LAFCO
Other Special Districts Final MSR
Read the report at Local Agency Formation Commissions ↗
FINAL REPORT
COUNTY OF MERCED
SPECIAL SERVICE DISTRICTS
MUNICIPAL SERVICE REVIEW
Prepared for:
Merced County Local Agency Formation Commission
Prepared by:
Economic & Planning Systems, Inc.
As Approved by LAFCO June 25, 2009
EPS #17110
Note: A version of this report titled “Administrative Draft” was approved by LAFCO
on June 25, 2009. No changes have been made to this version other than updating the
report’s title to “Final Report.”
TABLE OF CONTENTS
I. INTRODUCTION..............................................................................................................1
II. SPECIAL SERVICE DISTRICTS..........................................................................................2
Atwater Fire District....................................................................................................2
Bloss Memorial Healthcare District...........................................................................3
Charleston Drainage District......................................................................................6
County Service Area #1...............................................................................................8
Gustine Drainage District..........................................................................................11
Henry Miller Reclamation District
(Formerly San Luis Canal Reclamation District)....................................................14
Lower San Joaquin Levee District............................................................................19
Westside Community Healthcare District..............................................................22
III. DETERMINATIONS........................................................................................................25
Explanation of Determinations.................................................................................25
LIST OF FIGURES
Figure 1: Bloss Memorial Healthcare District.....................................................................5
Figure 2: Charleston Drainage District................................................................................7
Figure 3: County Service Area #1.......................................................................................10
Figure 4: Gustine Drainage District...................................................................................13
Figure 5: Henry Miller Reclamation District #2131.........................................................17
Figure 5A: Henry Miller Reclamation District Pending Sphere of Influence.................18
Figure 6: Lower San Joaquin Levee District.....................................................................21
Figure 7: Westside Community Healthcare District........................................................24
I. INTRODUCTION
In 1997, the State Legislature convened a special commission to study and make
recommendations to address California’s rapidly accelerating growth. The Commission
on Local Governance for the 21st Century focused energies on ways to empower the
already existing County Local Agency Formation Commissions (LAFCOs). The
Commission’s final report, Growth within Bounds, recommended various changes to local
land use laws and LAFCO statutes. The Commission’s recommendations were
encompassed in Assembly Bill 2838 (2000), which amended the Cortese‐Knox‐Hertzberg
Local Government Reorganization Act of 2000 (“Reorganization Act”).
One of LAFCO’s new responsibilities requires regional studies of municipal services
(Municipal Service Reviews, or MSRs) every five years, in conjunction with reviews of
city and district spheres of influence (SOIs). Government Code Section 56425 directs
LAFCOs to review and update agencies’ SOIs, as necessary, every five years. Section
56430 requires MSRs to be conducted before or in conjunction with the sphere updates.
A recent change to the Reorganization Act reduced the number of factors to be
addressed in MSRs from nine to six. According to current state law, this MSR addresses
the following six factors:
1. Growth and population projections for the affected area.
2. Present and planned capacity of public facilities and adequacy of public services,
including infrastructure needs or deficiencies.
3. Financial ability of agencies to provide services.
4. Status of, and opportunities for, shared facilities.
5. Accountability for community service needs, including governmental structure
and operational efficiencies.
6. Any other matter related to effective or efficient service delivery, as required by
commission policy.
Merced LAFCO retained Economic & Planning Systems, Inc. (EPS) to develop the MSRs
for special service districts in Merced County. Each provider was contacted to request
information and documents such as master plans, budgets, and maps. EPS used the
information obtained from the jurisdictions to write provider profiles and the six
determinations required by law for each provider. The profiles and determinations will
be submitted to each service provider for its review. The districts’ comments will be
incorporated into the report.
The City of Atwater recently reorganized their Fire Department and went into contract
with CAL FIRE for the provision of fire protection services. The relationship between
the City, CAL FIRE, and the Atwater Fire Protection District must be updated parallel
with the pending Atwater City MSR document. Therefore, the Fire District MSR is not
included in this document at this time.
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II. SPECIAL SERVICE DISTRICTS
ATWATER FIRE DISTRICT
The City of Atwater recently reorganized their Fire Department and went into contract
with CAL FIRE for the provision of fire protection services. The relationship between
the City, CAL FIRE, and the Atwater Fire Protection District must be updated parallel
with the pending Atwater City MSR document. Therefore, the Fire District MSR is not
included in this document at this time.
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Final Report
Merced Co. Special Service Districts Municipal Service Review
As Approved by LAFCO June 25, 2009
BLOSS MEMORIAL HEALTHCARE DISTRICT
GOVERNANCE AND OPERATIONS
The Bloss Memorial Healthcare District (BMHD) was formed in 1958. The District’s
service area is the City of Atwater’s SOI, which is approximately bound on the north by
Meadow Drive, east by Franklin Road, south by White Crane Road, and west by Sultana
Drive. District boundaries are identified in Figure 1. BMHD provides medical coverage
to the low‐income population and those qualifying for Medi‐Cal within its service area.1
The District employs 131 operational staff members and 23 administrative and
management staff members. BMHD is governed by a five‐member Board of Directors,
which meets on the last Thursday of each month, and it communicates with its service
population through its website, flyers, and community outreach events.
