Adopted City of Alturas MSR and SOI

Modoc Local Agency Formation Commission MUNICIPAL SERVICE REVIEW of Services Provided by the CITY OF ALTURAS Adopted February 13, 2024 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 TABLE OF CONTENTS Page 1. INTRODUCTION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1.1 LAFCO's Responsibilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 1.2 Municipal Service Review Requirements . . . . . . . . . . . . . . . . . . . . . . . 1 1.3 Preparation of the MSR . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2 1.4 Description of Public Participation Process . . . . . . . . . . . . . . . . . . . . . . 3 1.5 California Environmental Quality Act (CEQA) . . . . . . . . . . . . . . . . . . . . 4 1.6 Sphere of Influence Update Process . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 2. SETTING . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8 2.1 City of Alturas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8 2.1.1 History . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8 2.1.2 Alturas General Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9 2.2.3 Alturas Population Data . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9 2.1.4 Educational Facilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9 A. Public High Schools in Alturas . . . . . . . . . . . . . . . . . . . 9 B. Public Elementary/Middle Schools in Alturas . . . . . . . . 10 C. Private elementary/middle school in Alturas . . . . . . . . 10 D. Library in Alturas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10 2.1.5 Residential Absorption in Alturas . . . . . . . . . . . . . . . . . . . . . 11 2.2 County of Modoc . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12 2.2.1 Modoc County Background . . . . . . . . . . . . . . . . . . . . . . . . . . . 12 2.2.2 Modoc County Population . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13 2.2.3 Modoc County Water Resources . . . . . . . . . . . . . . . . . . . . . . . . 14 i Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 2.3 Daphnedale . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. . . 14 2.4 Climate and Weather. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14 3. CITY OF ALTURAS BACKGROUND . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15 3.1 City of Alturas Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15 3.2 City of Alturas Services . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16 3.2.1 Police . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16 A. Law Enforcement Overview . . . . . . . . . . . . . . . . . . . . . 16 1. Law Enforcement Services . . . . . . . . . . . . . . . 16 2. Law Enforcement Standards . . . . . . . . . . . . . . 17 3. Crime Clearance Rates . . . . . . . . . . . . . . . . . 18 B. Alturas Crime Statistics . . . . . . . . . . . . . . . . . . . . . . . . 18 C. Agreement with Sheriff and City of Alturas . . . . . . . . . . 19 D. Alturas Police Facilities . . . . . . . . . . . . . . . . . . . 20 3.2.2 Fire Protection Service . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20 A. Fire Protection Issues . . . . . . . . . . . . . . . . . . . . . . . . 20 1. Mutual Aid Issues . . . . . . . . . . . . . . . . . . . . . . . 20 2. Fire and EMS Dispatch Issues . . . . . . . . . . . . . 20 3. Fire and EMS Response Time Issues . . . . . . . 21 4. Fire Protection Staffing Issues . . . . . . . . . . . 22 5. Fire Protection Water Supply Issues . . . . . . . . 22 B. Alturas Fire Department Background . . . . . . . . . . . . . . 23 C. Alturas Fire Department Resources . . . . . . . . . . . . . . . . . 23 D. Alturas Fire Dept. Financing . . . . . . . . . . . . . . . . . . . . . . . . . . 25 3.2.3 City of Alturas Water Service . . . . . . . . . . . . . . . . . . . . . . . . . . 25 A. Groundwater Basin Background . . . . . . . . . . . . . . . . . 25 1. Alturas Groundwater Basin . . . . . . . . . . . . . . . . 25 ii Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 2. Groundwater Quantity and Quality . . . . . . . . . 26 B. Water Supply, Treatment and Distribution Background 27 C. City of Alturas Water Service Background . . . . . . . . . . 28 D. City of Alturas Water Rates . . . . . . . . . . . . . . . . . . . . . 29 E. Water Service Standards . . . . . . . . . . . . . . . . . . . . . . . 31 1. Water Quality Issues . . . . . . . . . . . . . . . . . . . . 31 2. Fire Flows . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31 F. Water Service Concerns . . . . . . . . . . . . . . . . . . . . . . . 31 3.2.4 City of Alturas Wastewater Collection and Treatment . . . . . . . 32 A. Wastewater Treatment Overview . . . . . . . . . . . . . . . 32 B. City of Alturas Wastewater Treatment Plant . . . . . . . 33 C. Wastewater Treatment Regulatory Concerns . . . . . . 33 D. Wastewater System Improvements . . . . . . . . . . . . . . 33 E. Wastewater Collection System . . . . . . . . . . . . . . . . . . 34 F. Alturas Sewer Service Rates . . . . . . . . . . . . . . . . . . . . 35 3.2.5 Solid Waste Disposal . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27 A. Solid Waste Regulations . . . . . . . . . . . . . . . . . . . . . . . 36 B. Solid Waste Disposal in Alturas . . . . . . . . . . . . . . . . . . 37 3.2.6 Circulation and Roads . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38 A. Traffic Measurement . . . . . . . . . . . . . . . . . . . . . . . . . . 38 B. Traffic in Alturas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 39 3.2.7 Park and Recreation Services . . . . . . . . . . . . . . . . . . . . . . . . . 43 3.2.8 Airport . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 44 3.2.9 Mosquito Abatement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45 3.3 Finances . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45 3.3.1 Financial Ability of Agencies to Provide Services . . . . . . . . . . . 45 A. Municipal Financial Constraints . . . . . . . . . . . . . . . . . . 45 iii Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 B. Local Government Finance Background . . . . . . . . . . . 45 C. Financing Opportunities that Require Voter Approval . 47 D. Financing Opportunities that Do Not Require Voter Approval . . . . . . . . . . . . . . . . . . 47 3.3.2 City of Alturas Financial Background . . . . . . . . . . . . . . . . . . . . 48 4. ALTURAS MUNICIPAL SERVICE REVIEW . . . . . . . . . . . . . . . . . . . . . . . . 51 4.1 Growth and Population Projections for the Affected Area . . . . . . . . 51 4.1.1 City of Alturas Population Growth . . . . . . . . . . . . . . . . . . . . 51 4.1.2 MSR Determinations on Growth and Population for the City of Alturas . . . . . . . . . . 51 4.2 Location and Characteristics of Any Disadvantaged Unincorporated Communities (DUCs) within and Contiguous to the City of Alturas . . . . 52 4.2.1 Determination of Alturas DUC Status . . . . . . . . . . . . . . . . . . . . 52 4.2.2 MSR Determinations re: DUCs . . . . . . . . . . . . . . . . . . . . . . . . . . . 52 4.3 Capacity and Infrastructure . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53 4.2.1 City of Alturas Infrastructure Background . . . . . . . . . . . . . . 53 4.2.2 MSR Determinations Regarding Capacity and Infrastructure For the City of Alturas 53 A. Police . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53 B. Fire Protection . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 54 C. Water . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 55 D. Wastewater Collection and Treatment . . . . . . . . . . . 55 E. Solid Waste . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 56 F. Streets and Roads . . . . . . . . . . . . . . . . . . . . . . . . . . 56 G. Park and Recreation Services . . . . . . . . . . . . . . . . . . 56 H. Airport Services . . . . . . . . . . . . . . . . . . . . . . . . . . . . 57 I. Mosquito Abatement Services . . . . . . . . . . . . . . . . . . 57 iv Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 4.3 Financial Ability . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 57 4.3.1 Financial Considerations . . . . . . . . . . . . . . . . . . . . . . . . . . . 58 4.3.2 MSR Determinations on Financial Ability for the City of Alturas . . . . . . . . . . . . . . . 58 4.4 Opportunities for Shared Facilities . . . . . . . . . . . . . . . . . . . . . . . . . . . 58 4.4.1 Facilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 58 4.4.2 MSR Determinations on Shared Facilities for the City of Alturas . . . . . . . . . . . . . . . 59 4.5 Government Structure and Accountability . . . . . . . . . . . . . . . . . . . 59 4.5.1 Government Structure Background . . . . . . . . . . . . . . . . . . . . . 60 4.5.2 Public Participation in Government . . . . . . . . . . . . . . . . . . . . . 61 4.5.3 MSR Determinations on Government Structure and Accountability for the City of Alturas . . . . . . . . . . 62 5. CITY OF ALTURAS SPHERE OF INFLUENCE (SOI) . . . . . . . . . . . . . . . . . . . . . . 63 5.1 Recommendations for the City’s SOI 5.2 Present and Planned Land Uses in the Alturas Area . . . . . . . . . . . . . . . . . . 63 5.3 Present and Probable need for Public Facilities and Services in the Alturas Area . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. . . .. . . 5.4. Present Capacity of Public Facilties and adequacy of public servcides . . . . . . 64 5.5 Social or Economic Communities of Interest . . . . . . . . . . . . . . . . . . . . 64 REFERENCES 65 PREPARERS 67 ABBREVIATIONS 68 DEFINITIONS 72 APPENDIX A: City Organizational Chart 78 APPENDIX B: Budget Summary 79 APPENDIX C: Daphnedale Subsidiary Boundaries Map 80 v Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 MAP Alturas SOI Plan 81 vi Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 1 INTRODUCTION 1.1 Local Agency Formation Commission (LAFCo) History This report is prepared pursuant to State Legislation enacted in 2000 (and funded with a grant from the California Department of Housing and Community Development) that requires Modoc LAFCo to complete a comprehensive review of municipal service delivery and update the spheres of influence (SOIs) of all agencies under LAFCo’s jurisdiction. This chapter provides and overview of LAFCo’s history, powers and responsibilities. It discusses the origins and legal requirements for preparation of a Service Review commonly referred to as a Municipal Service Review (MSR). Finally, the chapter reviews the process for MSR review, MSR approval and SOI updates. After World War II, California experienced dramatic growth in population and economic development. With this boom came a demand for housing, jobs and public services. To accommodate this demand, many new local government agencies were formed, often with little forethought as to the ultimate governance structures within a given region. A lack of coordination and adequate planning led to a multitude of overlapping, inefficient jurisdictional and service area boundaries, many of which resulted in the premature conversion of California’s agricultural and open-space lands and duplication of services. Recognizing this problem, in 1959, Governor Edmund G. Brown, Sr. appointed the Commission on Metropolitan Area Problems. The Commission’s charge was to study and make recommendations on the “misuses of land resources” and the growing complexity of local governmental jurisdictions. The Commission’s recommendations on local governmental reorganization were introduced in the Legislature in 1963, resulting in the creation of a Local Agency Formation Commission, or “LAFCo,” operating in every county. LAFCo was formed as a countywide agency to discourage urban sprawl and to encourage the orderly formation and development of local government agencies within its jurisdiction. LAFCo is responsible for coordinating logical and timely changes in local governmental boundaries; including annexations and detachments of territory, incorporations of cities, formations of special districts, and consolidations, mergers and dissolutions of districts, as well as reviewing ways to reorganize, simplify, and streamline governmental structure. The Commission’s efforts are focused on ensuring services are provided efficiently and economically while agricultural and open-space lands are protected or conserved to the extent possible. To better inform itself and the public in compliance with the State Law; LAFCo conducts MSR’s to evaluate the provision of municipal services for service providers within its jurisdiction. LAFCo regulates, through approval, denial, conditions and modification, boundary changes proposed by public agencies or individual voters and landowners. It also regulates the extension of public services by cities and special districts outside their boundaries. LAFCo is empowered to initiate updates to the SOIs and proposals involving the dissolution, consolidation or formation of special districts, establishment of subsidiary districts, and any reorganization including such actions. Where LAFCo is not given specific authority, LAFCo actions must originate as petitions from affected voters or landowners, or by resolutions by affected cities or special districts. 1 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 A Plan for Services is required in Government Code Section 56653. A Plan for Services must include the following information: An enumeration and description of services to be provided, the level and range of those services, an indication of how those services are to be extended into the territory, an indication of any improvements or upgrading of structures, information on how the services are to be financed. 1.2 Preparation of the MSR Research for this Municipal Service Review (MSR) was conducted in 2023. This MSR is intended to support preparation and update of Sphere of Influence, in accordance with the provision of the Cortese-Knox-Hertzberg Act. The objectives of this Municipal Service Review (MSR) are as follows: • To develop recommendations that will promote more efficient and higher quality service options and patterns • To identify areas for service improvement • To assess the adequacy of service provision as it relates to determination of appropriate sphere boundaries. While LAFCo prepared the MSR document, given budgetary constraints, LAFCo did not engage the services of experts in engineering, hydrology, geology, water quality, fire protection, accounting or other specialists in related fields, but relied upon published reports and available information. Insofar as there is conflicting or inconclusive information LAFCo staff may recommend the City retain a licensed professional or expert in a particular field for an opinion. Therefore, this MSR reflects LAFCo’s recommendations, based on available information during the research period and provided by City staff to assist in its determinations for service improvement; and assessing the adequacy of service provision by the City of Williams. Additional information on local government funding issues is found in Appendix A at the end of this report. 1.3 Role and Responsibility of LAFCo Local Agency Formation Commissions (LAFCos) in California are independent agencies created by the California Legislature in 1963 for the purpose of encouraging the orderly formation of local government agencies and conserving and preserving natural resources. The Cortese-Knox- Hertzberg Local Government Reorganization Act of 2000 (Government Code Section 56000 et seq.) is the statut4ory authority for the preparation of an MSR, and periodic updates of the Sphere of Influence (SOI) of each local agency. LAFCos are responsible for coordinating logical and timely changes in local governmental boundaries, conducting special studies that review ways to reorganize, simplify, and streamline governmental structure, preparing a review of services called an MSR, and preparing an SOI thereby determining the future “probable” boundary for each city and special district within each county. The Commission’s efforts are directed toward seeing that services are provided efficiently and economically while agricultural and open-space lands are protected. Often citizens are confused 2 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 as to what LAFCo’s role is. LAFCos do not have enforcement authority, nor do they have the authority to initiate a city or district annexation or detachment proceeding. LAFCos may initiate consolidation or dissolution proceedings; however, these proceedings are subject to voter approval or denial. The Legislature has given LAFCos the authority to modify and any proposal before it to ensure the protection of agricultural and open space resources, discourage urban sprawl and promote orderly boundaries and the provision of adequate services. The Governor’s Office of Planning and Research (OPR) has issued Guidelines for the preparation of an MSR. This MSR adheres to the procedures set forth in OPR’s MRS Guidelines. An SOI is a plan for the probable physical boundaries and service area of a local agency, as determined by the affected Local Agency Formation Commission (Government Code Section 56076). Government Code Section 56425(f) requires that each SOI be updated no less than every five years, and Section 56430 provides that an MSR shall be conducted in advance of the SOI update. 1.4 Municipal Services Review Requirements Effective January 1, 2002, and subsequently amended, LAFCo is required to conduct a review of municipal services provided in the county by region, sub-region or other designated geographic area, as appropriate, for the service or services to be reviewed, and prepare a written statement of determination with respect to each of the following six topics (Government Code Section 56430): 1. Growth and population projections for the affected area 2. The location and characteristics of any disadvantaged unincorporated communities (DUC) within or contiguous to the sphere of influence 3. Present and planned capacity of public facilities and adequacy of public services, including infrastructure needs or deficiencies 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. 3 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 1.5 Municipal Services Review Process For local agencies, the MSR process involves the following steps: 1. Outreach: LAFCo outreach and explanation of the project 2. Data Discovery: provide documents and respond to LAFCo questions 3. Map Review: review and comment on LAFCo draft map of the agency’s boundary and sphere of influence 4. Profile review: internal review and comment on LAFCo draft and MSR 5. Public Review Draft MSR: review and comment on LAFCo draft MSR 6. LAFCo Hearing: attend and provide public comments on MSR MSRs are exempt from the California environmental Quality Act (CEQA) pursuant to Section 15262 (feasibility or planning studies) or Section 15306 (information collection) of the CEQA Guidelines. LAFCo’s actions to adopt MSR determinations are not considered “projects” subject to CEQA. The MSR process does not require LAFCo to initiate changes of organization based on service review findings, only that LAFCo identify potential government structure options. However, LAFCo, other local agencies, and the public may subsequently use the determinations to analyze prospective changes of organization or reorganization or to establish or amend SOIs. Within its legal authorization, LAFCo may act with respect to a recommended change of organization or reorganization on its own initiative (e.g., certain types of consolidations), or in response to a proposal (i.e., initiated by resolution or petition by landowners or registered voters). Once LAFCo has adopted the MSR determinations, it must update the Sphere of Influence (SOI for each jurisdiction. The LAFCo Commission determines and adopts the spheres of influence for each agency. A CEQA determination is made by LAFCo on a case-by-case basis for each sphere of influence action and each change of organization, once the proposed project characteristics are sufficiently identified to assess environmental impacts. 