be considered for inclusion in the City’s SOI once it becomes further developed to a
consistent residential density through land division and/or is proposed for annexation to the City.
The addition of Area A to the City’s SOI is not anticipated to affect the City’s current operating level
because the City already serves this area.
The SOI Update is consistent with Mendocino LAFCo Policies (refer to Section 1.5 for more information).
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4.1.7 DETERMINATIONS
It is recommended that the Commission amend the existing coterminous SOI for the City of Willits to
add Area A, containing 61 parcels and adjacent roadways for a total of 12 acres, to the City’s SOI
boundary. The following statements have been prepared in support of this recommendation.
4.1.7.1 Land Uses
The present and planned land uses in the area, including agricultural and open space lands
The City of Willits has a history of commercial development along the former US Highway 101 corridor
and industrial development on outlying parcels within the City limits. The Brooktrails Township
subdivision of approximately 6,605-parcels is located northwest of the City. The City is located in the
Little Lake Valley area with a visual backdrop of wooded ridgelines and is primarily surrounded by
agricultural lands, undeveloped properties, and rural-scale development. The City of Willits provides a
variety of urban land uses ranging from suburban residential to multi-family residential, retail and
service commercial, manufacturing, public facilities, and recreation. The primary land uses for
unincorporated areas adjacent to the City of Willits are agricultural, forest, rangelands, and Variable
Residential including suburban and rural. The Sherwood Valley Band of Pomo Indians Rancheria is
located southwest of the City limits and includes residential units, a community center, and the
Sherwood Valley Casino. The City of Willits has land use authority within incorporated areas and
Mendocino County has land use authority within unincorporated areas of the Little Lake Valley area. The
City and the County make land use decisions based on their respective General Plans and Zoning
Regulations.
4.1.7.2 Need for Facilities and Services
The present and probable need for public facilities and services in the area
The City provides a wide range of municipal services including general government, finance, public
safety, community development, engineering, public works, water, wastewater, airport, and parks and
recreation. The City owns the Willits Municipal Airport which is managed under contract by Mulligan
Aviation. The City contracts with Solid Wastes of Willits, Inc. (SWOW) for solid waste services and
recycling. The Little Lake Fire Protection District (LLFPD) provides fire protection services to the City and
the surrounding Little Lake Valley area and has a coterminous sphere.
The City has 437 water and 117 wastewater service connections to properties located outside the City
limits. The City provides wastewater treatment and disposal services to the adjacent domestic water
collection systems of Brooktrails Township, Meadowbrook Manor, and Sherwood Valley Band of Pomo
Indians Rancheria.
The City and LLFPD are the only two municipal service providers in the Little Lake Valley area. The
Brooktrails Township Community Services District (BTCSD) is a municipal service provider in the region,
but its services do not extend into the Little Lake Valley area except for mutual aid responses and
dispatched service calls. There is no MSR recommendation for a reorganization of local municipal service
providers in the Little Lake Valley area at this time.
The two new highway interchanges created north and south of the City limits from the Caltrans US
Highway 101 Bypass project have the potential for new commercial and residential development and
associated municipal service needs.
Chapter 4 – Sphere of Influence Page 4-2
MSR/SOI Update | City of Willits
The City’s residents, visitors, and the areas located outside the City limits that are currently receiving
City services will continue to need the public services provided by the City.
4.1.7.3 Capacity of Facilities and Adequacy of Services
The present capacity of public facilities and adequacy of public services that the agency provides or is
authorized to provide
As determined in the MSR prepared for the City of Willits, the City has adequate facilities, personnel,
finances, and equipment to meet current and limited future growth demands for public services within
the next five years.
4.1.7.4 Communities of Interest
The existence of any social or economic communities of interest in the area if the commission
determines that they are relevant to the agency
There are at least three social or economic communities of interest that have been identified in the
Willits area that are relevant to the City.
The Brooktrails Township subdivision located one-mile northwest of the City and which already receives
wastewater service from the City.
The Sherwood Valley Band of Pomo Indians Rancheria, including residential units, a community center,
and the Sherwood Valley Casino, located directly southwest of the City and which already receives water
and wastewater services from the City.
The two new highway interchanges created north and south of the City limits from the Caltrans US
Highway 101 Bypass project have the potential for new commercial and residential development and
associated municipal service needs. It will be important to monitor new development occurring in these
areas and the potential financial implications and other impacts to the City, as the primary municipal
service provider, and the City’s ability to continue to provide services to the Little Lake Valley area.
4.1.7.5 Disadvantaged Unincorporated Communities
The present and probable need for those public facilities and services of any disadvantaged
unincorporated communities within the existing sphere of influence
The median household income (MHI) for the City of Willits is $36,466, which is 59% of the State MHI.