Operating expenses for the Fiscal Year 2008‐2009 total $11.6 million of which $6.9 million
cover salaries and benefits, $1.5 million cover professional fees, $756,000 cover supplies,
and $503,000 cover purchased services. Other expenses include depreciation, rents and
leases, utilities, and insurance. District staff do not report any cost avoidance
opportunities. Medi‐Cal is financed equally by the State and federal government.
Operating revenue from services provided to patients is $8.5 million during the FY 2008‐
2009. Non‐operating income from the period is $3.7 million.
Capital expenditures for the period total $619,000. New requests for construction and
building improvements include communication infrastructure upgrades. The
infrastructure upgrade is financed with a Help II Loan from the California Healthcare
Financing Authority. The principal amount is $427,500, and the term is five years at a 3
percent interest rate.
INFRASTRUCTURE, FACILITIES, AND SERVICES
BMHD provides medical coverage to the low‐income population and those qualifying
for Medi‐Cal within its service area. Specific services include family practice, pediatrics,
internal medicine, gynecology, obstetrics, mental health, chiropractic, podiatry, internal
medicine, dermatology, infectious diseases, pulmonology, audiology, urology, ENT,
cardiology, orthopedics, ophthalmology, occupational medicine, adult day care, urgent
care, laboratory and radiology.
1
Medi‐Cal is Californiaʹs Medicaid program. This is a public health insurance program which provides
needed health care services for low‐income individuals including families with children, seniors, persons
with disabilities, foster care, pregnant women, and low income people with specific diseases such as
tuberculosis, breast cancer or HIV/AIDS.
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Final Report
Merced Co. Special Service Districts Municipal Service Review
As Approved by LAFCO June 25, 2009
District facilities include the Bloss Medical Clinic (1251 Grove Ave, Atwater), the Castle
Medical Clinic (3605 Hospital Rd, Atwater), and the Winton Medical Clinic (6590 N.
Winton Way, Winton). The District is partners with the Central California Dental
Surgicenter, Sierra King District Hospital, Parlier Dental Surgery Center, and Specialty
Group. District staff report that facilities and equipment are adequate to meet current
demand, and funding is available to make necessary improvements.
DEMAND AND CAPACITY
District staff anticipate an increase in demand for services because of the
implementation of the Medi‐Cal Managed Care Program. The program requires Medi‐
Cal recipients to select a primary care physician, and this will likely result in an
increased number of patients. District staff report that facilities, equipment, staff, and
funding are adequate to continue current levels of service provision.
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Final Report
Merced Co. Special Service Districts Municipal Service Review
As Approved by LAFCO June 25, 2009
CHARLESTON DRAINAGE DISTRICT
GOVERNANCE AND OPERATIONS
The Charleston Drainage District (CDD) was formed in 1978. The District’s service
population is ten people. District boundaries are identified in Figure 2. CDD is
managed by Pacheco Water District, and does not employ any staff members. The
District is governed by a five‐member Board of Directors, which meets quarterly. The
District communicates with its service population through newsletters.
The District’s operating expenses for the Fiscal Year 2005‐2006 were approximately
$172,000. Of this amount, $45,000 covered San Luis drain maintenance costs, $42,000
covered management fees, and about $20,000 covered power for the system’s pumps.
Operating revenues generated by standby charges were about $205,000. Consequently,
the District’s net operating income for this period was about $33,000. CDD maintains
reserves of $100,000.
INFRASTRUCTURE, FACILITIES, AND SERVICES
CDD controls agricultural subsurface groundwater runoff in the service area. District
facilities include one office building, which is shared by five districts: Panoche Water
District, Panoche Drainage District, Pacheco Water District, Mercy Springs Water
District, and Charleston Drainage District. Additional facilities include three pumps,
motors, and canals to control groundwater runoff. The District does not own any
equipment. District staff report that facilities, equipment, staff, and funding are
adequate to meet current demand.
DEMAND AND CAPACITY
CDD provides drainage services to its service population of ten people located on about
4,300 acres within the District’s boundaries, and District staff do not expect significant
increases in the near future. As a result, staff expect that facilities, equipment, staff, and
funding are adequate to continue current levels of service provision.
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Figure 2
7
Final Report
Merced Co. Special Service Districts Municipal Service Review
As Approved by LAFCO June 25, 2009
COUNTY SERVICE AREA #1
GOVERNANCE AND OPERATIONS
The County Service Area #1 (CSA #1) was originally formed in August 1966. The
District was initially reorganized in 1978 and then later in 1991. CSA #1 encompasses
the unincorporated territory in Merced County and provides a range of services.
According to the California Department of Finance, the population of Merced County’s
unincorporated areas was about 85,628 in 2007. District boundaries are shown in Figure
3. The District employs a manager and a fiscal services manger to provide accounting
services.2 CSA #1 is a County‐dependent district, governed by Merced County’s five‐
member Board of Supervisors. The District communicates with service populations
through local newspapers, special mailings, and the Merced County website.