1.6 Sphere of Influence Update Process The Commission is charged with developing and updating the Sphere of Influence (SOI) for each city and special district within the county.1 An SOI is a LAFCo-approved plan that designates an agency’s future boundary and service area. Spheres are planning tools used to provide guidance for individual boundary change proposals and are intended to encourage efficient provision of organized community services and prevent duplication of service delivery. Territory cannot be annexed by LAFCo or a city or district unless it is within that agency’s sphere. The purposes of the SOI include the following: 1 The initial statutory mandate, in 1971, imposed no deadline for completing sphere designations. When most LAFCos failed to act, 1984 legislation required all LAFCos to establish spheres of influence by 1985. 4 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 • To ensure the efficient provision of services • To discourage urban sprawl and premature conversion of agricultural and open space lands • To prevent overlapping jurisdictions and duplication of services LAFCo may not directly regulate land use, dictate internal operations or administration of any local agency, or set rates. LAFCo is empowered to enact policies that indirectly affect land use decisions. On a regional level, LAFCo promotes logical and orderly development of communities as it considers and decides individual proposals. LAFCo has a role in reconciling differences between agency plans so that the most efficient urban service arrangements are created for the benefit of current and future area residents and property owners. The Cortese-Knox-Hertzberg (CKH) Act requires LAFCos to develop and determine the SOI of each local governmental agency within its jurisdiction and to review and update the SOI every five years, as necessary. LAFCos are empowered to adopt, update and amend an SOI. They may do so with or without an application. Any interested person may submit an application proposing an SOI Amendment. While SOIs are required to be updated every five years, as necessary, this does not necessarily define the planning horizon of the SOI. The term or horizon of the SOI is determined by each LAFCo. LAFCo may recommend government reorganizations to particular agencies in the county, using the SOIs as the basis for those recommendations. In determining the SOI, LAFCo is required to complete an MSR and adopt the six determinations previously discussed. In addition, in adopting an SOI, LAFCo must make the following five determinations as required in Government Code Section 56425(c): 1. Present and planned land uses in the area, including agricultural and open-space lands. 2. Present and probable need for public facilities and services in the area if the Commission determines these are relevant to the agency. 3. Present capacity of public facilities and adequacy of public service that the agency provides or is authorized to provide 4. Existence of any social or economic communities of interest in the area if the Commission determines these are relevant to the agency. 5. For an update of an SOI of a city or special district the provides public facilities or services related to sewers, municipal and industrial water, or structural fire protection, the present and probable need for those public facilities and services of any disadvantaged unincorporated communities within the existing sphere of influence.2 The CKH Act stipulates several procedural requirements in updating SOIs. It requires cities to file written statements on the class of services to be provided and LAFCo must clearly establish the location, nature and extent of services provided by special districts. By statute, LAFCo must notify affected agencies 21 days before holding the public hearing to consider the SOI and may not update the SOI until after that hearing. The LAFCo Executive 2 California Government Code Section 56425 (e)(5) 5 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 Officer must issue a report including recommendations on the SOI amendments and updates under consideration at least five days before the public hearing. 1.7 Possible Approaches to the Sphere of Influence LAFCo may recommend government reorganizations to particular agencies in the county, using the SOIs as the basis for those recommendations. Based on review of the guidelines of Modoc LAFCo as well as other LAFCos in the State, various conceptual approaches have been identified from which to choose in designating an SOI. These seven approaches are explained below: 1) Coterminous Sphere: A Coterminous Sphere means that the Sphere of Influence for a city or special district is the same as the existing boundaries of the city or district. 2) Annexable Sphere: A sphere larger than the agency’s boundaries identifies areas that the agency is expected to annex. The annexable area is outside the district boundaries and inside the sphere of influence. 3) Detachable Sphere: A sphere that is smaller than the agency’s boundaries identifies areas the agency is expected to detach. The detachable area is within the agency’s boundary but not within its sphere of influence. 4) Zero Sphere: A zero sphere indicates the affected agency’s public service functions should be reassigned to another agency and the agency should be dissolved or combined with one or more other agencies. 5) Consolidated Sphere: A consolidated sphere includes two or more local agencies and indicates the agencies should be consolidated into one agency. 6) Limited-Service Sphere: A limited-service sphere is the territory included within the SOI of a multi-service provider agency that is also within the boundary of a limited purpose district which provides the same service (e.g., fire protection), but not all needed services. Territory designated as a limited-service SOI may be considered for annexation to the limited purpose agency without detachment from the multi- service provider. This type of SOI is generally adopted when the following conditions exist: A) The limited-service provider is providing adequate, cost effective and efficient services. B) The multi-service agency is the most logical provider of the other services C) There is no feasible or logical SOI alternative D) Inclusion of the territory is in the best interests of local government organization and structure in the area. 6 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 Government Code Section 56001 specifically recognizes that in rural area it may be appropriate to establish limited purpose agencies to serve an area rather than a single service provider, if multiple limited-purpose agencies are better able to provide efficient services to an area rather than one service district. Moreover, Government Code Section 56425(I), governing sphere determinations, also authorizes a sphere for less than all of the services provided by a district by requiring a district affected by a sphere action to “establish the nature, location, and extent of any functions of classes of services provided by existing districts” recognizing that more than one district may serve an area and that a given district may provide less than its full range of services in an area. 1.8 Description of the Public Participation Process LAFCo proceedings are subject to the provisions of California’s open meeting law, the Ralph M. Brown Act (Government Code Sections 54950 et seq.). The Brown Act requires advance posting of meeting agendas and contains various other provisions designed to ensure that the public has adequate access to information regarding the proceedings of public boards and commissions. Modoc LAFCo complies with the requirements of the Brown Act. The State MSR Guidelines provide that all LAFCos should encourage and provide multiple public participation opportunities in the MSR process. 7 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 2 SETTING 2.1 City of Alturas 2.1.1 History Alturas is the most northeastern incorporated city in the State of California. It is the County Seat of the County of Modoc. The City was incorporated September 16, 1901 as a General Law City. Alturas now occupies what was formerly an Achumawi (Pit River) village known as Kosealekte. The City was initially known as Dorris Bridge, named after Jim Dorris, the first non-native settler in the area who settled in 1869. In 1876, the town was renamed Alturas, which means "The Heights" in Spanish. Alturas provides for public safety (police, fire and civil defense); highways and streets; water service, wastewater conveyance and treatment, solid waste removal, mosquito abatement, airport services, planning and general administration. The City has a five-member City Council elected at large for 4-year terms. It has an elected City Clerk and City Treasurer who serve 4-year terms. The Planning Commission is appointed by the City Council and serves at the pleasure of the Council. The City has an appointed Public Works Director who oversees enterprise functions such as water and wastewater, parks, planning, buildings and grounds, roads, and mosquito abatement. The City has a volunteer Fire Chief, a paid Fire Marshall, and a paid Police Chief. As the County Seat, the City is a home to regional government offices, including a California Highway Patrol office and a State Department of Motor Vehicles office. The Surprise Valley Electrical Cooperative, The Modoc Subdivision track of the Union Pacific Railroad, and the Lake County Railroad, (of Lake County Oregon) serve the area. It is also the headquarters to the Modoc National Forest, the Alturas Field Office of the Bureau of Land Management (BLM), the Modoc National Wildlife Refuge, the Natural Resources Conservation Service (NRCS), and is the trade center for the agricultural region, which produces beef, sheep, potatoes, alfalfa and lumber albeit lesser than in the past. Despite its abundance of wilderness, recreational opportunities, hunting and fishing activities, and natural beauty, tourism is not a major sector of the local economy, which is largely due to the City's remote location. Local, State, Federal, and Tribal governments are the largest employers in Alturas. A vibrant timber industry collapsed in the early 1980s due to increased production costs and low market prices for softwood lumber. The Alturas Rancheria, a federally recognized tribe of the Achomawi Indians (Pit River Indians), operates a small casino east of the City on 20 acres outside the city limits. 8 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 2.1.2 Alturas General Plan The Alturas General Plan was adopted in June 1987.3 The Plan stresses the development of tourism as a means of job creation and economic development. The Housing Element Cycle 6 was adopted in August 2019, which identifies housing needs through 2024. The Economic Development and Redevelopment Elements were adopted in 2014. 2.1.3 Alturas Population Data The population was 2,892 according to the 2000 census, and in 2022 the population was 2,713, which is a decline of 6% over the 22-year time period. The City has experienced a continuous decline since 1988 from the City’s population of 3,038. According to the California State Department of Finance the population continues to have a declining trend with a January 2023 population of 2,651. In 2017, the City of Alturas had 1,312 households out of which 23.6% had children under the age of 18 living with them, 43.1% were married couples living together, and 57.2% were non-family households. The average household size was 1.99 and the average family size was 2.52. In 2017, the City of Alturas had a population of ages distributed as follows: Under the age of 18 19% 18 to 24 years of age 1.4% 25 to 44 years of age 31.6% 45 to 64 years of age 30.0% 65 years of age or older 19.3% The City’s population was primarily made up of residents over 25, with 25- to 44-year-olds making up the largest proportion of the City, and 45- to 64-years-olds making up a close second. The median age was 43.6 years. In 2022, the median income for a household in the City was $50,843 and the state median household income was $84,097. In 2022, the per capita income for the City was $19,281. About 18.1% of the population in the City lived below the poverty line in 2022, and the child poverty rate was 20.2%. 2.1.4 Educational Facilities A. Public High Schools in Alturas 1. Modoc Charter School 214 West 1st St., Alturas, CA 9 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 2. Modoc High School 900 North Main St. Alturas, CA 3. Modoc County Special Education 139 Henderson St. Alturas CA 4. Modoc County Community High School 139 Henderson St., Alturas, CA 5. Warner High School 802 North East St., Alturas CA Grades: 10-12 B. Public Elementary/Middle Schools in Alturas 1. Alturas Elementary School 809 West Eighth St., Alturas CA 2. Modoc Middle School 906 West Fourth St. 3. High Desert Community Day School 802 North East St., Alturas CA 4. Alturas Community Day School 906 West Fourth St., Alturas CA C. Private elementary/middle school in Alturas 1. Alturas Mennonite School PO BOX 75, Alturas CA D. Library in Alturas The Modoc County Library is located in Alturas at 212 W. Third Street. The Library contains the following materials: • 69,444 books • 1,587 audio materials • 1,958 video materials • 129 serial subscriptions4 4 http://www.city-data.com/city/Alturas-California.html 10 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 2.1.5 Alturas Residential Absorption The City of Alturas adopted an updated Housing Element in 2019 for the period through September 1, 2024, which has been certified by the State of California. The Housing Element consists of a single document including background and policies. In combination with population data from the California Department of Finance, information from the 2019 Alturas Housing Element forms the basis of the residential absorption study. As noted in the Housing Element, Alturas is experiencing a declining population. Alturas began losing population after 1988 when its highest recorded population topped out at 3,231 people. According to the American Community Survey of the United States Census Bureau, Alturas had a population of 2,827 in 2010, 2,715 in 2020, and 2,651 in 2023, which constitutes a population decline of 4.0% between 2010 and 2020. Unless new businesses or residential growth comes to Alturas, this trend is expected to continue. The Housing Element Report Table B-1 identifies vacant residential sites within the Alturas City limits. Below is a sample of the data included for each vacant parcel within the City. Table B-1: Sample Inventory of Vacant Residential Infill Sites Available for RHNA Units APN 002-032-019 002-032-020 003-250-018 Acreage 6.34 ac. 4.46 ac. 3.89 ac. Description Flat, surrounded by Flat, surrounded by Planned expansion paved City streets, paved City streets, area for Alturas utilities in street. utilities in street. Gardens apartment Sewer line may need Sewer line may need project. Flat, two upgrading depending upgrading depending blocks from on density of project. on density of project. downtown, one block Contiguous to 002- Contiguous to 002- from major City park. 032-020. 032-019. General Plan High Density High Density Medium Density Residential (HDR) Residential (HDR) Residential (MDR) Zoning High Density High Density Medium Density Residential (R3) Residential (R3) Residential (R2) Max Density (du/ac) 29 29 15 Capacity 147 units 103 units 47 units Income Category 1 extremely low 1 extremely low 1 extremely low 1 very low 1 very low 1 very low 1 moderate 1 moderate 1 moderate 3 above moderate 3 above moderate 3 above moderate The Alturas Housing Element concluded the land inventory completed in preparation for the Housing Element identified many opportunities for housing development within the City, showing an added capacity of 3,724 units based on the amount of vacant land zoned for housing alone. In addition to these infill opportunities, which include small lots zoned for single family housing as well as larger properties zoned for multi-unit and mixed-use developments, there are numerous 11 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 redevelopment opportunity sites that could be used for housing, not to mention the added capacity afforded by Accessory Dwelling Units (ADUs). In conclusion, if there were a market for it, if water and sewer lines were extended, and if the City transitions to a land disposal wastewater system, the City could more than triple its housing units with the amount of vacant land currently zoned for housing. As for Daphnedale, the existing wastewater collection infrastructure was designed for a total of 250 connections, of which 42 connections are being used at this time. There is a remaining capacity to add 208 additional residential connections, notwithstanding other constraints such as groundwater availability, since there is no water system in Daphnedale. This area is unincorporated, and the City does not have jurisdiction over land use. 2.2 County of Modoc 2.2.1 Modoc County Background The County's official slogans include, "The last best place," and "Where the West still lives." Modoc County was formed when California Governor Newton Booth signed an Act of the California Legislature on February 17, 1874. Land for the County was taken from the eastern part of Siskiyou County. A large portion of Modoc County is Federal reservations. Several government agencies form a significant part of the economy and provide services to this rural area. The Federal presence in Alturas includes the following agencies and departments: • US Forest Service • Bureau of Land Management • National Park Service • Bureau of Indian Affairs • US Fish and Wildlife Service. The northern half of the County is the Modoc Plateau, a one-mile high expanse of lava flows, cinder cones, juniper flats, pine forests, and seasonal lakes. Nearly 1 million acres of the Modoc National Forest lie on the plateau between the Medicine Lake Highlands in the west and the Warner Mountains in the east. The Plateau supports large herds of mule deer (Odocoileus Hemionus), Rocky Mountain Elk (Cervus Canadensis), and pronghorn antelope (Antilocapra Americana). There are also several herds of wild horses on the plateau. The Clear Lake National Wildlife Refuge and Long Bell State Game Refuge are located on the plateau as well. The Lost River watershed drains the north part of the plateau, while southern watersheds either collect in basin reservoirs or flow into the large Big Sage Reservoir, which sits in the center of the County. 12 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 2.2.2 Modoc County Population As of 2022, there were 8,511 people in Modoc County compared to 9,449 people in 2002. There are a total of 4,767 housing units in Modoc County. The median income for a household in Modoc County was $51,090, and the per capita income for the County was $26,084. About 19.9% of the population were below the poverty line. Modoc County had the lowest median household income of any county in California in 2000. In 2022, the County with the lowest median household income was Imperial County. 