While the City MHI is less than 80% of the State MHI, the City does not qualify as a disadvantaged
unincorporated community (DUC) because it is an incorporated area. The areas surrounding Willits may
qualify as a DUC. Special consideration will be given to any DUCs affected by future annexation
proposals consistent with GC §56375(8)(A) and LAFCo Policy.
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MSR/SOI Update | City of Willits
5 REFERENCES
Herman, Scott. April 27, 2018. City of Willits Utilities Superintendent. Personal Communication
(Telephone).
Hotels.com, L.P.. 2018. Search for Hotels in Willits, California. [Online]. Available at:
https://www.hotels.com/de1423357/hotels-willits-california/. Accessed August 7, 2018.
LAFCo, County of Mendocino. November 5, 2018. Policies & Procedures Manual. [Online]. Available at:
http://mendolafco.org/wp-content/uploads/2018/11/FINAL-Adopted-Mendo-LAFCo-PP-Manual-
2018-1.pdf. Accessed December 13, 2018.
LAFCo, County of Mendocino. May 7, 2018. Multi-District Fire Protection Services Sphere of Influence
Update. [Online]. Available at: http://mendolafco.org/wp-content/uploads/2018/05/Multi-District-
Fire-SOI-Update-Adopted-FINAL-1.pdf. Accessed August 24, 2018.
LAFCo, County of Mendocino. January 4, 2016. Policies & Procedures Manual. [Online]. Available at:
http://mendolafco.org/documents/Policies%20and%20Procedures%20Adopted%20January%20201
6.pdf. Accessed December 29, 2017.
LAFCo, County of Mendocino. February 15, 2015. City of Willits Municipal Service Review. [Online].
Available at: http://mendolafco.org/wp-content/uploads/2016/08/2015-2-15-Adopted-Willits-MSR-
Complete-1.pdf. Accessed June 26, 2018.
Mendocino County. August 2009. Mendocino County General Plan Chapter 6 Community Specific
Policies.
Moss, Levy & Hartzheim, LLP (MLH). April 30, 2018. City of Willits Annual Financial Report Fiscal Year
Ended June 30, 2017. Culver City, California.
Moss, Levy & Hartzheim, LLP (MLH). March 31, 2017. City of Willits Annual Financial Report Fiscal Year
Ended June 30, 2016. Culver City, California.
R. J. Ricciardi, Inc. (RJR). March 17, 2016. City of Willits Basic Financial Statements June, 30 2015. San
Rafael, California.
Warnock, Scott. May 15, 2018. City of Willits Chief of Police. Personal Communication (Email).
Willits, City of. January and April 2019. City Response to Administrative Draft from the Local Agency
Formation Commission of Mendocino County in preparation for the Municipal Service Review and
Sphere of Influence Update.
Willits, City of. November 2018. City Response to Administrative Draft from the Local Agency Formation
Commission of Mendocino County in preparation for the Municipal Service Review and Sphere of
Influence Update.
Chapter 5 – References Page 5-1
MSR/SOI Update | City of Willits
Willits, City of. August 21, 2018 (2018a). City of Willits Proposed Budget Workshop Fiscal Year
2018/2019. [Online]. Available at: http://www.cityofwillits.org/wp-content/uploads/2018/08/08-21-
18-Proposed-DRAFT-Budget-2018-2019.pdf. Accessed August 15, 2018.
Willits, City of. June 13, 2018 (2018b). City Council Meeting Agenda Packet. [Online]. Available at:
http://www.cityofwillits.org/wp-content/uploads/2018/06/06-13-18-Agenda-Council-Packet.pdf.
Accessed August 19, 2018.
Willits, City of. 2018c. City of Willits website. [Online]. Available at: http://www.cityofwillits.org/.
Accessed July and August 2018.
Willits, City of. October 1, 2017 (2017a). City of Willits Rates & Fees Schedule 2017-2018 Fiscal Year.
[Online]. Available at: http://www.cityofwillits.org/wp-content/uploads/2017/03/Updates-10-1-17-
Rates-Fees.pdf. Accessed August 15, 2018.
Willits, City of. August 9, 2017 (2017b). City Council Meeting Agenda Packet. [Online]. Available at:
http://www.cityofwillits.org/wp-content/uploads/2017/08/08-09-17-Agenda-Council-Packet.pdf.
Accessed August 19, 2018.
Willits, City of. July 26, 2017 (2017c). City of Willits Water & Sewer Rate Study. [Online]. Available at:
http://www.cityofwillits.org/wp-content/uploads/2017/07/07-26-17-Agenda-Council-Packet.pdf.
Accessed August 17, 2018.
Willits, City of. June 28, 2017 (2017d). City of Willits Fiscal Year 2017/2018 Adopted Budget. [Online].
Available at: http://www.cityofwillits.org/wp-content/uploads/2017/07/Final-Budget-FY-2017-
2018.pdf. Accessed August 15, 2018.