The District’s budgeted expenditures for the Fiscal Year 2007/2008 were estimated to be
approximately $813,000. Of the period’s total budgeted expenditures, about $647,000
cover operating expenses and $166,000 cover administrative expenses. Total revenues
for this period were about $843,000. Appropriations for emergency repairs and
replacement of equipment are approximately $740,000.3
CSA #1 is funded through annual assessments on the property tax bills of the parcels
located within each zone of benefit.4 The District has attempted to raise annual
assessments in two zones of benefit to maintain current service levels and both mail
ballot attempts failed. Each zone of benefit that is located within CSA #1 aims to
maintain reserves that equate to one year of annual operation costs, plus reserves for
replacement of equipment or facilities as necessary.5
INFRASTRUCTURE, FACILITIES, AND SERVICES
CSA #1 primarily provides street lighting and maintenances services, drainage, and
parks and landscape maintenance services. The District has contracts with other service
providers for street lighting maintenance, landscaping maintenance, drainage basin
cleaning, and pump maintenance and repairs. In addition, CSA #1 is authorized to
2 The manager is the equivalent of 0.7 of a full time employee and the fiscal services manager is the
equivalent of 0.2 of a full time employee.
3 Communication from CSA Administrative Engineer, Kellie Jacobs, 4 Dec 2007.
4 A zone of benefit is defined as a geographic area formed under the County Service Area law to provide
extended services not already being provided by any other entity. Some extended services that can be
provided include drainage, landscaping, lighting, and road improvement and maintenance. CSA currently
has 128 active zones of benefit providing extended services.
5 Two zones of benefit in CSA do not maintain reserves in these amounts. The two zones are the two
landscape zones where the attempts to raise the annual assessments have failed.
8
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Final Report
Merced Co. Special Service Districts Municipal Service Review
As Approved by LAFCO June 25, 2009
provide extended library services, ambulance services, soil conservation/drainage
control, animal control, pest and rodent control, street maintenance and highway
sweeping, refuse collection, garbage collection, television translator station facilities and
services, recreation or parkway facilities or services, extended police protection,
structural fire protection, and water services.
CSA #1 owns about 220 acres of developed land. Of the land owned by the District,
about 10 acres has been developed into six neighborhood parks and nine streetscapes,
and 210 acres have been developed into 91 storm drainage detention/retention basins.
The District does not own any undeveloped land.
The District has 15 irrigation systems that serve parks and streetscapes. Additionally, it
owns 3,500 street lights and 34 pumps that are located within the storm drainage
facilities. CSA #1 does not lease any equipment on a regular basis.6
DEMAND AND CAPACITY
The District’s service population and the number of parcels served increase each time a
new subdivision or project is developed within Merced County. CSA #1’s service area
increased slightly following the adjustment of the boundary line between Fresno and
Merced County in 2008. District staff report that facilities, equipment, and funding are
adequate to continue providing current levels of service to annexed land as well as to
newly developed land within the County.7
All new projects approved in Merced County must form or annex into a zone of benefit
in CSA #1. The owners of the project property must sign all documents granting
authorization to collect the annual operational and capital replacement costs from each
parcel within the project area that receives a benefit from the extended service to be
provided by CSA #1.8
6 Communication from CSA Administrative Engineer, Kellie Jacobs, 21 Nov 2007.
7 Ibid.
8 Ibid.
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Figure 3
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Final Report
Merced Co. Special Service Districts Municipal Service Review
As Approved by LAFCO June 25, 2009
GUSTINE DRAINAGE DISTRICT
GOVERNANCE AND OPERATIONS
The Gustine Drainage District (GDD) was formed in 1937. The District’s current
assessment role shows 2,458 parcels within the service area.9 The current service
population includes approximately 5,000 people in the City of Gustine plus the
population of the surrounding rural areas for which figures are not available. District
boundaries are shown in Figure 4. The District has one employee, the District
Manager. The manager’s duties, aside from general office responsibilities, are to
manage and service the District’s infrastructure. An independent contractor is retained
to complete other office duties including computer work, letter and document typing,
assisting management, and maintaining the assessment role. GDD is governed by a
five‐member Board of Directors that meets the second Wednesday of each month.
The District’s expenses for the Fiscal Year 2007‐2008 were approximately $189,000, of
which $100,000 covers utilities, $20,000 covers the maintenance of equipment, and about
$31,000 covers salaries. Total revenues for this period were about $153,000. The single
largest revenue source is assessment funding, which generated approximately $134,000
annually.
For the Fiscal Year ending June 30, 2007, cash in the Treasury General Fund totaled
$425,000, cash in the Treasury Water Quality Reserve totaled $96,000, and cash in
Treasury Utility Reserve totaled $115,000. Utility reserves are maintained to protect the
District from unforeseen utility expense increases that may result from rate increases or
increases in usage.
The District’s Special Assessment funding was established in 1988, and later revised in
1992. Following the revision, the basic rate was reduced from $8.00 to $6.00. GDD has
several large reserve accounts because the District anticipates that upcoming water
quality standards may require the relocation of some tile drain discharge.10 Reserves
must be maintained so that the costs of such improvements can be covered. Maintaining
sufficient reserves is especially important because the District’s primary revenue source
is assessment funding and it does not have the authority to raise assessment rates
without voter approval.
9 An acreage figure is not available.
10 Tile drain is defined as pipe made of perforated plastic, burned clay, concrete, or a similar material,
which is used to collect and carry excess water from the soil.