2.2.3 Modoc County Water Resources Modoc County is the only County in the Northern District of the State Department of Water Resources that spans three Hydrologic Regions. Hydrologic regions are defined as "major drainage basins" by The California Water Plan. • The County's north-western watersheds contribute their runoff to the Pacific Ocean by way of the Klamath River through the North Coast Hydrologic Region. • The eastern edge of the County is included in the North Lahontan Hydrologic Region, meaning its waters drain to the closed system of alkaline lakes in the North Lahontan Basin and do not drain to the sea. • The central and south-western portions of the County feed through the Sacramento River Hydrologic Region toward the Sacramento-San Joaquin Delta. Notable water resources of Modoc County include Clear and Goose Lakes, Upper, Middle, and Lower Alkali Lakes, Big Sage Reservoir, and the Pitt River.5 2.3 Daphnedale 2.3.1 Daphnedale Community Services District Background In March 1973, the Health Department stopped issuing permits for the installation of individual sewage systems in the Daphnedale area. That year, the Modoc County Health Department issued a moratorium on new septic systems in the Daphnedale area, based on water quality hazards. Attempts to remedy the hazards were unsuccessful. In 1976, a survey was conducted with the purpose of documenting existing public health hazards and nuisances created by the discharge of wastewater from individual disposal systems. This survey was initiated when concerned citizens met with the Modoc County Board of Supervisors regarding the establishment of a wastewater collection system in the Daphnedale area. The conclusion substantiated a serious health hazard existed in the community and further documented the need for a community sewer system. The Daphnedale Community Services District (CSD) was formed in 1976 as a response to a moratorium on on-site disposal systems and chronic groundwater pollution hazards. The District was formed with the powers to supply water and to collect and dispose of sewage, but the only power that was used is the power to collect wastewater. (In 2001, the legislature stripped all previously approved powers from CSD’s excepting those powers the CSD actually was performing at that time.) The reason given for the formation of the District referenced a survey of septic tank systems made by the Modoc County Sanitarian showing that the systems were not 5California Department of Water Resources:http://www.nd.water.ca.gov/IndexFiles/WaterResources/Modoc/ 13 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 functioning correctly. The CSD was dissolved in 2022 in favor of establishing a subsidiary district of the City of Alturas. The City Council acts as the governing body to the district to provide and manage wastewater collection services in the Daphnedale area similar to a City Department. The area of the subsidiary district, including the Daphnedale community is shown in Appendix C. The sewer lines were installed in 1980 and are connected to the City of Alturas wastewater treatment plant. Before the sewer lines were constructed, an Environmental Impact Report (EIR) was prepared by Hammond Engineering of Klamath Falls, Oregon in 1979 documenting the health and safety concerns and examining several alternatives to provide wastewater collection services in Daphnedale. Hammond Engineering then prepared an analysis of two types of sewage collection systems: gravity and low pressure. The gravity system, which was ultimately installed, was more expensive to construct, but the maintenance cost was less. The Daphnedale area consists of 175 acres more or less. Approximately one-half of the Daphnedale area is within the Daphnedale Park Subdivision. The Daphnedale sewer system is a small diameter gravity system, with a design capacity of about 250 hook-ups which would be sufficient to serve a population of approximately 600 individuals. The system is located north of 19th Street between a line extended north of Juniper Street and East Street and currently collects wastewater from 42 residential connections. Nevertheless, some individual sewage systems have been built in the area due to mistakes made in the past during the building permit entitlement process and lack of communication between the Daphnedale CSD, the City, and the County. This is unfortunate because it makes it more difficult to develop future lots on the sewer line. Prior to the CSD’s dissolution on August 11, 2021, the Daphnedale CSD failed to comply with several laws required of special districts and did not fund its proportionate share for sewer collection and treatment to the City. The formation of a subsidiary district gave the City control over the service charges in Daphnedale to ensure sufficient financing for the sewer system. In other words, the wastewater connections in Daphnedale are treated the same as within the City’s incorporated limits with regard to services and applicable charges. The Daphnedale CSD had never had an audit of the financial transactions. Today the City Subsidiary District is responsible for auditing financials for the district. 2.4 Climate and Weather Alturas, CA has a semi-arid climate with warm summers and cold winters. The average high temperature in the summer is in the high 90s and the average low in the winter is in the mid 20s. Rainfall averages around 12 inches per year, with most of it occurring during the winter months. Snow is rare, but not unheard of during the winter months when temperatures reach below freezing. Alturas also experiences strong winds during spring and fall months due to its location. Alturas received 13 inches of rain, on average, per year. The US average is 38 inches of rain per year. Alturas averages 24 inches of snow per year. The US average is 28 inches of snow per year. On average, there are 245 sunny days per year in Alturas. The US average is 205 sunny days. A Climate Summary Table is shown in Appendix A. 14 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 3 CITY OF ALTURAS BACKGROUND 3.1 City of Alturas Management The City’s management consists of an Elected City Council, Elected City Clerk and an Elected City Treasurer. The City Council Appoints a Police Chief and Public Works Director. City staff reports to one of the four department heads. The City also has a volunteer fire department with one paid fire marshal and a volunteer Fire Chief who receives a stipend. An organizational chart is included as Appendix A. The City Council meets on the second Tuesday of each month at 7:00 p.m. The meetings are held at 200 West North Street, Alturas, CA. City Council members in November 2023 were as follows: • Brian Cox, Mayor • Cheryl Nelson, Mayor Pro-Tem • Paul Minchella • Samantha Wood • Kelly Crosby Contact Information for the City is as follows: City of Alturas 200 W. North Street Alturas CA 96101 Phone: 530-233-2512 FAX: 530-233-3559 Website: www.cityofalturas.org 3.2 City of Alturas Services 3.2.1 Police A. Law Enforcement Overview 1. Law Enforcement Services Although patrol is the most visible Police Department service, law enforcement agencies may provide a host of other public safety services including the following: • Dispatch service • 24/7 patrol service • Fingerprinting services • Training services • Animal shelter services • Unique patrol services These service areas will be described below. Patrol services can be provided by officers traveling by vehicle, bicycle, horse, boat, helicopter or on foot. 15 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 Dispatch services include receiving 9-1-1 calls and notifying response units through emergency communication systems. Police dispatchers typically answer 9-1-1 calls related to both police and fire emergencies. For fire and medical emergencies, some police dispatchers may directly perform the dispatching while others may route calls to a dispatch center specialized in handling fire and medical emergencies. Animal control services are often provided by law enforcement agencies (as is the case in Alturas), and may involve capturing, sheltering, and disposing of lost animals. 2. Law Enforcement Standards The Commission on Accreditation for Law Enforcement Agencies (CALEA) is a national organization that functions as an independent accrediting authority. Law enforcement agencies may voluntarily choose to apply for CALEA accreditation. CALEA offers an accreditation program as well as a law enforcement recognition program in which the agency is required to meet a more modest list of standards. CALEA law enforcement accreditation does not require the law enforcement agency to meet specific benchmarks in terms of response time, staffing levels or crime clearance rates. CALEA accreditation requires the police service provider to pass inspection and to meet dozens of requirements such as annual documented performance evaluation of each employee, investigation of all complaints against the agency and its employees, and annual review of allocation and distribution of personnel. The California Peace Officers Association (CPOA) has developed sample law enforcement agency policies on use of force, use of safety belts, review of complaints about personnel, fitness for duty evaluations, and law enforcement values. For example, the sample policy on conducting reviews states, “it should be standard practice for all law enforcement agencies to conduct comprehensive and thorough investigations into any allegation of misconduct or substandard service, whether such allegations are from citizen complaints or internally generated.” Hence, policies relating to ethics and evaluation standards are readily available to law enforcement agencies. The California Commission on Peace Officer Standards and Training (POST) has developed standards for the testing and selection of police officer applicants as well as the training of police officers, dispatchers, and detectives. 3. Crime Clearance Rates The effectiveness of a law enforcement agency can be gauged by many factors, including crime clearance rates or the portion of crimes that are solved. There are no standards or guidelines on the proportion of crimes that should be cleared. Cleared crimes refer to offenses for which at least one person was arrested, charged with the offense, and turned over to the appropriate court for prosecution. A crime is also considered cleared by exceptional means if the offender dies, the victim refuses to cooperate or extradition is denied. 16 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 B. Alturas Crime Statistics The following table shows the crime statistics for the City of Alturas. Crime rates in Alturas are generally low. Crime rates peaked in 2017, declined through 2019, and rose again in 2020. Burglaries, thefts, and assaults make up a vast majority of crimes in the City. Crime in Alturas, by Year Source: https://www.city-data.com/city/Alturas-California.html TYPE 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 Murders 0 0 1 1 4 0 0 2 0 0 0 Per 100,000 0 0 36 37 153 0 0 80 0 0 0 Rapes 2 3 4 4 3 13 5 2 0 2 4 Per 100,000 71 105 143 149 115 507 196 80 0 81 158 Robberies 0 2 3 2 1 2 1 3 3 1 1 Per 100,000 0 70 107 75 38 78 39 120 120 40 39 Assaults 3 13 28 21 21 20 16 32 21 7 9 Per 100,000 106 455 999 783 803 779 628 1284 840 283 355 Burglaries 28 15 22 23 32 9 34 31 27 14 15 Per 100,000 990 525 785 858 1224 351 1334 1244 1080 567 592 Thefts 30 36 38 46 51 48 74 88 38 13 23 Per 100,000 1061 1259 1356 1716 1951 1870 2903 3531 1520 526 907 Auto Thefts 5 3 2 2 6 4 8 10 11 3 6 Per 100,000 177 105 71 75 230 156 314 401 440 121 237 Arson 1 4 3 0 1 4 0 2 1 0 0 Per 100,000 35 140 107 0 38 156 0 80 40 0 0 City-Data.com Crime Index: 204 291 533 508 752 696 529 778 375 204 306 Crime Index: (higher number means more crime, U.S. average = 254.8) C. Agreement with Sheriff and City of Alturas The Modoc County Sheriff and the City patrol the City of Alturas 24 hours per day 7 days per week. The City Police cover the Casino (one mile outside of the City) and Modoc Recreational Estates at other times. There are seven full-time sworn officers with 0.5 animal control officer and 1.5 nonsworn clerical employees. The number of sworn officers per capita is a traditional indicator of service level. There are no established State or national standards for police staffing levels. The average California city has 1.5 paid sworn officers per 1,000 residents. With a 2022 population of 2,693; there are 2.59 paid sworn officers per 1,000 residents, which is above the 17 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 State average. This is often the case for smaller cities because it costs more per capita to provide the same level of services as other more populated areas. The sworn officers include the Chief, Lieutenant, Sergeant and four Officers. The City provides the animal control facility for the County. The police personnel have from one to thirty plus years of experience. The Sheriff provides the 9-1-1 Emergency Dispatch services. The Sheriff’s Office provides dispatch for 23 public agencies providing fire, medical, and law enforcement services. The system includes six 9-1-1 lines and two Next Generation 9-1-1 lines that are able to track the location of calls originating from cell phones. D. Alturas Police Facilities The Police Station was enlarged in 2004. A new police car is purchased every two years and the weapons are in good condition. The City has recently purchased a life scan finger printing device. Updated computer equipment and programs would be helpful. The staff would like an indoor firing range facility. 3.2.2 Fire Protection Service A. Fire Protection Issues The following is a general discussion of fire protection including mutual Aid, dispatch, response time, staffing, and water supply. 1. Mutual and Automatic Aid Most fire protection and EMS providers primarily serve their own jurisdictions. Given the critical need for rapid response, however, there are extensive mutual aid efforts that cross jurisdictional boundaries. Mutual aid refers to reciprocal service provided under a mutual aid agreement, a pre-arranged plan and contract between agencies for reciprocal assistance upon request by the first-response agency. In addition, the jurisdictions rely on mutual aid primarily for coverage of areas with street access limitations and freeways. The City has mutual aid agreements with the Modoc Medical Center, the Mill, and schools. Automatic aid refers to reciprocal service provided under an automatic aid agreement, a prearranged plan or contract between agencies for an automatic response for service with no need for a request to be made. The City has an automatic aid agreement with CAL FIRE for an active shooter situation. 2. Fire and EMS Dispatch Dispatch services for the Alturas Fire Department are provided by the Modoc County Sheriff’s Office. Dispatch for fire and medical calls is increasingly becoming regionalized and specialized. This increased regionalization and specialization is motivated by the following factors: 18 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 1) Constituents increasingly expect emergency medical dispatching (EMD), which involves over-the-phone medical procedure instructions to the 9-1-1 caller and requires specialized staff. 2) Paramedics increasingly rely on EMD, which also involves preparing the paramedic en- route for the type of medical emergency and procedures. 3) Dispatch technology and protocols have become increasingly complex. 4) Modern technology has enabled better measurement and regulatory oversight of fire department (FD) response times, and increased pressure for FDs to meet response time guidelines. 5) FDs need standard communication protocols due to their reliance on mutual aid. 6) Dispatching of calls from cell phones has become more efficient in dealing with multiple transfers, length of time the caller spends on hold, and geolocation information. Response times are delayed when callers that are unfamiliar with the area are unable to describe rural locations to the dispatch personnel and the dispatch system lacks geolocation capabilities. 7) All cell phones are now equipped with GPS; older phones have been replaced by phones with GPS capability and/or construction of specialized cell phone towers. 8) NFPA recommends a 60-second standard for dispatch time, the time between the placement of the 9-1-1 call and the notification of the emergency responders. The Center for Public Safety Excellence recommends a 50-second benchmark for dispatch time. 9) There are clear economies of scale in providing modern fire and medical dispatch services. 3. Fire and EMS Response Times Response times reflect the time elapsed between the dispatch of personnel and the arrival of the first responder on the scene. For fire and paramedic service, there are service standards relating to response times, dispatch times, staffing, and water flow. Particularly in cases involving patients who have stopped breathing or are suffering from heart attacks, the chances of survival improve when the patient receives medical care quickly. Similarly, a rapid fire suppression response can potentially prevent a structure fire from reaching the “flashover” point at which very rapid fire spreading occurs—generally in less than 10 minutes.6 6 NFPA Standard 1710 19 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 The guideline established by the National Fire Protection Association7 (NFPA) for fire response times is six minutes at least 90 percent of the time, with response time measured from the time of the 9-1-1 call to the arrival time of the first-responder at the scene.8 The fire response time guideline established by the Center for Public Safety Excellence (formerly the Commission on Fire Accreditation International) is 5 minutes 50 seconds at least 90 percent of the time.9 The Alturas Fire Department has an average response time of four minutes. While the 90th percentile response time is unknown, it appears that the City likely meets both the NFPA and Center for Public Safety Excellence response time standards. 4. Fire Protection and EMS Staffing The City of Alturas Fire Department has 40 active volunteers with an average age of between 20 and 40 years of age, a fire Chief, a Fire Marshal, two Captains, and four Lieutenants. The City has a paid Fire Marshal and a Fire Chief, who receives a stipend for services. There are two members trained as Emergency Medical Technicians (EMT), one EMT I trained in Basic Life Support and one EMT II trained in Advanced Life Support. For structure fires, NFPA recommends that the response team include 14 personnel—a commander, five water supply line operators, a two-person search and rescue team, a two-person ventilation team, a two-person initial rapid intervention crew, and two support people. The NFPA guidelines require fire departments to establish overall staffing levels to meet response time standards, and to consider the hazard to human life, firefighter safety, potential property loss, and the firefighting approach. NFPA recommends that each engine, ladder or truck company be staffed by four on-duty firefighters, and that at least four firefighters (two in and two out), each with protective clothing and respiratory protection, be on scene to initiate fire-fighting inside a structure. The Occupational Safety and Health Administration (OSHA) standard requires that when two firefighters enter a structure fire, two will remain on the outside to assist in rescue activities.10 For emergency medical response with advanced life support needs, NFPA recommends the response team include two paramedics and two basic-level emergency medical technicians. 5. Fire Protection Water Supply Issues For structure fires, NFPA recommends the availability of an uninterrupted water supply for 30 minutes with enough pressure to apply at least 400 gallons of water per minute (gpm). Fire Flows in the City are 3,000 gpm, which greatly exceeds the minimum standard. Water for fire protection is available throughout the City. 7 The National Fire Protection Association is a non-profit association of fire chiefs, firefighters, manufacturers and consultants. 8 Guideline for a full structure fire is response within ten minutes by a 12-15 person response team at least 90 percent of the time. 9 Commission on Fire Accreditation International 10 29 CFR 1910.134. 20 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 B. Alturas Fire Department Background In 2022, the Fire Department responded to 407 calls, of which 44 were fire calls and a majority of the remainder were medical related calls.11 The greater number of medical calls is similar to most fire departments in California. The Sheriff’s Office manages dispatch for the entire County as well as the City. There is a County Fire Chiefs Association which meets bi-monthly. Training for the volunteers is offered twice per month, meeting fire department standards. The City works with adjacent fire districts, such as Alturas Rural, in training efforts. Ambulance service is provided by the Last Frontier Healthcare District’s Modoc Medical Center. The Insurance Services Office (ISO) rating for the Alturas Fire Department is 2, which is in the top five percent of fire agencies nationwide. As a result of this rating, homeowners and businesses have lower insurance costs. This rating is based predominantly upon water supply and response times, in which the FD excels. C. Alturas Fire Department Resources The Fire Department has the following vehicles and two rescue vehicles in addition to other miscellaneous equipment: Engine 71 • 1993 • Pierce Ladder Truck Engine 7125 • 2020 • Rosenbauer Pumper • Type One, 1250 gpm pumper • 750-gallon booster tank • 30-gallon foam Engine 7126 • 1976 • International Pumper, Type One • 1000-gpm pumper Engine 7127 • 1995 • 1500 Gallons per minute pumper • 750 Gallon Water Tank • 30 gallons of foam 11 City of Alturas, Eric Hunter, Fire Marshal, Oct 10 2023. 