Willits, City of. May 24, 2017 (2017e). City Council Meeting Agenda Packet. [Online]. Available at:
http://www.cityofwillits.org/wp-content/uploads/2017/05/05-24-17-Agenda-Council-
Packet_AMENDED.pdf. Accessed August 17, 2018.
Willits, City of. January 25, 2017 (2017f). City Response to Information Request from the Local Agency
Formation Commission of Mendocino County in preparation for the Municipal Service Review and
Sphere of Influence Update. Available at LAFCo’s office upon request.
Willits, City of. February 22, 2016 (2016). City Response to Information Request from the Local Agency
Formation Commission of Mendocino County in preparation for the Municipal Service Review and
Sphere of Influence Update. Available at LAFCo’s office upon request.
Chapter 5 – References Page 5-2
MSR/SOI Update | City of Willits
6 ACRONYMS
AF Acre-feet
BTCSD Brooktrails Township Community Services District
CCF hundred cubic feet
CEQA California Environmental Quality Act
CKH Cortese-Knox-Hertzberg Local Government Reorganization Act of 2000
CSD Community Services District
FY Fiscal Year
GPM gallons per minute
HCF hundred cubic feet
LAFCo Local Agency Formation Commission
LLFPD Little Lake Fire Protection District
MG million gallons
MGD million gallons per day
MSR Municipal Service Review
SOI Sphere of Influence
WTP Water Treatment Plant
WWTP Wastewater Treatment Plant
Chapter 6 – Acronyms Page 6-1
MSR/SOI Update | City of Willits
7 ACKNOWLEDGEMENTS
7.1 REPORT PREPARATION
This Municipal Service Review and Sphere of Influence Update was prepared by Hinman & Associates
Consulting, Inc., contracted staff for Mendocino LAFCo.
Uma Hinman, LAFCo Executive Officer
Larkyn Feiler, LAFCo Analyst
Beth Salomone, LAFCo Commission Clerk
7.2 ASSISTANCE AND SUPPORT
This Municipal Service Review and Sphere of Influence Update could not have been completed without
the assistance and support from the following organizations and individuals.
Stephanie Garrabrant-Sierra, City Manager
Adrienne Moore, Former City Manager
City of Willits Dusty Duley, Community Development Director
Scott Herman, Utilities Superintendent
Scott Warnock, Chief of Police
E Mulberg & Associates Elliot Mulberg
Chapter 7 – Acknowledgements Page 7-1
MSR/SOI Update | City of Willits
8 APPENDICES
8.1 APPENDIX A – OPEN GOVERNMENT RESOURCES
The purpose of this appendix is to provide a brief list of some educational resources for local agencies
interested in learning more about the broad scope of public interest laws geared towards government
transparency and accountability. This appendix is not intended to be a comprehensive reference list or
to substitute legal advice from a qualified attorney. Feel free to contact the Mendocino LAFCo office at
(707) 463-4470 to make suggestions of additional resources that could be added to this appendix.
The websites listed below provide information regarding the following open government laws: (1) Public
Records Act (Government Code §6250 et seq.), (2) Political Reform Act – Conflict-of-Interest regulations
(Government Code §81000 et seq.), (3) Ethics Principles and Training (AB 1234 and Government Code
§53235), (4) Brown Act – Open Meeting regulations (Government Code §54950 et seq.), and (5) Online
Compliance regulations (Section 508 of the US Rehabilitation Act and Government Code §11135).
o Refer to the State of California Attorney General website for information regarding public access
to governmental information and processes at the following link:
https://oag.ca.gov/government.
o Refer to the State of California Attorney General website for information regarding Ethics
Training Courses required pursuant to AB 1234 at the following link: https://oag.ca.gov/ethics.
o The Fair Political Practices Commission (FPPC) is primarily responsible for administering and
enforcing the Political Reform Act. The website for the Fair Political Practices Commission is
available at the following link: http://www.fppc.ca.gov/.
o Refer to the California Department of Rehabilitation website for information regarding Section
508 of the US Rehabilitation Act and other laws that address digital accessibility at the following
link: http://www.dor.ca.gov/DisabilityAccessInfo/What-are-the-Laws-that-Cover-Digital-
Accessibility.html.
o Refer to the Institute for Local Government (ILG) website to download the Good Governance
Checklist form at the following link: www.ca-ilg.org/post/good-governance-checklist-good-and-
better-practices.
o Refer to the Institute for Local Government (ILG) website to download the Ethics Law Principles
for Public Servants pamphlet at the following link: www.ca-ilg.org/node/3369.
o Refer to the Institute for Local Government (ILG) website for information regarding Ethics
Training Courses required pursuant to AB 1234 at the following link: http://www.ca-
ilg.org/ethics-education-ab-1234-training.
o Refer to the California Special Districts Association (CSDA) website for information regarding
online and website compliance webinars at the following link:
http://www.csda.net/tag/webinars/.
Chapter 8 – Appendices Page 8-1