11
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Final Report
Merced Co. Special Service Districts Municipal Service Review
As Approved by LAFCO June 25, 2009
INFRASTRUCTURE, FACILITIES, AND SERVICES
GDD collects and controls subsurface groundwater in the service area. Additionally, the
District is responsible for the discharge of this subsurface groundwater in a manner that
does not cause harm or cause problems to land owners. The District cooperates with
Central California Irrigation District (CCID) so that a portion of GDD’s discharge, which
meets CCID standards, is returned to the CCID canal. Additionally, two of GDD’s lift
pumps return some surface water into the canal.
GDD owns their office building, the attached storage facility, and equipment including
17 tile drain sumps and pumps, tile drain trunk lines, two lift pumps, and three deep
well pumps. The District also owns approximately three to four miles of pipeline that is
used for GDD pump discharge and for surface irrigation drain water. In addition, the
District recently acquired the rights to a private tile drain system east of the City of
Gustine.
For the most part, district staff report that facilities are adequate to continue current
levels of service provision. Necessary improvements, which the District is currently
undertaking, include a new pump and electrical service.
DEMAND AND CAPACITY
District staff do not anticipate significant population growth within the District’s service
area. Consequently, they report that current levels of facilities and funding are adequate
to continue current levels of service provision.
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1 3
1074-A ON 12/22/1997
Final Report
Merced Co. Special Service Districts Municipal Service Review
As Approved by LAFCO June 25, 2009
HENRY MILLER RECLAMATION DISTRICT
(FORMERLY SAN LUIS CANAL RECLAMATION DISTRICT)
GOVERNANCE AND OPERATIONS
The Henry Miller Reclamation District (HMRD) was formed in FY 2000. It was
approved by LAFCO with the name San Luis Canal Reclamation District. However,
when the state issued the District a formal reclamation district number in accordance
with the process in State Water Code 50000 et sec, the name was changed to the Henry
Miller Reclamation District.11
The District’s service area encompasses about 47,285 acres in Merced County, and its
service population is approximately 4,000 people. District boundaries are identified in
Figure 5. HMRD owns or has easements on all conveyance and drainage facilities that
were once owned by the San Luis Canal Company.12 The District is the public entity
that provides all operations and maintenance services on its canal and drain facilities,
while the San Luis Canal Company maintains water rights. HMRD employs five
administrative personnel, seven operations personnel, and 22 maintenance personnel.
The District is governed by a seven‐member Board of Directors, which meets on the
third Thursday of each month, and communicates with its service population with
newsletters and board meetings.13
Expenditures for the FY 2007‐2008 totaled $5.7 million. 14 Major expenditures included
those associated with tools, equipment, and maintenance15 ($1.5 million), the water
facilitation fee ($1.1 million), and employee salaries and outside labor ($884,000).
Revenues for the period were about $6.9 million. The District’s single largest source of
revenue is a transfer from the San Joaquin River Exchange Contractors Water
Authority.16 The District has an operations and maintenance reserve of $2.5 million in
11 Henry Miller Reclamation District is the name that shows up on tax rolls.
12 San Luis Canal Company is a private mutual water company that holds the historic water rights off of the
San Joaquin River system. From its inception until FY2000, the San Luis Canal Company provided water to
its shareholders, and it was also responsible for providing its facilities with operations and maintenance
services. Operations and maintenance service responsibilities were transferred to the Henry Miller
Reclamation District #2131 in FY2000.
13 Communication with HMRD General Manager, Chase Hurley, 13 Feb 2008.
14 Henry Miller Reclamation District FY 2007‐2008 Budget.
15 The budget items included in this category are Tools, Equipment, and Fuel, Lowlift Pumps and Tile
Pumps, Deep Wells, and Repair and Maintenance.
16 The San Joaquin River Exchange Contractors Water Authority is a joint powers authority that comprises
four water entities that irrigate 240,000 acres of agricultural land in San Joaquin County. The four entities
are the Central California Irrigation District, Columbia Canal Company, Firebaugh Canal Water District,
and San Luis Canal Company.
14
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Final Report
Merced Co. Special Service Districts Municipal Service Review
As Approved by LAFCO June 25, 2009
order to cover the costs of catastrophic events, drought years, or adverse regulatory
issues.
In FY 2005, the District approved a ten‐year Facilities Master Plan, which addresses
methods of reducing operations and maintenance costs. This document also discusses
upgrades to the District delivery and drainage systems that would improve water use
efficiency, reuse capacity, and increase life expectancy of newly constructed facilities
based on improved designs.17 In addition, the District has submitted both a Sphere of
Influence revision and annexation application to add 152 acres of canals into the District
which are located within Fresno County currently. This boundary is reflected in Figure
5‐A.
INFRASTRUCTURE, FACILITIES, AND SERVICES
HMRD is the public entity that provides all operations and maintenance services on its
canal and drain facilities. The District owns 116 miles of canal and 113 miles of drain
facilities. Additionally, the District owns several tractors, mowers, trucks, trailers, and
pumps.