21 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 Engine 7129: • 1969, • International Pumper, Type One • 1000 gpm pumper/ladder truck Engine 7147: • 1973 • Ford F 350 4X4 Quick Attack/wildland/brush patrol, Type 6 • 250 GPM pump • 350-gallon booster tank Engine 7148: • 1990 • International Wildland Apparatus • 500 GPM pump • 750-gallon booster tank Rescue 7150: • 1996 • Kodiak Rescue, Type Three • Light-duty rescue/service company12 Fire Marshall and Rescue Truck The Department could use an updated ladder truck with the ability to handle rescues. D. Alturas Fire Department Financing The City of Alturas Fire Department is funded by the City General Fund. There are no special taxes, assessments or Development Impact fees to offset the impacts of growth upon fire protection. Fire department financials are explained in the finance section of this report. The Fire Department is augmented by Engine Company 1 which is a 501c3. This organization pays for insurance for the volunteers and sponsors various community events on behalf of the Alturas Fire Department. 12 City of Alturas, Fire Department, 102 South Howard, Alturas CA 96101, October 10, 2023. 22 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 3.2.3 City of Alturas Water Service A. Groundwater Basin Background 1. Alturas Groundwater Basin The City of Alturas gets water from the South Fork Pit River Groundwater Subbasin, which is part of the Alturas Groundwater Basin (Groundwater Basin Number 5-2.01). The Alturas Groundwater Basin covers 178 square miles. In addition to the City of Alturas, the California Pines CSD and the Hot Springs Valley Irrigation District also take water from this Groundwater Basin.13 According to the California Department of Water Resources “California’s Groundwater Bulletin 118” The South Fork Pit River Groundwater Subbasin is bounded on the east by Plio- Pleistocene basalt and Pleistocene Pyroclastic rocks of the Warner Mountains, to the north by Pleistocene basalt of Devils Garden, to the south by Plio-Pleistocene basalt, and to the west by Warm Springs tuff. The South Fork Pit River enters the Basin near the community of Likely and flows north through the South Fork Pit River Valley to its confluence with the North Fork Pit at the town of Alturas. Annual precipitation ranges from 13 to 19 inches. The three principal water-bearing formations are as follows: • Holocene sedimentary deposits (which include alluvial fan deposits, intermediate alluvium, and basin deposits), Holocene Sedimentary Deposits include alluvial fan deposits, intermediate alluvium and basin deposits each up to a thickness of 75 feet. Alluvial fan deposits consist of unconsolidated to poorly consolidated crudely stratified silt, sand and gravel with lenses of clay. These deposits generally have high permeability and are capable of yielding large amounts of water to wells. This unit may include confined as well as unconfined water. Intermediate alluvium consists of unconsolidated poorly sorted silt and sand with some lenses of gravel. These deposits have moderate permeability and yield moderate amounts of water to shallow wells. Basin deposits consist of unconsolidated, interstratified clay, silt and fine sand. These deposits have moderate to low permeability and yield small amounts of water to wells. 13 California Department of Water Resources: http://www.dpla2.water.ca.gov/publications/groundwater/bulletin118/basins/pdfs_desc/5-2.01.pdf, September 19, 2008. 23 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 • Pleistocene lava flows, and near-shore deposits Pleistocene near-shore deposits consist of slightly consolidated to cemented poorly to well stratified pebble and cobble gravel with lenses of sand and silt to a thickness of 200 feet. The most extensive near-shore deposits occur in the northeast corner of the basin where the North Fork Pit River enters the Valley. Other minor areas of these deposits occur but are not considered significant as water-bearing areas. These deposits have moderate permeability and may yield fair to moderate amounts of unconfined water to wells. The Pleistocene volcanic rocks consist of lava flows of layered, jointed basalt ranging in thickness from 50 to 250 feet. These basalt flows serve as recharge zones where exposed in the uplands surrounding the basin. Within the basin, where saturated, scoriaceous zones and joints in the basaltic flows occur interbedded with the upper member of the Alturas Formation in the Valley areas. • Plio-Pleistocene Alturas Formation and basalts14 The Plio-Pleistocene Alturas Formation consists of moderately consolidated, flat-lying beds of tuff, ashy sandstone and diatomite, and is widespread both at the surface and at depth. The upper and lower sedimentary members of the formation are each about 400 feet thick, and are separated by a basalt member and the Warm Springs tuff. The sediments have a moderate to high permeability and, where saturated, can yield large amounts of groundwater to wells. The formation contains both confined and unconfined groundwater. 2. Groundwater Quantity and Quality According to the California Department of Water Resources (DWR) “California’s Groundwater Bulletin 118” Water levels generally declined up to 10 feet in the northern part of the Basin during the period from the 1980’s through the early 1990’s and have recovered to former levels through 1999. The groundwater storage capacity to a depth of 800 feet is estimated to be approximately 7,500,000 acre feet for the entire Alturas Groundwater Basin (including the South Fork Pit River Subbasin and the Warms Springs Valley Subbasin). Estimates of groundwater extraction are based on surveys conducted by the California Department of Water Resources during 1997. Surveys included land use and sources of water. Estimates of groundwater extraction for agricultural use, and for municipal/industrial use are 13,000 and 260 acre-feet respectively. Deep percolation of applied water is estimated to be 9,600 acre-feet. 14 California Department of Water Resources: http://www.dpla2.water.ca.gov/publications/groundwater/bulletin118/basins/pdfs_desc/5-2.01.pdf, Sept. 19, 2008. 24 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 Sodium bicarbonate and sodium-calcium bicarbonate type waters are the predominant water types in the basin. The concentration of total dissolved solids ranges from 180-800- mg/L, averaging 357 mg/L. Some wells in the Alturas Groundwater Basin have high concentrations of total dissolved solids, nitrate, iron or boron. Irrigation wells can produce from 55 to 5,000 gallons per minute. Domestic wells range from 34 to 750 feet deep. Irrigation wells range from 90 to 1,029 feet deep.15 B. Water Supply, Treatment and Distribution Background Small community water treatment has posed an enormous problem for the drinking water regulatory community, drinking water professionals, and the people living in these communities. The Safe Drinking Water Act (SDWA) and subsequent regulations require that all water in the distribution system and at every tap connected to the distribution system comply. Water treatment usually consists of filtration and disinfection. Water treatment standards essentially mandate central treatment for drinking water prior to entering the distribution system. No water that exceeds a primary standard may be used for drinking water. Primary standards have been developed to protect human health and are rigorously enforced by the California Department of Health Services. For very small communities, this may be a cost that poses an undue burden. Often it could be a cost that has negative public health implications. For a very low-income family, the money spent on water treatment may not be available for other essentials. Rather than spend that money, a community may apply for a variance or exemption.16 Exemptions and variances are intended to be temporary solutions to regulatory compliance. They may, however, extend indefinitely leaving a community with no water that meets the regulation.17 Secondary standards are intended to protect the taste, odor or appearance of drinking water. California Code requires that, if a community water system experiences an exceedance of certain secondary standard, quarterly sampling must be initiated. Compliance is then determined based upon the average of four consecutive quarterly samples. Non-compliant water must then be treated to meet the secondary standards. Water distribution systems carry water for both domestic use and for fire protection. The distribution system should be sized to perform both functions simultaneously, delivering sufficient water volume and pressure. Pipes should be made of durable and corrosion-resistant materials, and alignments located in areas that are easy to access for repairs and maintenance.18 15California Department of Water Resources: http://www.dpla2.water.ca.gov/publications/groundwater/bulletin118/basins/pdfs_desc/5-2.01.pdf, September 19, 2008 16 A Variance or an Exemption is a State Department of Health Services permission to exceed an MCL or not comply with a treatment technique under certain conditions. 17 NSF International, “Feasibility of an Economically Sustainable Point-of-Use/Point-of-Entry Decentralized Public Water System Final Report”, March 2005, p18. nsf.org/business/.../pdf/GrimesFinalReport_Dec05.pdf 25 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 Fire hydrants should be placed a maximum of 600 feet apart along the water mains and a maximum of 500 feet from the end of water lines.19 Some water loss in the distribution system can be expected. Water loss is the difference between the volume of water pumped from the water supply well and the volume of water sold to users. A loss of water from 5% to 15% is considered acceptable. C. City of Alturas Water Service Background Consistent with the City of Alturas website: “The City obtains all of its water from deep wells and is not required to chlorinate its water supply. The water system was completely up-dated in 1995-1997. The water system meets all requirements of the State Health Department and supplies the residents of Alturas with the best tap water in the State of California. Because of its deep well sources the water is comparable with the best bottled water.” In 2022, Alturas reported wells produced 861 acre-feet of water. The water is from the South Fork Pit River Subbasin. The capacity of the water system is estimated to be 2,500 acre-feet per year.20 The City of Alturas has 4 wells that are identified as Well #5 with a capacity of 575 gallons per minute (GPM), Well #6 with a capacity of 900 GPM, Well #7 with a capacity of 1,250 GPM, and Well #8 with a capacity of 800 GPM, for a combined total source capacity of up to 3,525 GPM. This would be sufficient water for 3,338 connections at the same rate of use. The City has two water storage tanks with a cumulative storage capacity of 1.5 million gallons (750,000 gallons each). One tank was new in 1994 and the other tank was relined in 1997. The combined storage capacity of the two storage tanks poses a capacity constraint to the system and the capability of system expansion. Water is distributed through approximately 33 miles of pipelines. Most water meters were replaced during 1993-94. The rate payers in Alturas fall below the State average in annual water use. In Alturas, the current average water use as of 2022 is 0.57 acre- feet per year. In 2023, the City reported 1,467 water service connections as follows:21 Multi-family and Single-Family Residential 1,282 Commercial/Industrial 185 Total 1,467 19 Brelje & Race Consulting Civil Engineers, “Preliminary Engineering Report Bonanza Springs Water System CSA #7 Lake County Special Districts”, December 2006, p. 11 20 Modoc LAFCO, “Draft City of Alturas MSR”, November 14, 2005. Prepared by Ronald G. Young, R.C.E., PO Box 45, Standish, CA 96128. P. 4. 21 City of Alturas, “Public Water System Statistics”, 2022. 26 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 With respect to potential growth, City of Alturas estimated it could adequately accommodate up to 5% growth with its current water infrastructure. The City reported no notable needs and deficiencies for the City’s current water system for the City’s current population outside of the normal day to day maintenance performed by City of Alturas Department of Public Works. In 2021, the Legislature approved SB 552, which included changes to the water code. Specifically, this bill added requirements for small water systems and required the Water Board to ensure that all public water systems are operated in compliance with the California Safe Drinking Water Act. This legislation applies to the City of Alturas and requires a small system water supplier to implement the following: A. No later than January 1, 2023, implement monitoring systems sufficient to detect production well groundwater levels B. Beginning no later than January 1, 2023, maintain membership in the California Water/Wastewater Response Network or similar mutual aid organization. C. No later than January 2023, to ensure continuous operations during power failures, provide adequate backup electrical supply. D. No later than January 1, 2027, have a least one backup source of water supply, or a water system intertie, that meets current water quality requirements and is sufficient to meet average daily demand. E. No later than January 2032, meter each service connection and monitor for water loss due to leakages. F. No later than January 1, 2032 have source system capacity treatment system capacity if necessary and distribution system capacity to meet fire flow requirements. D. City of Alturas Water Rates Water rates are $46.59 per month for 1,000 cubic feet per month. Over 1,000 cubic feet the cost is $0.44 per 100 cubic foot of water. In addition, the base rates for water service may be increased equal to the Consumer Price Index effective on July 1 of each following year.22 In order to connect to the system, each customer must pay a connection fee dependent upon meter size as follows: Water Connection Fees: Meter size 5/8” $600.00 1” $959.00 1-1/2 $1,800.00 2” $3,000.00 8” TBD 22 http://cityofalturas.us/departments/water_and_sewer/water.php 27 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 The EPA affordability threshold for water is 2.5% of the median household income.23 Based on the 2022 median household income of $50,843; a household could afford $105.92 per month for water, which is higher than the amount currently charged. For comparison, the following table is presented showing water rates in other comparable jurisdictions. However, comparing water service rates does not reveal the true status of the water system, because it does not reflect whether or not the system is in good condition or whether or not there is a water system reserve fund adequate to replace and upgrade equipment as needed. Comparison of Water Service Costs Agency Monthly Residential Connection Fee Water Service City of Orland24 $66.35 $11,500 City of Colusa25 $48.14 + $822 Meter Fee $0.37/ 100 cu. Ft. $21,360 Impact Fee City of Williams26 $24.84 +$2.15/748 gallons $3,597.33 E. Water Service Standards 1. Water Quality Issues The 2022 Consumer Confidence Report dated May 1st, 2023 for calendar year 2022 shows 0 violations of water quality standards.27 The Environmental Protection Agency (EPA) documents water system violations for the last 10 years in its Safe Drinking Water Information System (SDWIS). Violations are categorized as Health Based Violations, meaning the amount of contaminant exceeded safety standard (MCL) or water was not treated properly, and Monitoring and Reporting and Other Violations, indication the system failed to complete all samples or sample in a timely manner, or had another non- health-based violation. No health-based or monitoring violations were reported for the City of Alturas system for the 10-year period (January 1, 2014-January 1, 2024) of retained records. 23 NSF International, “Feasibility of an Economically Sustainable Point-of-Use/Point-of-Entry Decentralized Public Water System Final Report”, March 2005, p50. nsf.org/business/.../pdf/GrimesFinalReport_Dec05.pdf 24 City of Orland, 815 4th Street, Orland, CA 95963, (530) 865-1600, 2023. 25City of Colusa, 425 Webster Street, Colusa, CA 95932, (530) 458-4941, 2023. 26 City of Williams, 810 E Street, Williams, CA 95987, (530) 235-3272, 2023. 27 City of Alturas, Consumer Confidence Report, 2022. 28 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 2. Fire Flows Urban water systems must maintain adequate water pressure in order to provide adequate fire flow. The City Fire Marshal uses State fire flow requirements based on building area, construction type and occupancy. There are no other requirements for water pressure, although customers expect adequate pressure for typical uses. Fire flow requirements for one and two-family buildings is a minimum of 1,000 gpm depending on the size of the structure.28 The City of Alturas has 225 fire hydrants. Approximately 75% of the hydrants were replaced in 1993. Fire flow is adequate to allow the City to have an ISO rating of 2, which is excellent.29 F. Water Service Concerns The City of Alturas had a “Water Department System Analysis and Rate Study” conducted in 2018 by John Van de Bergh and Bridget Harris with the Rural Community Assistance Corporation (RCAC). Since then, water rates have been increased. No significant challenges to providing domestic water services by the City of Alturas were identified. 3.2.4 City of Alturas Wastewater Collection and Treatment Since the preparation of the previous service review, there have been significant legislative changes and subsequent regulation from the State of California. The current wastewater treatment plant (WWTP) has had difficulty meeting requirements. The new WWTF project, that is planned to be completed by 2027, will result in a land-based treatment system. Until the project is completed, the agreement concerning waste discharge requirement (WDR) violations is ongoing. Additionally, the money that would normally pay these violation fines are being put towards the new WWTF. In regards to the permit questions, the proposed WWTF will have new WDR's associated with land applications, rather than the current WDR that is directed towards surface water discharging. A. City of Alturas Wastewater Treatment Plant The Alturas Wastewater Treatment Plant is located at the site of the original 1966 facility, located at the confluence of the North and South Forks of the Pit River, less than one-quarter mile south of the City. The WWTP was designed and permitted to accommodate a flow of 0.5 MGD, which was originally predicted to be sufficient for a population of 3,500 to 4,000. The WWTP uses “trickling filter treatment that discharges treated effluent to the North Fork of the Pit River.30 28 2001 UFC, Division III. fire-flow requirements for buildings. 29 Alturas Fire Department, Eric Hunter, Fire Marshal, 2023. 30 City of Alturas, “Wastewater System Improvements, Phase 1, Project Scoping 2006”, Anderson-Perry & Associates, Inc. Civil Engineers, La Grande, Oregon. 29 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 However, inflow and infiltration (I&I) during wet weather events has led to higher than anticipated flows, peaking at 1.2 MGD on several occasions, which equates to a peaking factor of 4.31 Also, high average monthly Coliform levels have been reported to the State Water Board. Although the City of Alturas is financially limited in its effort to mitigate the inflow of storm water, the City strives to improve storm water drains and collection infrastructure by including more efficient drains and collection features as a component of street projects. Additionally, the City of Alturas mitigates the entry of additional groundwater by repairing or replacing sewer lines and mains, if any form of fault is discovered through daily Department of Public Works routines, maintenance, and inspections. Currently, there is no definitive time frame for when the I&I issues will be addressed; however, City of Alturas staff have consulted with engineers in regards to the new WWTP and have come to the conclusion that larger wastewater stabilization ponds, possibly linked in a series for improved treatment, will noticeably mitigate peaking flow during wet weather events to manageable amount. The original 1966 facility was used for primary treatment. An upgrade was completed in 1979 which added ponding, clarification, a digester, secondary clarifier, and a chlorine chamber. The tickling filter media is plastic, which was replaced in 2007. Industry standards suggest replacing filter media after 10 to 15 years to provide optimum filtration.32 The City of Alturas has 1,467 wastewater connections within its city limits. The community of Daphnedale is within the City of Alturas Municipal District, but outside the city limits, and adds 24 wastewater connections to the City’s system. The City estimates 200 gallons of wastewater is generated per connection. Based on this estimate 298,200 gallons of wastewater is generated daily. Based on the average daily use, there is 201,800 GPD of remaining capacity or 40.4% of the treatment plant’s total permitted capacity. B. Wastewater Treatment Regulatory Concerns The 2005 MSR reported the following: The California Regional Water Quality Control Board (CRWQCB) became concerned with problems associated with coliform and chlorine limits testing. The Water Board has targeted the inconsistent testing results for Coliform levels and chlorine injection and chlorine residual values. The residual suspended solids and the BOD levels are within the required limits. Other concerns are centered around the new stipulations regarding either land application or disposal of dried sludge at a Class I solid waste landfill, and the upcoming requirements to comply with the California Toxics Rule (CTR) and the National Toxics Rule. 31 City of Alturas, “Wastewater System Improvements, Phase 1, Project Scoping 2006”, Anderson-Perry & Associates, Inc. Civil Engineers, La Grande, Oregon. 32Modoc LAFCO, “Draft City of Alturas MSR”, November 14, 2005. Prepared by Ronald G. Young, R.C.E., PO Box 45, Standish, CA 96128. Page 5. 30 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 In 2020, the California Water Board issued a Cease and Desist Order to the City for discharges contrary to the requirements prescribed in Board Order R5-2020-0005, the City’s waste discharge permit. This order was for excessive coliform limits and chlorine limits, which therefore requires the City to take positive steps toward making certain improvements to meet current State regulations. New waste discharge requirements are necessary. Communities use various techniques to prohibit discharge of unwanted pollutants or to reduce the quantity and strength of wastewater discharged to sewers. These techniques include the following: 1) Permit limitations on the strength and contaminant levels of industrial and commercial wastewater; 2) Increased rates or surcharges on high-strength wastes; and 3) Incentives or requirements for water recycling and reuse within the industrial or commercial operation. Water conservation measures are effective for reducing average wastewater flows, but have less impact on peak flows, which are usually strongly influenced by infiltration and inflow contributions. Water conservation has little or no impact on organic loading to the treatment plant. C. Wastewater System Improvements The City of Alturas has a plan for wastewater treatment system improvements to address existing deficiencies in order to improve system reliability in meeting the discharge limits associated with coliform and chlorine, to meet the sludge handling requirements, and to improve portions of the collection system. Notable improvements are as follows: 1) New operations building 2) New grinder for the headworks 3) Maintenance for the exposed concrete and steel support structure on the primary clarifier 4) Replacement of the trickling filter media and underdrain 5) Modification of trickling filter walls 6) Modification of the filter dosing system 7) Replacement of the filter pumps and pump drives 8) Addition of a secondary clarifier and clarifier splitter structure 9) Modification of the Parshall flume. 10) New chlorine contact basin 11) New concrete sludge drying beds and sludge storage areas 31 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 12) Ancillary improvements for these facilities including yard piping, electrical, and control improvements to integrate with the existing system 13) Upgrade of the collection system pump stations (4th Street, 8th Street and 12th Street) 14) Slip line (approximately 2,400 feet) of sewer line 15) Review and modification of chlorination controls—flow pacing as needed. Moreover, the City has plans for a new WWTP facility, however, the City is still researching available funding. D. Wastewater Collection System General wet weather flows reach 1.2 MGD regularly, which is overloading the plant’s hydraulic and treatment capacities. Average Dry Weather flow (ADWF) and Actual Wet Weather Flow (AWWF) are currently 0.23 MGD and 0.3 MGD respectively. The WWTP permitted capacity is 0.5 MGD per the WDR’s. Inflow and infiltration is the main cause of system overload due to the age of the existing collection system. The City of Alturas has approximately 111,700 lineal feet of sewer pipe mostly 8-inches in diameter. The California Regional Water Quality Control Board issued Cease and Desist Order R5 2020- 0005, which became effective on April 1, 2020, and explains the City’s exceedances and requirements. In February 2022, the City and the RWQCB entered into a Stipulated Administrative Liability Order (R5-055) whereby an Administrative Civil Liability Order will be suspended, and a compliance project designed to correct the effluent limitation violations within 5 years by converting the surface water discharges from the discharger’s facility to land disposal. The compliance project will provide information necessary to design a new land discharge facility, through which all surface water discharge will be eliminated. The Alturas wastewater collection pipe sizes and distribution is as follows: • 10-inch diameter pipe: 2,750 lineal feet • 8-inch diameter pipe: 87,900 lineal feet • 6-inch diameter pipe: 21,050 lineal feet.33 In addition, potentially 2,750 lineal feet of 10-inch diameter pipe, 24,400 feet of 8-inch diameter pipe and 21,050 feet of six-inch diameter pipe are within the high-water table area.34 There are three lift stations, which are part of the wastewater collection system.35 33 Modoc LAFCO, City of Alturas MSR”, November 14, 2005. Prepared by Ronald G. Young, R.C.E., PO Box 45, Standish, CA 96128. Page 5. 34 Modoc LAFCO, “City of Alturas MSR”, November 14, 2005. Prepared by Ronald G. Young, R.C.E., PO Box 45, Standish, CA 96128. Page 5. 35 City of Alturas, City Council Minutes, April 8, 2008, http://www.cityofalturas.org/minutes.html 32 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 E. Alturas Sewer Service Rates The following monthly sewer service rates were prior to City of Alturas Resolution 2022-29: Commercial* $34.07 Residential $40.22 Multi-Family $38.90 *Plus $0.74 per 100 cubic feet of water consumed. These rates were increased on June 2022 and are as follows:36 Commercial* $36.25 Residential $42.79 Multi-Family $42.79 *Plus $0.74 per 100 cubic feet of water consumed. Sewer Connection Fees: 4” $620.00 6” 1, 320.00 8” TBD In addition, the base rates for sewer service may be increased equal to the Consumer Price Index effective on July 1st of each following year. For comparison, the following table is presented showing sewer service rates in other jurisdictions. However, the rates do not explain whether or not the system is well operated or whether there is a wastewater treatment reserve fund adequate to fund the necessary maintenance, repair and replacement. Comparison of Sewer Service Costs Agency Monthly Residential Connection Sewer Service Fee City of Marysville37 $55.09 (2023) $1,650.00 City of Orland38 $64.57 (2023) $11,500.00 City of Williams39 $88.47 (2023) $8,476.72 36 City of Alturas, City Council Minutes, June 21, 2022, Resolution #2022-29. 37 City of Marysville, 526 C Street, Marysville, CA 95901, (530) 749-3901, 2023. 38 City of Orland, 815 4th Street, Orland, CA 95963, (530) 865-1600, 2023. 39 City of Williams, 810 E Street, Williams, CA 95987, (530) 235-3272, 2023. 33 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 3.2.5 Solid Waste Disposal A. Solid Waste Regulations There are three regulatory bodies relevant to solid waste disposal: • California Integrated Waste Management Board (CIWMB) • Local Enforcement Agencies (LEA) • Regional Water Quality Control Board (RWQCB) In 1989, the California legislature passed the California Integrated Waste Management Act (AB 939) in an effort to conserve resources and extend landfill capacity. The Act established an unprecedented framework for integrated waste management planning and waste disposal compliance. Based on a 1990 disposal baseline, AB 939 required cities and counties to reduce the amount of solid waste generated in their jurisdictions and disposed in landfills by 25 percent by the year 1995 and by 50 percent by the year 2000.40 AB 939 also required local governments to prepare comprehensive integrated waste management plans that detail how the waste diversion mandates will be met and to update elements of those plans every five years. AB 939 established the CIWMB to oversee integrated waste management planning and compliance; CIWMB serves as the permitting and enforcement agency. The Board is responsible for approving permits for waste facilities, approving local agencies’ diversion rates, and enforcing the planning requirements of the law through Local Enforcement Agencies (LEAs). LEAs inspect and investigate solid waste collection, handling, storage and equipment. LEAs may also verify compliance with state and local minimum standards for the protection of the environment and public health. LEA reports are forwarded to CIWMB and the relevant operator upon completion. Any potential discharge to surface or groundwater is regulated by RWQCB. The owner or operator of any facility that discharges, or proposes to discharge, waste that may affect groundwater quality (including solid waste disposal facilities) must first obtain a waste discharge requirement permit (WDR) from the appropriate RWQCB. A WDR order adopted by RWQCB for an individual facility defines measures to mitigate any potential contamination of the groundwater. In addition to these two bodies, AB 2948 (enacted in 1986) established procedures for regional hazardous waste planning. Under this regulation, counties were to develop hazardous waste plans and projections by 2000. B. Solid Waste Disposal in Alturas In 2001, the City of Alturas entered into a franchise agreement with Waste Management Service to provide solid waste management for the City. The City’s solid waste is collected at 40 A Senate bill passed in 1997 allowed for extensions through 2005 for jurisdictions that made a “good faith effort” to comply. 34 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 the Modoc County Landfill and Transfer Station located on County Road No. 50 and then sent to the Lockwood Landfill in Nevada. According to the California Department of Resources Recycling and Recovery, the estimated daily solid waste generated estimate per person is 4.4 pounds per person per day. The 2022 population for the City of Alturas is 2,713, which comes to approximately 12 tons per day. The City promotes recycling by measures such as the following: 1) Design for Recycling New developments shall be designed to accommodate solid waste storage, handling, and collection (pickup) and to provide for recycling. 2) Promote Recycling The City shall promote maximum use of solid waste source reduction, recycling, composting and environmentally-safe transformation of wastes. 3) Regional Participation The City shall participate in regional or county-wide studies and solutions for solid waste disposal problems. 4) Public Facilities Recycling The City shall encourage recycling in public and private operations to reduce demand for solid waste disposal capacity. 5) Use of Recycled Materials The City shall investigate using recycled materials and products where economically feasible. 6) Require Types of Recycling The City shall require recycling of construction debris. To date, the City of Alturas has implemented 33 programs to promote recycling. The target per resident disposal rate as identified by the CIWMB is 6.8 pounds per day. Over the period from 2007 to 2022, the City exceeded the target disposal rate in 2007 and again from 2020 to 2022, likely due to the COVID-19 pandemic shutdowns and substantial time residents spent at home. Annual per capita disposal rates are shown in the following figure. 35 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 12 10 8 6 4 2 0 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 3.2.6 Circulation and Roads A. Traffic Measurement Traffic is traditionally measured by “Level of Service” (LOS), which is defined below: Level of Service (Traffic): A scale that measures the amount of traffic that a roadway or intersection can accommodate, based on such factors as maneuverability, driver dissatisfaction, and delay. According to the Transportation Research Board’s 1985 Highway Capacity Manual Special Report 209, level-of-service is a qualitative measure describing the efficiency of a traffic stream. It also describes the way such conditions are perceived by persons traveling in a traffic stream. Level-of-service measurements describe variables such as speed and travel time, freedom to maneuver, traffic interruptions, traveler comfort and convenience, and safety. Measurements are graduated ranging from level-of-service A (representing free flow and excellent comfort for the motorist, passenger or pedestrian) to level-of-service F (reflecting highly congested traffic conditions where traffic volumes exceed the capacities of streets, side-walks, etc.) Levels-of-service can be determined for freeways, multi-land highways, two-lane highways signalized intersections, intersections that are not signalized, arterials, and transit and pedestrian facilities. Level of Service A: Indicates a relatively free flow of traffic, with little or no limitation on vehicle movement or speed. 36 )DPP( atipaC rep etaR lasopsiD launnA egarevA Annual per capita disposal rate (PPD) Target Disposal Rate (PPD) Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 Level of Service B: Describes a steady flow of traffic, with only slight delays in vehicle movement and speed. All queues clear in a single signal cycle. Level of Service C: Denotes a reasonable, steady, high-volume flow of traffic, with some limitations on movement and speed, and occasional backups on critical approaches. Level of Service D: Designates the level where traffic nears an unstable flow. Intersections will still function, but short queues develop and cars may have to wait through one cycle during short peaks. Level of Service E: Represents traffic characterized by slow movement and frequent (although momentary) stoppages. This type of congestion is considered severe but is not uncommon at peak traffic hours, with frequent stopping, long-standing queues, and blocked intersections. Level of Service F: Describes unsatisfactory stop-and-go traffic characterized by traffic jams and stoppages of long duration. Vehicles at signalized intersections usually have to wait through one or more signal change and “upstream” intersections may be blocked by the long queues.41 B. Traffic in Alturas State Route 299 is the major north-southwest arterial roadway in Alturas. It extends to the City of Redding to the south. It has two travel lanes through Alturas and the major intersection with State Route 395 is signalized. State Route 395 is a major north-south roadway which extends south to Susanville and on to Reno, Nevada. It has two travel lanes through the City of Alturas. West Fourth Street connects to County Road 132 and is the major east-west arterial roadway in Alturas. It has two travel lanes west of State Route 395. The State Highways are maintained by Caltrans District 2 with headquarters in Redding. The traffic counts for the State Highways in Alturas are very low compared to other areas of California. For example, State Highway 299 may have ten times the amount of traffic in Redding that State Highway 299 has in Alturas. The table below lists the 2017 traffic counts for the State Highways in Alturas: In general, traffic is minimal in Alturas, and does not impact city circulation. 41 State of California, General Plan Guidelines, 2017, Governor’s Office of Planning and Research. 37 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 Caltrans 2017 Traffic Counts for State Highways 299 and 395 in Alturas42 State Post Desc. Back Back Back Ahead Ahead Ahead Route Mile Peak Peak Avg. Peak Peak Avg. Hour Month ADT Hour Month ADT 299 40.276 Alturas, 160 1,850 1,450 420 3,600 2,750 Juniper St. 299 40.630 Alturas. 530 5,300 4,400 110 990 850 Jct. Rte. 395 395 22.070 Alturas, 750 7,400 5,900 720 7,300 5,600 First Street 395 22.764 Alturas, 410 7,900 6,200 390 6,600 5,500 Jct. Rte. 299 West 395 23.040 Alturas, 370 3,950 3,000 370 3,950 3,000 State Hwy Maint. Station Traffic Table Notes: 1. State Highway 299 runs west to east. 2. State Highway 395 runs south to north. 3. Annual Average Daily Traffic (Annual ADT) Annual average daily traffic is the total volume for the year divided by 365 days. The traffic count year is from October 1st through September 30th. Very few locations in California are actually 42 Caltrans: https://dot.ca.gov/programs/traffic-operations/census/traffic-volumes/2017/route-280-405, 2017. 38 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 counted continuously. Traffic Counting is generally performed by electronic counting instruments moved from location, throughout the State in a program of continuous traffic count sampling. The resulting counts are adjusted to an estimate of annual average daily traffic by compensating for seasonal influence, weekly variation and other variables which may be present. Annual ADT is necessary for presenting a statewide picture of traffic flow, evaluating traffic trends, computing accident rates, planning and designing highways and other purposes. 4. Peak Hour Included is an estimate of the "peak hour" traffic at all points on the state highway system. This value is useful to traffic engineers in estimating the amount of congestion experienced, and shows how near to capacity the highway is operating. Unless otherwise indicated, peak hour values indicate the volume in both directions. A few hours each year are higher than the "peak hour", but not many. In urban and suburban areas, the peak hour normally occurs every weekday, and 200 or more hours will all be about the same. On roads with large seasonal fluctuations in traffic, the peak hour is the four near the maximum for the year but excluding a few (30 to 50 hours) that are exceedingly high and are not typical of the frequency of the high hours occurring during the season. 5. Traffic Profile This reports 2017 traffic volumes for all count locations on the California state highway system. Peak hours, peak month ADTs and annual ADTs are shown at each count location. Significant volume changes (breakpoints) in the traffic profile along each route are counted and identified by name and milepost value. In addition to the profile breakpoints, these files list county lines and well-known landmarks to aid in orientation. All traffic volume figures listed include traffic in both directions unless otherwise indicated. 