The Board of Director’s annual budget covers all costs for needed operations and
maintenance costs. The District currently has a ten‐year equipment replacement
program along with an annual gate replacement program. The District does not share
any facilities or equipment at this time. However, it works closely with neighboring
districts, which share labor or equipment as needed.18
DEMAND AND CAPACITY
Significant demand increases are not anticipated in the service area, because the majority
of land within the District is currently in agricultural production. If the cropping
patterns change over time and more water‐intense crops are planted, the District has
planned sufficient water conservation projects in the near term to cover any minimal
demand increases. District staff report that facilities, equipment, staff, and funding are
adequate to meet continue current service provision.19 The pending annexation of the
Fresno County portion of the Arroyo and Santa Rita canals will transfer maintenance
responsibility from the San Luis Canal Company to the Henry Miller Reclamation
District.
17 Communication with HMRD General Manager, Chase Hurley, 13 Feb 2008.
18 Ibid.
19 Ibid.
15
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Final Report
Merced Co. Special Service Districts Municipal Service Review
As Approved by LAFCO June 25, 2009
At the current time, the District hasn’t experienced any conversion of agricultural land
to urban uses. Looking forward, the Board of Directors has initiated discussion on
drafting new policies to address urban sprawl.
16
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Figure 5
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18
Final Report
Merced Co. Special Service Districts Municipal Service Review
As Approved by LAFCO June 25, 2009
LOWER SAN JOAQUIN LEVEE DISTRICT
GOVERNANCE AND OPERATIONS
The Lower San Joaquin Levee District (LSJLD) was formed in 1955. District boundaries
were created based on historical data regarding which areas are subject to flooding.20
LSJLD provides service to 4,192 parcels in Fresno County, Madera County, and Merced
County, an area of over 300,000 acres. District boundaries are shown in Figure 6. The
District employs eight full time workers and one seasonal worker.21 LSJLD is governed
by a seven‐member Board of Directors, which meets on the first Tuesday of each month.
Appointments are made by the Board of Supervisors of the appropriate counties. The
Department communicates with its service population through meeting agendas posted
in public place at the meeting facility. Additionally, if necessary, notices are posted in
the local newspapers or sent directly to landowners.
LSJLD’s expenses for the Fiscal Year 2007/2008 totaled $871,000.22 About $532,000 cover
salaries and employee benefits, $226,000 cover services and supplies, and $113,000 cover
capital assets. In order to reduce costs, the District eliminated one field position. During
flood events, LSJLD uses other agency personnel and landowners as needed. In order to
control future costs, the District plans to maintain operational costs within the budget
plan.
Revenues for the period were $930,000. The largest single revenue source is a benefit
assessment collected from properties within the boundaries of the District through
property tax statements within Fresno County, Madera County, and Merced County.
Benefit assessments generate $925,000 in revenue for the District.23 The breakdown by
county is as follows: $276,000 from Fresno County, $299,000 from Madera County, and
$350,000 from Merced County.
INFRASTRUCTURE, FACILITIES, AND SERVICES
LSJLD was created to address flood problems that have historically been caused by the
San Joaquin River and its tributaries. The District’s purpose is to operate, maintain and
repair levees, bypasses, channels, control structures, and other facilities in connection
20 The boundary was established along existing section lines, roads, canals, drains or other permanent lines
that were reasonably close to the probable flood plain.
21 All employees receive flood fight training methodology from DWR specialists every two years.
22 The District’s budgeting is determined by the State Department of Water Resources.
23 The Benefit Assessment Act, which was passed by the state legislature in 1982, allows local agencies
authorized by law to provide flood control to impose a benefit assessment to finance the maintenance and
operation costs of this service. The assessment is in proportion to the benefit received. The benefit
assessment may only be levied on parcels located within district boundaries.
19
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Final Report
Merced Co. Special Service Districts Municipal Service Review
As Approved by LAFCO June 25, 2009
with the Lower San Joaquin River Flood Control Project. The Lower San Joaquin River
Flood Control Project was designed and constructed by the State Department of Water
Resources (DWR) between 1959 and 1967 to provide flood protection along the San
Joaquin River and tributaries in Merced, Madera, and Fresno Counties. The Plan
includes provisions for 108 river miles, and contains 195 miles of levees and protects
over 300,000 acres. The project is a series of bypasses built to collect San Joaquin flood
flows, as well as flood water from the Kings River system Central Valley Flood
Protection Board, is obligated to maintain not only the bypasses, but the channel of the
San Joaquin River within the project.
Standards for the project are set by DWR and the U.S. Army Corps of Engineers. DWR
conducts bi‐annual inspections of LSJLD’s flood facilities to ensure that they are
operated and maintained to these standards. Annual reports are published detailing the
year’s inspections and they are kept on file with DWR.
The District operates a maintenance shop and caretaker residence at 12332 S. Indiana
Road in Dos Palos. This facility is on 3.5 acres and stores equipment used for
maintenance operations of flood control project facilities. Additionally, LSJLD leases its
district office from the San Luis Canal Company, which includes the use of meeting
rooms, a copy machine, a fax machine, and secretarial assistance.
DEMAND AND CAPACITY
District staff do not anticipate increases in service demands as flood project facilities and
boundaries should not change.