6. Milepost Each profile breakpoint is identified by the milepost value corresponding to that point on the highway. The milepost values increase from the beginning of a route within a count to the next county line. The milepost values start over again at each county line. Milepost values usually increase from south to north or west to east depending upon the general direction the route follows within the State. The milepost at a given location will remain the same year after year. When a section of road is relocated, new mileposts (usually noted by an alphabetical prefix such as "R" or "M") are established for it. If relocation results in a change in length, "milepost equations" are introduced at the end of each relocated portion so that mileposts on the reminder of the route within the county will remain unchanged. 39 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 7. Peak Month ADT The peak month ADT is the average daily traffic for the month of heaviest traffic flow. This data is obtained because on many routes, high traffic volumes which occur during a certain season of the year are more representative of traffic conditions than the annual ADT. 8. Back and Ahead Back AADT, Peak Month, and Peak Hour usually represents traffic South or West of the count location. Ahead AADT, Peak Month, and Peak Hour usually represents traffic North or East of the count location. 3.2.7 Park and Recreation Services The City of Alturas Public Works Department handles all city parks and recreational facilities and is located at 200 W. North Street, Alturas, CA 96101. The City of Alturas Public Works Department can be reached via phone at (530) 233-2512 from Monday thru Friday, 9:00 AM to 5:00 PM, or on their 24/7 on-call phone at (530) 640-1012. Services provided for City parks and recreational facilities are as follows: • J. H. McHugh Municipal Swimming Pool • John R. Bonner Memorial Park • Alturas Railroad Museum • Masten-Ramsey roping arena • 4H show barns • Alturas Youth Park The City provides many recreational opportunities for its citizens at these facilities. These include the following: • 1 swimming pool • 1 basketball court • 7 little leagues ball fields • 2 soccer fields • 1 roping arena • 1 4-H show barn and arena park • 1 skatepark 40 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 3.2.8 Airport The Alturas Municipal Airport serves the City of Alturas and is located at the southwest corner of Alturas at the end of W 4th Street. The Airport Layout Plan was updated in September of 2022.43 The “Airport Capital Improvement Program” includes 21 separate projects to be completed from 2023 to 2037 for an estimated total cost of $12,646,400.44 The 21 projects are as follows: 1) Reseal cracks and joints - R/W 13-31 and Taxiway B 2) Pavement Maintenance Management Plan 3) Displace R/W 31 threshold 200 ft., airfield markings and lighting, REILs 4) Remove existing FAA VASI and install new FAA 4-box PAPI on R/W 31 5) FAA Reimbursable Agreement - PAPI resident engineering and flight check 6) Reseal cracks and joints - R/W 3-21 7) Reseal cracks and joints - Taxiway A and apron 8) Taxiway E relocation 9) Acquire snow removal equipment 10) Rehabilitate and widen R/W 13-31 11) Obstruction mitigation - design and implement 12) Environmental assessment 13) Engineering to extend Taxiway B to serve existing R/W 13-31 14) Construction to extend Taxiway B to serve existing R/W 13-31 15) Airport Layout Plan narrative including updated ALP drawing 16) Engineering to extend Taxiway A to serve existing R/W 3-21 17) Construction to extend Taxiway A to serve existing R/W 3-21 18) Reconstruct existing Circle Hangar Taxilane 19) Expand fuel farm - new 12,000 gallon Jet A fuel tank, containment and fittings 20) Engineering for new helicopter hangar 21) Construction for new helicopter hangar 43 City of Alturas, “Alturas Municipal Airport Capital Improvement Program”, Sept. 29, 2022, Brandley Engineering, Loomis CA. 44 City of Alturas, “Alturas Municipal Airport Capital Improvement Program”, Sept. 29, 2022, Brandley Engineering, Loomis CA. 41 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 3.2.9 Mosquito Abatement The City of Alturas provides mosquito abatement and vector control services. The cost for this service is $1.50 per month per water connection.45 These services appear satisfactory at this time but could use additional funding. 3.3 Finances 3.3.1 Financial Ability of Agencies to Provide Services A. Municipal Financial Constraints Municipal service providers are constrained in their capacity to finance services by the limited ability to increase property taxes, requirements for voter approval for new or increased taxes, and requirements of voter approval for parcel taxes and assessments used to finance services. Municipalities must obtain majority voter approval to increase or impose new general taxes and two-thirds voter approval for special taxes. While some cities have been successful in securing additional revenues through landowner or registered voter funding initiatives, many rural cities have not had success for a variety of reasons. Limitations on property tax rates is a financing constraint. Property tax revenues are subject to a formulaic allocation and are vulnerable to State budget needs and the overall economy. The City of Alturas has experienced a decline in residents over the past 20 years creating another reason for declining tax revenues. B. Local Government Finance Background The financial ability of cities in California to provide services is affected by financial constraints. City service providers rely on a variety of revenue sources to fund city operating costs, primarily property taxes, benefit assessments, special taxes, Proposition 172 funds and other contributions from city general funds. As a funding source, property taxes are constrained by statewide initiatives that have been passed by voters over the years. These measures are explained below: Proposition 13 Proposition 13, which California voters approved in 1978, limits the ad valorem property tax rate, limits growth of the assessed value of property, and requires voter approval of certain local taxes. Generally, this measure fixes the ad valorem tax at one percent of value, except for taxes to repay certain voter approved bonded indebtedness. AB 8 In response to the adoption of Proposition 13, the Legislature enacted Assembly Bill 8 (AB 8) in 1979 to establish property tax allocation formulas. Generally, AB 8 allocates property tax revenue 42 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 to the local agencies within each tax rate area based on the proportion each agency received during the three fiscal years preceding adoption of Proposition 13. This allocation formula benefits local agencies, which had relatively high tax rates at the time Proposition 13 was enacted. Proposition 98 Proposition 98, which California voters approved in 1988, requires the State to maintain a minimum level of school funding. In 1992 and 1993, the Legislature began shifting billions of local property taxes to schools in response to State budget deficits. Local property taxes were diverted from local governments into the Educational Revenue Augmentation Fund (ERAF) and transferred to school districts and community college districts to reduce the amount paid by the State general fund. Local agencies throughout the State lost significant property tax revenue due to this shift. Proposition 172 Proposition 172 was enacted to help offset property tax revenue losses of cities and counties that were shifted to the ERAF for schools in 1992. Proposition 172, enacted in 1993, provides the revenue of a half-cent sales tax to counties and cities for public safety purposes, including police, fire, district attorneys, corrections and lifeguards. Proposition 172 also requires cities and counties to continue providing public safety funding at or above the amount provided in FY 92- 93. This funding has not been extended to Fire agencies in Modoc County. Proposition 218 Proposition 218, which California voters approved in 1996, requires voter- or property owner- approval of increased local taxes, assessments, and property-related fees. A two-thirds affirmative vote is required to impose a Special Tax, for example, a tax for a specific purpose such as a fire district special tax. However, majority voter approval is required for imposing or increasing general taxes such as business license or utility taxes, which can be used for any governmental purpose. These requirements do not apply to user fees, development impact fees and Mello-Roos districts. Mello-Roos Community Facilities Act of 1982 The Mello-Roos Community Facilities Act of 1982 allows any county, city, special district, school district or joint powers authority to establish a Mello-Roos Community Facilities District (a “CFD”) which allows for financing of public improvements and services. The services and improvements that Mello-Roos CFDs can finance include streets, sewer systems and other basic infrastructure, police protection, fire protection, ambulance services, schools, parks, libraries, museums and other cultural facilities. By law, the CFD is also entitled to recover expenses needed to form the CFD and administer the annual special taxes and bonded debt. A CFD is created by a sponsoring local government agency. The proposed district will include all properties that will benefit from the improvements to be constructed or the services to be provided. A CFD cannot be formed without a two-thirds majority vote of residents living within the proposed boundaries. Or, if there are fewer than 12 residents, the vote is instead conducted of current landowners. In many cases, that may be a single owner or developer. Once approved, a Special Tax Lien is placed against each property in the CFD. Property owners then pay a Special Tax 43 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 each year. If the project cost is high, municipal bonds will be sold by the CFD to provide the large amount of money initially needed to build the improvements or fund the services. The Special Tax cannot be directly based on the value of the property. Special Taxes instead are based on mathematical formulas that take into account property characteristics such as use of the property, square footage of the structure and lot size. The formula is defined at the time of formation, and will include a maximum special tax amount and a percentage maximum annual increase. If bonds were issued by the CFD, special taxes will be charged annually until the bonds are paid off in full. Often, after bonds are paid off, a CFD will continue to charge a reduced fee to maintain the improvements. Counties, cities, special districts, school districts, and private utilities impose development impact fees on new construction for purposes of defraying the cost of putting in place public infrastructure and services to support new development. To impose development impact fees, a jurisdiction must justify the fees as an offset to the impact of future development on facilities. The fees must be committed within five years to the projects for which they were collected, and the district, city or county must keep separate funds for each development impact fee. The City of Alturas has no development impact fees. C. Financing Opportunities that Require Voter Approval Financing opportunities that require voter approval include the following: • special taxes such as parcel taxes, • increases in general taxes such as utility taxes, • sales and use taxes, • business license taxes, and • transient occupancy taxes. Communities may elect to form business improvement districts to finance supplemental services, or Mello-Roos districts to finance development-related infrastructure extension. Agencies may finance facilities with voter-approved (general obligation) bonded indebtedness. D. Financing Opportunities that Do Not Require Voter Approval Financing opportunities that do not require voter approval include imposition of or increases in fees to more fully recover the costs of providing services, including user fees and Development Impact Fees (DIFs) to recover the actual cost of services provided and infrastructure. DIFs and user fees must be based on reasonable costs and may be imposed and increased without voter approval. DIFs may not be used to subsidize operating costs. Agencies may also finance many types of facility improvements through bond instruments that do not require voter approval. 44 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 Water rates and rate structures are not subject to regulation by other agencies. Utility providers may increase rates annually, and often do so. Generally, there is no voter approval requirement for rate increases, although notification of utility users is required. Water providers must maintain an enterprise fund for the respective utility separate from other funds, and may not use revenues to finance unrelated governmental activities. 3.3.2 City of Alturas Financial Background The City’s total assets were $17,574,859 as of June 30, 2022.46 Of this total, $10,232,672 were Governmental assets and $7,342,187 were Business-type assets. The value of assets is important; however, for a city the assets are roads, water and sewer lines, which are not necessarily items that can be sold in hard times. The financial capability of a government agency really depends on the cash flow of revenue and expenses. The financial statements are divided according to “Governmental Activities” which include all of the City’s basic services and administration and are supported by taxes, user fees and charges. The City’s governmental activities also include the Redevelopment Agency of the City of Alturas. The City is financially accountable for this entity. Redevelopment funds are restricted in their use for special projects identified in the City’s redevelopment plan. A portion of the funds must be allocated for low-income funding activities. The City’s “Business-type Activities” include water and wastewater. These services are supported by charges paid by users based on the amount of the service they use. General Fund revenues were $1,707,133 in FY 2022, which was an increase of $122,220 from the prior year. In FY 2022, General Fund expenditures of $1,723,719 represented an increase of $144,590 from the prior year. There was a General Fund balance of $553,799 as of June 30, 2022, which was $75,362 less than the fund balance at the end of FY 2021. In FY 2022, Water Fund expenditures were $1,192,291, and Sewer Fund expenditures were $1,041,968. The City had outstanding debt of $4,920,021 owed for Government and Business purposes as of June 30, 2022. 46 City of Alturas, “Basic Financial Statements June 30, 2022” by O’Conner and Company. Certified Public Accountants, 1000 Novato, CA 94947. 45 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 A summary of the City’s Revenues and Expenditures for recent years is shown below: City of Alturas Budget Summary Year Revenue Expense Difference 2020-2021 $2,619,048 $2,801,190 -$182,142 2021-2022 $4,427,523 $3,243,739 $1,183,784 A good measure of a City’s financial status is its PERS funded ratio. As of June 30, 2022, the City reported net pension liabilities for its proportionate shares of net pension liability of the Miscellaneous and Safety plans as follows: Miscellaneous and Safety (Classic Employees) the PERS unfunded liability is $2.8 million, which is considered a significant amount by City staff. There is no unfunded pension liability for all classes under the Public Employees’ Pension Reform Act (PEPRA) for members who joined CalPERS prior to January 1, 2013 who, on or after January 1, 2013, is hired by a different CalPERS employer following a break in service of more than 6 months. This category includes new hires. The City also has to pay for retirement benefits for some retirees who retired prior to the City’s participation in PERS. 46 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 4 CITY OF ALTURAS MUNICIPAL SERVICE REVIEW 4.1 Growth and Population Projections for the City of Alturas Area47 Purpose: To evaluate services needs based on existing and anticipated growth patterns and population projections. 4.1.1 Alturas Area Population Projections The population of Alturas was 2,892 according to the 2000 census, and in 2022, the population was 2,713,48 which is a decline of 179. There has been a continuous decline from the City’s population of 3,038 in 1988. The City’s small population precludes the development of the wide variety of businesses typically associated with regional centers, and there is little professional opportunity in the area. The County has traditionally been supported by logging, ranching, and government, which are declining economic sectors. 4.1.2 MSR Determinations on Growth and Population for the City of Alturas 1-1) The City of Alturas needs to continue economic development efforts and to balance job and population growth. 1-2) The City has substantial incorporated area for future residential growth. Notwithstanding a health and safety issue, LAFCo will consider the ability of the City to accommodate growth prior to allowing future annexations. 1-3) Prior to any future annexations, the City should establish requirements so that developers will pay their fair share of infrastructure development costs to avoid declining levels of service for existing residents. 1-4) The City should establish annexation fees to ensure the total cost of annexation is entirely borne by those being annexed. 1-5) From a financial perspective the City must establish developer fees to ensure all new growth pays its fair share without compromising services to existing residents. 1-6) Constraints to growth consist of 1) lack of a water system in Daphnedale, 2) limited storage capacity in the water system, 3) wastewater I&I leading to exceedance of the permitted plant capacity, and 4) lack of professional opportunity with declining population. 1-7) The City should prepare water and wastewater master plans and investigate grants or grants and loans to improve infrastructure, eliminate capacity constraints, and identify infrastructure needs for additional growth. 47 California Government Code Section 56430 (a) (1) 47 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 1-8) The City should develop a financing plan to accommodate growth by establishing a sustainable funding mechanism for capital improvements and day to day operations for Fire and EMS services. 1-9) New development should be required to have traffic studies, as appropriate, to address possible declines in LOS. 1-10) The City should prepare a Capital Improvement Plan to be prepared for future capital expenditures, including those infrastructure needs to address growth. 1-11) It is recommended that the City consider Community Facilities Districts as a means for new development to pay infrastructure and operational costs. 1-12) It is recommended that the City conduct a comprehensive update of its General Plan and ordinances for consistency and to appropriately plan for any growth related needs. 4.2 Location and Characteristics of any Disadvantaged Unincorporated Communities (DUC) within or Contiguous to City of Alturas49 Purpose: To comply with the State Law to examine any unincorporated areas which could be provided with better services by annexing to an adjacent city. 4.2.1 Determination of Alturas Area Disadvantaged Unincorporated Community Status Large areas of housing located outside the city limits does not exist. A Goal of the City as stated in the Housing Element is to provide housing for present and future residents within the city limits with full city services, including sewer and water service. In 2022, the median income for a household in the City was $50,843, and the state median household income was $84,097. In 2022, the per capita income for the City was $19,281. About 18.1% of the population in the City was below the poverty line in 2022, and the child poverty rate was 20.2%. Approximately 11.4% of the families live below the poverty level. 4.2.2 MSR Determinations on Disadvantaged Unincorporated Communities near City of Alturas 2-1) The City of Alturas Housing Element advocates provision of housing for all populations within the city limits and promotes grant applications and other programs to facilitate this goal. 2-2) The City of Alturas is considered a Disadvantaged Community with a household income below 80% of the statewide median household income. 2-3) Based on the Department of Water Resources disadvantaged communities mapping tool, Alturas is a disadvantaged community as well as the surrounding adjacent area. 49 California Government Code Section 56430 (a) (2) 48 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 4.3 City of Alturas Infrastructure Capacity Both the water and wastewater collection and treatment systems have on-going problems that could be expensive to solve. The City has raised the water and sewer rates but also needs to prepare water and wastewater master plans and to investigate grants or grants and loans to improve the infrastructure. 4.3.2 MSR Determinations Regarding Capacity and Infrastructure for the City of Alturas A. Police 3-1) The Police Department should continue to work with the Modoc County Sheriff Department to coordinate efforts as much as possible in order to keep costs down. 3-2) The average California city has 1.5 paid sworn officers per 1,000 residents. With a 2022 population of 2,693, there are 2.59 paid sworn officers per 1,000 residents, which is above the State average. 3-3) While patrol is the most visible Police Department service, Alturas provides a host of other public safety services including the following: • Dispatch service • 24/7 patrol service • Fingerprinting services • Training services • Animal shelter services • Unique patrol services B. Fire Protection 3-4) The City of Alturas uses volunteer firefighters to keep costs down. This practice has worked well for the City and should continue. 3-5) In 2022, the Fire Department responded to 407 calls (of which 44 were fire calls).50 The large number of medical calls may require additional training opportunities for the volunteers to increase the number EMT’s available for response. 3-6) The City should establish a goal to train more EMTs. 3-7) Depending upon population growth and (or) new State regulations, the City may have to transition to a paid firefighter structure in the future. The City currently has one paid Fire Marshal and one Fire Chief who receives a stipend. 3-8) Water availability for fire protection is adequate with fire flows greatly exceeding requirements. Water for fire protection is available throughout the City with sufficient fire flows of 3,000 gpm. 50 City of Alturas, Eric Hunter, Fire Marshal, Oct 10 2023. 49 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 3.9) The Alturas Fire Department has an average response time of 4 minutes. 3-10) The ISO rating for the Alturas Fire Department is 2, which is in the top five percent of fire agencies nationwide. 3-11) The City should develop a financing plan to accommodate growth by establishing a sustainable funding mechanism for capital improvements and day to day operations for fire and EMS services. The department could use an updated ladder truck with the ability to handle rescues. C. Water Service 3-12) In 2021, the Legislature approved SB552, which included changes to the water code. Specifically, this bill added requirements for small water systems and required the Water Board to ensure that all public water systems are operated in compliance with the California Safe Drinking Water Act, and compliance deadlines were established in the legislation. The City needs to be aware of these new requirements. 3-13) The City should plan to prepare and continuously update a Water Master Plan. A Water Master Plan would increase opportunities for funding of replacements, improvements and new infrastructure necessitated by additional growth. 3-14) Water rates are $46.59 per month for 1,000 cubic feet per month. Over 1,000 cubic feet the cost is $0.44 per 100 cubic foot of water. In addition, the base rates for water service may be increased equal to the Consumer Price Index effective on July 1 of each following year. 3-15) There is sufficient source water available to serve the expected population growth. However, there are storage limitations and infrastructure modifications which would be needed to accommodate growth. 3-16) In 2023, the City reported 1,467 water service connections. The capacity of the water system is estimated to be 2,500 acre-feet per year D. Wastewater Collection and Treatment 3-17) The City of Alturas is under Central Valley Regional Water Quality Control Board Order No. 2020-0004. WDR order 2003-0128 has been rescinded pursuant to Board Order 2020-0043. 3-18) The City of Alturas should do everything possible to meet the requirements of the Central Valley Regional Water Quality Control Board. 3-19) The City should plan to prepare and continuously maintain a Wastewater Collection and Treatment Master Plan including an improvements plan. 3-20) New connection fees have been included in the sewer rates adopted in 2022. 50 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 3-21) The City should correct deficiencies in its WWTP and collection system pursuant to Board Order 2022-0500. 3-22) General wet weather flows reach 1.2 MGD regularly which is overloading the plant’s hydraulic and treatment capacities. Inflow and infiltration is the main cause of the system overload, due to the age of the existing collection system. 3-23) Average Dry Weather Flow (ADWF) and Actual Wet Weather Flow (AWWF) are currently 0.23 MGD and 0.3 MGD respectively. The Wastewater treatment plant (WWTP) permitted capacity is 0.5 MGD per the WDR’s, indicating capacity availability of at least 0.2 MGD on days of average flow. 3-24) The City of Alturas has 1,467 wastewater connections within its city limits. The Community of Daphnedale is outside of the city limits but within the City of Alturas Municipal District, which adds 42 wastewater connections to the Alturas system. The City estimates 200 gallons of wastewater is generated per connection. Based on this estimate 298,200 gallons of wastewater is generated daily, which is 201,800 GPD below the remaining permitted capacity. Notwithstanding the excessive wet weather flows of 1.2 MGD the City has enough remaining capacity to serve 1,009 additional connections. E. Solid Waste 3-25) The City provides for adequate solid waste management through its franchise agreement and has generally met its diversion requirements established by the State, except for years during the COVID-19 pandemic. F. Streets and Roads 3-26) The City provides for adequate maintenance of streets and roads. 3-27) The City should work closely with Caltrans to be sure that the State Routes within the City are properly maintained. 3-28) The City has acceptable Levels of Service (LOS) at this time. New development should be required to have traffic studies, as appropriate, to address possible declines in LOS. G. Park and Recreation Services 3-29) The City will continue to provide park and recreation services for the larger Alturas area (for people within the City, the County, and visitors) with the help of various service organizations. 51 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 H. Airport Services 3-30) The City has an “Airport Capital Improvement Program” which will guide the development of the Airport from 2023 to 2037 through 21 separate projects for an estimated total cost of $12,646,400. The City should continue to proactively seek funding for identified airport improvement projects. I. Mosquito Abatement Service 3-31) The City provides adequate mosquito abatement and vector control services for a very low cost. J. Land Use Planning The City adopted its General Plan in 1997. Since that time there have been various amendments. The Housing Element, one of the seven mandatory elements was adopted in 2019. The City’s zoning ordinance was adopted in 2014 and amended from time to time. The City should be aware of the importance of the requirements for consistent development regulations and General Plan consistency. 3-32) The City should review its development regulations for consistency with its comprehensive general plan and state planning law prior to processing development applications. 4.3 Financial Ability Purpose: To evaluate factors that affect the financing of needed improvements and to identify practices or opportunities that may help eliminate unnecessary costs without decreasing service levels. LAFCO should consider the ability of the City to pay for improvements or services associated with annexed sites. This planning can begin at the Sphere of Influence stage by identifying what opportunities there are to identify infrastructure and maintenance needs associated with future annexation and development, and identifying limitations on financing such improvements, as well as the opportunities that exist to construct and maintain those improvements. LAFCO should consider the relative burden of new annexations to the community when it comes to its ability to provide public safety and administrative services, as well as capital maintenance and replacements required as a result of expanding City boundaries. Rate restructuring may be forced by shortfalls in funding, but the process may also reflect changing goals and views of economic justice or fairness within the community. LAFCO should evaluate the impact of SOI and annexation decisions on existing community rates for public service. 52 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 4.3.1 Financial Considerations All local governments spend a large part of each budget on personnel costs. In a small community it is necessary to make sure that financial records are transparent and that the City gets the most highly qualified personnel possible. Timesheets need to be required documenting the essential costs of providing the service. Standard allocation rates or cost allocation plans must be supported by timesheets so as to fairly determine the costs rate payers should pay for a given service. 4.3.2 MSR Determinations on Financial Ability for the City of Alturas 4-1) It is critical the City establish Development Impact Fees to ensure that all new development pays its fair share cost of development. 4-2) The City should prepare a Capital Improvement Plan to be prepared for future capital expenditures. 4-3) As well as other funding mechanisms, the City should become familiar with Community Facilities Districts as a means for new development to pay infrastructure and operational costs. 4-4) The City should establish a cost allocation system, which reasonably documents costs paid or assessed from rate payers for each of the services the city provides. 4-5) The City has a relatively high PERs unfunded liability. 4.4 Opportunities for Shared Facilities Purpose: To evaluate the opportunities for a jurisdiction to share facilities and resources to develop more efficient service delivery systems. In the case of annexing new lands into a City, LAFCO can evaluate whether services or facilities can be provided in a more efficient manner if the City or some other entity provides them (i.e., the County of Modoc, a County Service Area, or Community Services District). In some cases, it may be possible to establish a cooperative approach to facility planning by encouraging the City and County to work cooperatively in such efforts. 4.4.1 Facilities The City Police Department works closely with the County Sheriff. The Fire Department works with various agencies. The City needs to work with all agencies, public and private, to find beneficial ways to cooperate and capitalize on efficiencies. 4.4.2 MSR Determinations on Shared Facilities for the City of Alturas 4-1) The City shares facilities to the extent possible for police and fire protection. 53 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 4-2) The City could investigate ways to reduce administrative cost through computerization and or shared services. 4-3) Shared facilities for wastewater collection and treatment and water service are not feasible. 4.5 Government Structure and Accountability Purpose: To consider the advantages and disadvantages of various government structures that could provide public services, to evaluate the management capabilities of the organization and to evaluate the accessibility and levels of public participation associated with the agency’s decision-making and management processes. One of the most critical components of LAFCO’s responsibilities is in setting logical service boundaries for communities based on their capacity to provide services to affected lands. LAFCO may consider the agency’s record of local accountability in its management of community affairs as a measure of the ability to provide adequate services to the Sphere of Influence and potential annexation areas. 4.5.1 Government Structure Background Most cities in California find it beneficial to have a City Manager or a City Administrator directly responsible to the City Council. This might be something for the City Council to consider through a long-term process. The City may need a single person, appointed by the City Council, who would be responsible for the entire City and who could take an overall view of what is best for the City without being partial to a single function. The City should consider doing a study of government efficiency, including a time-card study for all employees to determine how the time is allocated compared to the funding source. The City has a website, but it is not up-to-date for all departments. While public sector management standards vary depending on the size and scope of an organization, there are minimum standards. Well-managed organizations do the following eight activities: 1. Evaluate employees annually. 2. Prepare a budget before the beginning of the fiscal year. 3. Conduct periodic financial audits to safeguard the public trust. 4. Maintain current financial records. 5. Periodically evaluate rates and fees. 6. Plan and budget for capital replacement needs. 54 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 7. Conduct advance planning for future growth. 8. Make best efforts to meet regulatory requirements. Most of the professionally managed and staffed agencies implement many of these best management practices. LAFCO encourages all local agencies to conduct timely financial record-keeping for each city function and make financial information available to the public. 4.5.2 Public Participation in Government The Brown Act (California Government Code Section 54950 et seq.) is intended to ensure that public boards shall take their actions openly and that deliberations shall be conducted openly. The Brown Act establishes requirements for the following: • Open meetings • Agendas that describe the business to be conducted at the meeting • Notice for meetings • Meaningful opportunity for the public to comment • Few exceptions for meeting in closed sessions and reports of items discussed in closed sessions. According to California Government Section 54959: Each member of a legislative body who attends a meeting of that legislative body where action is taken in violation of any provision of this chapter, and where the member intends to deprive the public of information to which the member knows or has reason to know the public is entitled under this chapter, is guilty of a misdemeanor. Section 54960 states the following: (a) The district attorney or any interested person may commence an action by mandamus, injunction or declaratory relief for the purpose of stopping or preventing violations or threatened violations of this chapter by members of the legislative body of a local agency or to determine the applicability of this chapter to actions or threatened future action of the legislative body,... It is LAFCO’s responsibility to consider the record of the agency when making determinations. 4.5.3 MSR Determinations on Government Structure and Accountability for the City of Alturas 5-1) The City has a website to communicate with tax payers, residents, and the public, but it should be fully updated and developed for all departments. 55 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 5-2) The City should study the most efficient manner to provide administrative services and develop a plan to transform as determined. 5-4) The City adopts budgets and rate changes at hearings where the public is notified and invited. Information is placed in the local newspaper, when required. 5-5) The City Council is unable to evaluate all employees annually making local governance challenging because the elected officials are evaluated by voters during the election cycle. 5-6) The City’s General Plan is over 20 years old and should be updated prior to any future annexations. 56 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 5 CITY OF ALTURAS SPHERE OF INFLUENCE 5.1 Recommendation for City of Alturas Sphere of Influence The City of Alturas Sphere of Influence will remain the same as the previously adopted Sphere of Influence, which includes territory north and east of the City. This area has not been included in the City’s planning process and is not fully developed at this time. The Sphere of Influence will allow additional room for the City to grow in the future. 5.2 Present and Planned Land Uses in the Alturas Area, Including Agricultural and Open Space Lands51 5.2.1 General Plan and Zoning for the City of Alturas The City of Alturas General Plan includes the Sphere of Influence area and various future land uses are planned for this area. A defined Sphere of Influence protects adjacent agricultural lands in the area outside the Sphere of Influence boundary. At this time, the City is not expecting any annexations, albeit Daphnedale is receiving sewer services under the City of Alturas Municipal Utility District, due to the current service arrangement and based on lack of community interest in annexing. Consequently, it is anticipated that any development of the area will occur in unincorporated County territory. 5.2.2 SOI Determinations on Present and Planned Land Use for City of Alturas SOI 2-1) The Sphere of Influence includes lands outside the City Limits of Alturas and allows for adequate growth for the next several years. 5.3 Present and Probable Need for Public Facilities and Services in the Alturas Area52 5.3.1 Municipal Service Background The City of Alturas provides water and sewer service, fire and police, road maintenance, drainage management, park and recreation facilities, an airport, and maintains offices and work facilities as needed. These services need to be expanded for specific projects and paid at the expense of the developer. 5.3.2 SOI Determinations on Facilities and Services and Probable Need for City of Alturas SOI 3-1) The City of Alturas provides sewer and water service, road maintenance, an airport, drainage, park and recreation facilities, police, and fire protection. These are essential services for the City’s population and are best provided by a full-service city. 51 California Government Code Section 56425 (e) (1) 52 California Government Code Section 56425 (e) (2) 57 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 5.4 Present Capacity of Public Facilities and Adequacy of Public Services53 5.4.1 Capacity Background The City of Alturas works to maintain all facilities (water, sewer, roads, and parks) and services (fire protection, police protection, and public information) to serve the population and to comply with all State and Federal laws. The City is fortunate to have dedicated and knowledgeable staff to provide these services. 5.4.2 SOI Determinations on Public Facilities Present and Future Capacity for City of Alturas SOI 4-1) The City of Alturas provides adequate facilities for the present population. SOI 4-2) The City does not require developers to include funds in the form of developer fees or annexation fees for expansion of public facilities and services in their proposed projects. 