Staff also report that a major financial challenge that the District faces is increased
demand by regulatory agencies, such as the California Department of Fish and Game
and the U.S. Army Corps of Engineers, that the District obtain costly environmental
permits and other documentation in accordance with environmental requirements. The
District assumed its role operating and maintaining the state flood project in the 1960s
prior to the enactment of many of the current environmental laws. Though current
levels of funding are sufficient to continue providing flood control services, district staff
report that continuing to provide services in accordance with environmental
requirements will continue to be a challenge.
20
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Figure 6
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Final Report
Merced Co. Special Service Districts Municipal Service Review
As Approved by LAFCO June 25, 2009
WESTSIDE COMMUNITY HEALTHCARE DISTRICT
GOVERNANCE AND OPERATIONS
The Westside Community Healthcare District (WCHD) was formed in 1957. The District
provides ambulance service to 475 square miles in Merced and Stanislaus County.
District boundaries are shown in Figure 7. The service population is approximately
35,000 people. WCHD employs ten full‐time management personnel, 29 full‐ and part‐
time staff, and two administrative employees. The District is governed by a five‐member
Board of Directors that meets monthly on the fourth Tuesday of each month. The
District primarily communicates with its service population through local newspapers
including the Modesto Bee, the Newman Index, and the Gustine Press.24
Expenditures for the Fiscal Year 2007‐2008 total about $1,102,000, of which $990,000
covers direct ambulance expenses. Wages, which are the largest single expenditure,
total $575,000. Net revenues for the period are $847,700. This results in an excess of
expenditures over operating revenues of $254,000. November 2007, the District’s
reserves were approximately $400,000.25
During Fiscal Year 2007‐2008, total operating revenues earned are $1.6 million, but
revenues collected only amount to $843,000.26 This represents a collection rate of
approximately 51 percent. The collection rate is below 100 percent, because many
individuals requiring ambulance transport are uninsured and unable to pay the
ambulance fee. Additionally, when patients are insured with Medicare or Medicaid, the
District is only partially repaid for expenses incurred, because these programs only
reimburse the District for a portion of total transport expenses incurred. Ambulance
charges vary per trip depending on many factors including distance, medications
required, and use of medical equipment such as a defibrillator. On average, the service
charge for ambulance transport services costs about $1,500 per trip.
WCHD also receives non‐operating revenues generated by property taxes and Measure
A, which cover operating shortfalls. Through Measure A, HCWD collects $40 per
household, $240 per industrial use, $90 per commercial property, and $0.10 per acre of
ranch land.27
24 Communication from WCHD Facility Manager, Tom Homen, 29 Nov 2007.
25 Westside Community Healthcare District Preliminary Operating Budget with Measure A Revenues at
75%: FY 2007/2008, April 27, 2007.
26 Ibid.
27 Interview with WCHD Facility Manager, Tom Homen, 13 Dec 2007.
22
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Final Report
Merced Co. Special Service Districts Municipal Service Review
As Approved by LAFCO June 25, 2009
INFRASTRUCTURE, FACILITIES, AND SERVICES
WCHD provides ambulance service to the WCHD’s service area. It has a contract with
Riggs Ambulance, which was retained by the Emergency Medical Services Agency as
the sole provider of ambulance services to Merced County, to answer calls within its
service area as well as surrounding areas of the County in the event that the local
ambulance is unable to answer the call.
According to the contract, WCHD pays Riggs Ambulance $3,000 per month to dispatch
WCHD ambulances. In addition, Riggs Ambulance pays $1,200 per month to the
District, which covers rent for a facility in Santa Nella. The facility provides a local base
for WCHD personnel and equipment, which helps to improve response time to the
Santa Nella and Los Banos areas. If the local ambulance is unable to answer the call,
WCHD provides service to these areas, some of which are outside the District’s service
boundary.28
Annually, the District generally transports between 120 and 150 patients per month. In
addition, of the total calls for service that the District receives approximately 30 percent
of the time a patient is not transported.29
The District owns and maintains a 19,000‐square foot building as well as equipment,
which includes five ambulances and one pick‐up truck. The District does not share any
facilities or equipment. District staff report that facilities and equipment are adequate to
meet current demand and that funding is available to make needed improvements.30
DEMAND AND CAPACITY
The District anticipates significant population growth within service boundaries that
will likely increase future demand for ambulance services. However, District staff
report that facilities, equipment, staff, and funding, are adequate to accommodate future
demand increases and continue current service provision. In the event that current
facilities are unable to accommodate District growth, WCHD has sufficient funds to
purchase additional ambulances and hire staff members as needed.31
28 Interview with WCHD Facility Manager, Tom Homen, 13 Dec 2007.
29 Ibid.
30 Communication from WCHD Facility Manager, Tom Homen, 29 Nov 2007.
31 Ibid.
23
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III. DETERMINATIONS
EXPLANATION OF DETERMINATIONS
The Cortese‐Knox‐Hertzberg Local Government Reorganization Act of 2000 requires
LAFCOs to make six written determinations for municipal service providers. The
following factors32 provide examples of how Merced LAFCO will fulfill the
determination requirement.
Growth and Population Projections
Efficient provision of public services is linked to the ability of service providers to plan
for future need. For example, a water purveyor must be prepared to supply water for
existing and future levels of demand and also be able to determine where future demand
will occur. MSRs will give LAFCO, affected agencies, and the public the means to
examine both the existing and future need for public services and will evaluate whether
projections for future growth and population patterns are integrated into an agency’s
planning function.
Infrastructure Needs and Deficiencies
This determination refers to the adequacy of existing and planned public facilities in
relation to how public services are, and will be, provided to citizens. Infrastructure can
be evaluated in terms of capacity, condition, availability and quality.
Financing Constraints and Opportunities
LAFCO must weigh a community’s public service needs against the resources available
to fund the services. Service reviews may also suggest innovations for contending with
financing constraints, which may be of considerable value to numerous agencies.
Opportunities for Shared Facilities
Public service costs may be reduced and service efficiencies increased, if service
providers develop strategies for sharing resources. Sharing facilities and excess system
capacity decreases duplicative efforts, may lower costs, and minimizes unnecessary
resource consumption. Options for plans for future shared facilities and services will
also be considered.
Evaluation of Local Accountability and Governance, Government Structure, and
Operational Efficiencies
Local accountability and governance refers to public agency decision making and
operational and management processes that (1) include an accessible and accountable
elected or appointed decision making body and agency staff; (2) encourage and value
32 Excerpted from North County Inland Municipal Service Review and Sphere of Influence Update Study,
San Diego LAFCO, September 2003.
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Merced Co. Special Service Districts Municipal Service Review
As Approved by LAFCO June 25, 2009
public participation; (3) disclose budgets, programs, and plans; (4) solicit public input
when considering rate changes and work and infrastructure plans; and (5) evaluate
outcomes of plans, programs, and operations, and disclose results to the public.
As a tool to evaluate government structure, the MSR comprehensively examines existing
and future public service conditions and to evaluate organizational options for
accommodating growth, preventing urban sprawl, and ensuring that critical services are
efficiently and cost‐effectively provided. LAFCO may examine efficiencies that could be
gained through (1) functional reorganizations within existing agencies, (2) amending or
updating SOIs, (3) annexations or detachments from cities or special districts, (4)
formation of new special districts, (5) special district dissolutions, (6) mergers of special
districts with cities, (7) establishment of subsidiary districts, or (8) any additional
reorganization options found in Government Code § 56000 et. seq.
Management efficiency refers to the effectiveness of internal and external characteristics
of agencies to provide efficient, quality public services. Efficiently managed agencies
consistently implement plans to improve service delivery, reduce waste, eliminate
duplications of effort, contain costs, maintain qualified employees, build and maintain
adequate contingency reserves, and encourage and maintain open dialogues with the
public and other public and private agencies. The service review will evaluate
management efficiency by analyzing agency functions, operations, and practices—as
well as the agency’s ability to meet current and future service demands.
Other Matters Related to Effective Service Provision as Required by Commission
Policy
This determination provides flexibility for LAFCO to address other matters of concern
that may not be covered by the other factors.
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Merced Co. Special Service Districts Municipal Service Review
As Approved by LAFCO June 25, 2009
ATWATER FIRE DISTRICT
The City of Atwater recently reorganized their Fire Department and went into contract
with CAL FIRE for the provision of fire protection services. The relationship between
the City, CAL FIRE, and the Atwater Fire Protection District must be updated parallel
with the pending Atwater City MSR document. Therefore, the Fire District MSR is not
included in this document at this time.
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Merced Co. Special Service Districts Municipal Service Review
As Approved by LAFCO June 25, 2009
BLOSS MEMORIAL HEALTHCARE DISTRICT
Growth and Population Projections
Staff report that the district may experience an increase in demand, if Merced County
establishes a Medi‐Cal Managed Care program.
Infrastructure Needs and Deficiencies
No infrastructure needs or deficiencies have been identified.
Financing Constraints and Opportunities
No opportunities have been identified.
Opportunities for Shared Facilities
No opportunities for shared facilities have been identified.
Evaluation of Local Accountability, Government Structure, and Operational
Efficiencies
No opportunities to improve local accountability, government structure, or operational
efficiency have been identified.
Other Matters Related to Effective Service Provision as Required by Commission
Policy
No additional matters related to effective service provision have been identified.
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CHARLESTON DRAINAGE DISTRICT
Growth and Population Projections
District staff do not anticipate significant population growth within the District’s service
area.
Infrastructure Needs and Deficiencies
No infrastructure needs or deficiencies have been identified.
Financing Constraints and Opportunities
No opportunities have been identified.
Opportunities for Shared Facilities
No opportunities for shared facilities have been identified.
Evaluation of Local Accountability, Government Structure, and Operational
Efficiencies
No opportunities to improve local accountability, government structure, or operational
efficiency have been identified.
Other Matters Related to Effective Service Provision as Required by Commission
Policy
No additional matters related to effective service provision have been identified.
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Merced Co. Special Service Districts Municipal Service Review
As Approved by LAFCO June 25, 2009
COUNTY SERVICE AREA
Growth and Population Projections
The District’s service population and the number of parcels served increase each time a
new subdivision or project is developed within Merced County. CSA #1’s service area
increased slightly following the adjustment of the boundary line between Fresno and
Merced County in 2008.
Infrastructure Needs and Deficiencies
No infrastructure needs or deficiencies have been identified.
Financing Constraints and Opportunities
The District has attempted to raise annual assessments in two zones of benefit to
maintain current service levels and both mail ballot attempts failed.
Opportunities for Shared Facilities
No opportunities for shared facilities have been identified.
Evaluation of Local Accountability, Government Structure, and Operational
Efficiencies
No opportunities to improve local accountability, government structure, or operational
efficiency have been identified.
Other Matters Related to Effective Service Provision as Required by Commission
Policy
No additional matters related to effective service provision have been identified.
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Merced Co. Special Service Districts Municipal Service Review
As Approved by LAFCO June 25, 2009
GUSTINE DRAINAGE DISTRICT
Growth and Population Projections
Insufficient information to project district growth.
Infrastructure Needs and Deficiencies
No infrastructure needs or deficiencies have been identified.
Financing Constraints and Opportunities
No opportunities have been identified.
Opportunities for Shared Facilities
No opportunities for shared facilities have been identified.
Evaluation of Local Accountability, Government Structure, and Operational
Efficiencies
No opportunities to improve local accountability, government structure, or operational
efficiency have been identified.
Other Matters Related to Effective Service Provision as Required by Commission
Policy
No additional matters related to effective service provision have been identified.
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Merced Co. Special Service Districts Municipal Service Review
As Approved by LAFCO June 25, 2009
HENRY MILLER RECLAMATION DISTRICT (FORMERLY SAN LUIS CANAL
RECLAMATION DISTRICT)
Growth and Population Projections
District staff do not anticipate significant population increases, because HMRD does not
anticipate the conversion of agricultural land to urban uses, which would result in
population increases. Additionally, significant increases in service demand are not
expected, because the majority of land within the District is already in agricultural
production.
The pending annexation of the Fresno County portion of the Arroyo and Santa Rita
canals will transfer maintenance responsibility from the San Luis Canal Company to the
Henry Miller Reclamation District.
Infrastructure Needs and Deficiencies
In FY 2005, the District approved a ten year Facilities Master Plan. This document
addresses upgrades to the District delivery and drainage systems to improve water use
efficiency, reuse capacity, and increase life expectancy of newly constructed facilities
based on improved designs.
Financing Constraints and Opportunities
The Facilities Master Plan, which was approved in FY 2005, addresses methods of
reducing operations and maintenance costs.
Opportunities for Shared Facilities
The District does not share any facilities or equipment at this time. But, it works closely
with neighboring Districts, which share labor or equipment as needed. No additional
opportunities for shared facilities have been identified.
Evaluation of Local Accountability, Government Structure, and Operational
Efficiencies
No opportunities to improve local accountability, government structure, or operational
efficiency have been identified.
Other Matters Related to Effective Service Provision as Required by Commission
Policy
No additional matters related to effective service provision have been identified.
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Merced Co. Special Service Districts Municipal Service Review
As Approved by LAFCO June 25, 2009
LOWER SAN JOAQUIN LEVEE DISTRICT
Growth and Population Projections
District staff do not anticipate increases in service demands as flood project facilities and
boundaries should not change.
Infrastructure Needs and Deficiencies
No infrastructure needs or deficiencies have been identified.
Financing Constraints and Opportunities
District staff report that a major financial challenge that the District faces is increased
demand by regulatory agencies, such as the California Department of Fish and Game
and the U.S. Army Corps of Engineers, that the District obtain costly environmental
permits and other documentation in accordance with environmental requirements.
Though current levels of funding are sufficient to continue providing flood control
services, district staff report that providing services in accordance with environmental
requirements will continue to be a challenge.
Opportunities for Shared Facilities
LSJLD leases its district office from the San Luis Canal Company, which includes the use
of meeting rooms, a copy machine, a fax machine, and secretarial assistance. No
additional opportunities for shared facilities have been identified.
Evaluation of Local Accountability, Government Structure, and Operational
Efficiencies
No opportunities to improve local accountability, government structure, or operational
efficiency have been identified.
Other Matters Related to Effective Service Provision as Required by Commission
Policy
No additional matters related to effective service provision have been identified.
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Merced Co. Special Service Districts Municipal Service Review
As Approved by LAFCO June 25, 2009
WESTSIDE COMMUNITY HEALTHCARE DISTRICT
Growth and Population Projections
The District anticipates significant population growth within service area boundaries
that will likely increase future demand for ambulance services. But, District staff report
that facilities, equipment, staff, and funding are adequate to accommodate future
increases in demand.
Infrastructure Needs and Deficiencies
No infrastructure needs or deficiencies have been identified.
Financing Constraints and Opportunities
No opportunities have been identified.
Opportunities for Shared Facilities
SCHD has a contract with Riggs Ambulance, which was retained by the Emergency
Medical Services Agency as the sole provider of ambulance services to Merced County,
to cover other areas of the County in the event that the local ambulance is unable to
answer a call. No additional opportunities for shared facilities have been identified.
Evaluation of Local Accountability, Government Structure, and Operational
Efficiencies
No opportunities to improve local accountability, government structure, or operational
efficiency have been identified.
Other Matters Related to Effective Service Provision as Required by Commission
Policy
No additional matters related to effective service provision have been identified.
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