5.5 Social or Economic Communities of Interest for City of Alturas54 5.5.1 Alturas Community The Alturas Community is described above in this report. Alturas has an identity as a community and provides many services. County Offices, courts, the Hospital District, and medical services are located in the City of Alturas. Schools, the City Fire Department and recreation opportunities provide community focus for Alturas. 5.5.2 SOI Determinations on Social or Economic Communities of Interest for City of Alturas SOI 5-1) The City of Alturas serves both residents and visitors to the community. SOI 5-2) The City of Alturas provides a focus for the community through recreational opportunities, the school system, a hospital, and the Fire Department. 53 California Government Code Section 56425 (e) (3) 54 California Government Code Section 56425 (e) (4) 58 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 REFERENCES Brelje & Race Consulting Civil Engineers, “Preliminary Engineering Report Bonanza Springs Water System CSA #7 Lake County Special Districts”, December 2006, page 11 Brelje & Race Consulting Civil Engineers, “Preliminary Engineering Report Starview Water System CSA #18 Lake County Special Districts”, December 2006, page 4. California Department of Water Resources: http://www.nd.water.ca.gov/IndexFiles/WaterResources/Modoc/ September 19, 2008. http://www.dpla2.water.ca.gov/publications/groundwater/bulletin118/basins/pdfs_desc/5- 2.01.pdf, September 19, 2008. California, General Plan Guidelines, 2003, Governor’s Office of Planning and Research. Caltrans: http://www.dot.ca.gov/hq/traffops/saferesr/trafdata/2006all/r280405i.htm, September 20, 2008 City of Alturas, “Alturas Municipal Airport Capital Improvement Program”, January 11, 2008, Reinard W. Brandley, Loomis CA. City of Alturas, “Basic Financial Statements June 30, 2006” by R.J. Ricciardi, Inc. Certified Public Accountants, 1000 Fourth Street, Suite 400, San Rafael, California 94901, Phone: 415- 457-1215, Fax 415-457-8735, www.rjrcpa.com. City of Alturas, City Council Agenda, June 2008, http://www.cityofalturas.org/agenda.html City of Alturas, City Council Minutes, April 8, 2008, http://www.cityofalturas.org/minutes.html City of Alturas, “General Plan Goals, Policies, and implementation Measures” June 1987, Prepared by Mintier Harnish & Associates, 510 8th Street, Sacramento, CA 95814, 916-446- 0522. City of Alturas, “Housing Element”, June 2005, Hunter Consulting Services. City of Alturas, “Water Department System Analysis and Rate Study” August 2007. Prepared by Chester Robertson, Director of Public Works. 59 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 City of Alturas, Chester Robertson, Director of Public Works, meeting with John Benoit, November 2008. City of Alturas, Ken Barnes, Chief of Police meeting with John Benoit, April 24, 2008. City of Alturas, Stephen J. Jacques, Fire Marshal, meeting with John Benoit, Aril 24, 2008. http://en.wikipedia.org/wiki/Alturas,_California http://en.wikipedia.org/wiki/Modoc_County,_California http://www.city-data.com/city/Alturas-California.html http://www.modocrecord.com/2008archives.html#January League of California Cities, City Attorneys Department Spring Meeting, May 19-21, 1999, Michael G. Colantuono, City Attorney, Barstow, Cudahy, La Habra Heights. Modoc LAFCO, “Draft City of Alturas MSR”, November 14, 2005. Prepared by Ronald G. Young, R.C.E., PO Box 45, Standish, CA 96128 Modoc County Office of Education – School Accountability Report Card, 2008 Modoc Unified School District – School Accountability Report Card, 2008 National Fire Protection Association. NFPA Standard 1710, 2004. NSF International, “Feasibility of an Economically Sustainable Point-of-Use/Point-of-Entry Decentralized Public Water System Final Report”, March 2005, p18. nsf.org/business/.../pdf/GrimesFinalReport_Dec05.pdf Yuba LAFCO, “Final Municipal Service Review: County of Yuba”, July 24, 2008, page72. 60 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 ABBREVIATIONS AB Assembly Bill AADT Annual Average Daily Traffic ADT Average Daily Traffic BOD Biological Oxygen Demand CA California CALEA Commission on Accreditation for Law Enforcement Agencies Caltrans California Department of Transportation CEQA California Environmental Quality Act CIP Capital Improvement Plan CIWMB California Integrated Waste Management Board CKH Act Cortese-Knox-Hertzberg Local Government Reorganization Act of 2000 CPI Consumer Price Index CPOA California Peace Officers Association CRWQCB California Regional Water Quality Control Board CSA County Service Area CSD Community Services District CTR California Toxics Rule DPH Department Public Health DUC Disadvantaged Unincorporated Community EMD emergency medical dispatching EMS Emergency Medical Service EMT Emergency Medical Technician FD Fire Department FY Fiscal Year gpd gallons per day 61 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 gpm gallons per minute I&I inflow and infiltration (to sewer lines) ISO Insurance Service Organization LAFCO Local Agency Formation Commission LEA Local Enforcement Agencies (for landfills) LOS Level of Service (Traffic) MCL Maximum Contaminant Level (for drinking water) mgd million gallons per day MSR Municipal Service Review NFPA National Fire Protection Association OES Office of Emergency Services (California) PERS Public Employee Retirement System POST California Commission on Peace Officer Standards and Training PSI pounds per square inch SDWA Safe Drinking Water Act SOI Sphere of Influence SWAT Special weapons and tactics TCR Total Coliform Rule UFC Uniform Fire Code US United States 62 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 DEFINITIONS Acre foot: The volume of water that will cover one acre to a depth of one foot, 325,850 U.S. Gallons or 1,233,342 liters (approximately). Agriculture: Use of land for the production of food and fiber, including the growing of crops and/or the grazing of animals on natural prime or improved pasture land. Alluvium: A general term for clay, silt, sand, gravel, or similar unconsolidated detrital material, deposited during comparatively recent geologic time by a stream or other body of running water, (1) as sediment in the bed of the stream or on its flood plain or delta, (2) as a cone or fan at the base of a mountain slope; esp., such a deposit of fine-grained texture (silt or silty clay) deposited during time of flood.55 Aquifer: An underground, water-bearing layer of earth, porous rock, sand, or gravel, through which water can seep or be held in natural storage. Aquifers generally hold sufficient water to be used as a water supply. Avigation Easement: Airspace or an easement in such airspace above the surface of property where necessary to permit imposition upon such property of excessive noise, vibration, discomfort, inconvenience, interference with use and enjoyment, and any consequent reduction in market value, due to the operation of aircraft to and from the airport. Avigation easements are deemed a property right and to be valid and enforceable, must be recorded by the local county Register of Deeds. These easements may permit use or occupation of the underlying land for certain land uses, such as cropping or livestock farming and related agricultural activities as may be stated in the easement. Specific land uses may be prohibited such as land uses attracting birds or other wildlife which could pose a hazard to aircraft. Bond: An interest-bearing promise to pay a stipulated sum of money, with the principal amount due on a specific date. Funds raised through the sale of bonds can be used for various public purposes. California Environmental Quality Act (CEQA): A State Law requiring State and local agencies to regulate activities with consideration for environmental protection. If a proposed activity has the potential for a significant adverse environmental impact, an environmental impact report (EIR) must be prepared and certified as to its adequacy before taking action on the proposed project. Community Facilities District: Under the Mello-Roos Community Facilities Act of 1982 (Section 53311, et seq.) a legislative body may create within its jurisdiction a special tax district that can finance tax-exempt bonds for the planning, design, acquisition, construction, and/or operation of public facilities, as well as public services for district residents. Special taxes levied solely within the district are used to repay the bonds. 55 http://www.maden.hacettepe.edu.tr/dmmrt/index.html 63 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 Community Services District (CSD): A geographic subarea of a county used for planning and delivery of parks, recreation, and other human services based on an assessment of the service needs of the population in that subarea. A CSD is a taxation district with independent administration. Flume: An open artificial water channel, in the form of a gravity chute, that leads water from one place to another. A flume can be used to measure the rate of flow. Specific designs include the Parshall, Palmer- Bowlus, Trapezoidal, and H-Flume. Formation: A laterally continuous rock unit with a distinctive set of characteristics that make it possible to recognize and map from one outcrop or well to another. The basic rock unit of stratigraphy. 56 Groundwater: Water under the earth’s surface, often confined to aquifers capable of supplying wells and springs. Groundwater recharge: Groundwater recharge or deep drainage or deep percolation is a hydrologic process where water moves downward from surface water to groundwater. This process usually occurs in the vadose zone below plant roots and is often expressed as a flux to the water table surface. Recharge occurs both naturally (through the water cycle) and anthropologically (i.e., "artificial groundwater recharge"), where rainwater and or reclaimed water is routed to the subsurface. Groundwater is recharged naturally by rain and snow melt, though this may be impeded somewhat by human activities including paving, development, or logging. These activities can result in enhanced surface runoff and reduction in recharge. Use of groundwater, especially for irrigation, may also lower the water tables. Groundwater recharge is an important process for sustainable groundwater management, since the volume-rate abstracted from an aquifer should be less than or equal to the volume-rate that is recharged. Recharge can help move excess salts that accumulate in the root zone to deeper soil layers, or into the ground water system. Another environmental issue is the disposal of waste through the water flux such as dairy farms, industrial, and urban runoff.57 Impact Fee: A fee, also called a development fee, levied on the developer of a project by a county, or other public agency as compensation for otherwise-unmitigated impacts the project will produce. California Government Code Section 66000, et seq., specifies that development fees shall not exceed the estimated reasonable cost of providing the service for which the fee is charged. To lawfully impose a development fee, the public agency must verify its method of calculation and document proper restrictions on use of the fund. Infrastructure: Public services and facilities such as sewage-disposal systems, water-supply systems, and other utility systems, schools and roads. 56 http://geology.com/dictionary/glossary-f.shtml 57 http://en.wikipedia.org/wiki/Groundwater_recharge 64 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 Land Use Classification: A system for classifying and designating the appropriate use of properties. Leapfrog Development; New development separated from existing development by substantial vacant land. Local Agency Formation Commission (LAFCO): A five-or seven-member commission within each county that reviews and evaluates all proposals for formation of special districts, incorporation of cities, annexation to special districts or cities, consolidation of districts, and merger of districts with cities. Each county’s LAFCO is empowered to approve, disapprove, or conditionally approve such proposals. The LAFCO members generally include two county supervisors, two city council members, and one member representing the general public. Some LAFCOs include two representatives of special districts. Maximum Contaminant Level (MCL): The highest level of a contaminant that is allowed in drinking water. Primary MCLs are set as close to the PHGs (or MCLGs) as is economically and technologically feasible. Secondary MCLs are set to protect the odor, taste, and appearance of drinking water. Maximum Contaminant Level Goal (MCLG): The level of a contaminant in drinking water below which there is no known or expected risk to health. MCLGs are set the US Environmental Protection Agency (US EPA). Maximum Residual Disinfectant Level (MRDL): The level of a disinfectant added for water treatment that may not be exceeded at the consumer’s tap. Maximum Residual Disinfectant Level Goal (MRDLG): The level of a disinfectant added for water treatment below which there is no known or expected risk to health. MRDLGs are set by the U.S. Environmental Protection Agency. Mean Sea Level: The average altitude of the sea surface for all tidal stages. Mello-Roos Bonds: Locally issued bonds that are repaid by a special tax imposed on property owners within a community facilities district established by a governmental entity. The bond proceeds can be used for public improvements and for a limited number of services. Named after the program’s legislative authors. Ordinance: A law or regulation set forth and adopted by a governmental authority. Pleistocene Epoch: The first epoch of the Quaternary Period, beginning 2 to 3 million years ago and ending approximately 10,000 years ago.58 Primary Drinking Water Standards (PDWS): Maximum Contaminant Levels for contaminants. Proposition 13: (Article XIIIA of the California Constitution) Passed in 1978, this proposition enacted sweeping changes to the California property tax system. Under Prop. 13, property taxes cannot exceed 58http://www.webref.org/geology/p/pleistocene_epoch.htm 65 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 1% of the value of the property and assessed valuations cannot increase by more than 2% per year. Property is subject to reassessment when there is a transfer of ownership or improvements are made.59 Proposition 218: (Article XIIID of the California Constitution) This proposition, named "The Right to Vote on Taxes Act", filled some of the perceived loopholes of Proposition 13. Under Proposition 218, assessments may only increase with a two-thirds majority vote of the qualified voters within the District. In addition to the two-thirds voter approval requirement, Proposition 218 states that effective July 1, 1997, any assessments levied may not be more than the costs necessary to provide the service, proceeds may not be used for any other purpose other than providing the services intended, and assessments may only be levied for services that are immediately available to property owners.60 Public Health Goal (PHG): The level of a contaminant in drinking water below which there is no known or expected risk to health. PHGs are set by the California Environmental Protection Agency. Quaternary: The second period of the Cenozoic era, following the Tertiary; also, the corresponding system of rocks. It began 2 to 3 million years ago and extends to the present. It consists of two grossly unequal epochs; the Pleistocene, up to about 10,000 years ago, and the Holocene since that time.61 Ranchette: A single dwelling unit occupied by a non-farming household on a parcel of 2.5 to 20 acres that has been subdivided from agricultural land. Regulatory Action Level (AL): The concentration of a contaminant which, if exceeded, triggers treatment of other requirements which a water system must follow. Sanitary Sewer: A system of subterranean conduits that carries refuse liquids or waste matter to a plant where the sewage is treated, as contrasted with storm drainage systems (that carry surface water) and septic tanks or leech fields (that hold refuse liquids and waste matter on-site). Secondary Drinking Water Standards (SDWS): MCLs for contaminants that affect taste, odor, or appearance of the drinking water. Contaminants with SDWSs do not affect the health at the MCL levels. Sludge is the residual semi-solid material left from wastewater treatment processes. When fresh sewage or wastewater is added to a settling tank, approximately 50% of the suspended solid matter will settle out in about an hour and a half. This collection of solids is known as raw sludge or primary solids and is said to be "fresh" before anaerobic processes become active. Once anaerobic bacteria take over, the sludge will become putrescent in a short time and must be removed from the sedimentation tank before this happens. Sphere of Influence (SOI): The probable physical boundaries and service area of a local agency, as determined by the Local Agency Formation Commission (LAFCO) of the county. 59http://www.californiataxdata.com/A_Free_Resources/glossary_PS.asp#ps_08 60http://www.californiataxdata.com/A_Free_Resources/glossary_PS.asp#ps_08 61 http://www.webref.org/geology/q/quaternary.htm 66 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 Urban: Of, relating to, characteristic of, or constituting a city. Urban areas are generally characterized by moderate and higher density residential development (i.e., three or more dwelling units per acre), commercial development, and industrial development, and the availability of public services required for that development, specifically central water and sewer service, an extensive road network, public transit, and other such services (e.g., safety and emergency response). Development not providing such services may be “non-urban” or “rural”. CEQA defines “urbanized area” as an area that has a population density of at least 1,000 persons per square mile (Public Resources Code Section 21080.14(b)). Urban Services: Utilities (such as water, gas, electricity, and sewer) and public services (such as police, fire protection, schools, parks, and recreation) provided to an urbanized or urbanizing area. Variances and Exemptions: Department permission to exceed an MCL for drinking water or not comply with a drinking water treatment technique under certain conditions. Zoning: The division of a city by legislative regulations into areas, or zones, that specify allowable uses for real property and size restrictions for buildings within these areas; a program that implements policies of the general plan. 67 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 APPENDIX A CITY OF ALTURAS ORGANIZATIONAL CHART City Council City Attorney City Treasurer City Clerk Police Chief Pu D bl i i r c e W cto o r rks Fire Marshall Adm C i l n e i r s k tr I a I tive Adm C in le is r t k r a I tive Lieutenant Pu A D b s l i s i r c i e s W c t t a o o n r r t k s Sergeants Clerk P / o D li i c s e p atch I B ns u p il e d c in to g r Pool Manager Pu F b o li r c e m W a o n rks Pla T n re t a O t p m e e r n at t o r Airport Planning Patrol Officers M P a e in rs t o e n n n an e c l e M P a e in rs t o e n n n an e c l e M P a e in rs t o e n n n an e c l e Animal Control Officer ELECTED MAYOR: Brian Cox DIRECTOR OF PUBLIC WORKS: Warren Farnam MAYOR PRO-TEM: Cheryl Nelson Councilmember: Paul Minchella CHIEF OF POLICE: Sid Cullins Councilmember: Samantha Wood Councilmember: Kelly Crosby FIRE CHIEF: Jimmy Lloyd CLERK: VACANT CITY ATTORNEY: Jeffrey Hedlund TREASURER: Dorothy Long REVISED FEBRUARY 2023 68 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 APPENDIX B – BUDGET City of Alturas Amended Budget #3 2022/2023 ACTUAL CASH ESTIMATED ESTIMATED ESTIMATED FUND TRANSFERS IN TRANSFERS OUT FUND BALANCE 7/1/2022 REVENUES EXPENDITURES BALANCE 6/30/23 1GENERAL $303,225 $1,698,250 ($39,128) ($1,772,848) $189,499 2COPS ($41,853) $150,000 ($70,447) $37,700 3M N B LOAN (1992 FMHA) $483,702 $246,000 ($188,737) $540,965 4CAPITAL PROJECTS $408,276 ($165,828) $242,448 5TRAFFIC SAFETY $52,895 $19,000 ($11,000) $60,895 6CA FIRE FOUND. GRANT $10,000 ($10,000) $0 7LAFCO $40,811 $25,128 $25,128 ($74,257) $16,810 8MILL SITE $59,583 $20,000 ($2,000) $77,583 10USDA PD GRANT - (2 Cars) $0 $0 11CA D.O.A. LOAN (Jet A Truck) $3,955 $3,740 ($3,740) $3,955 12AIRPORT ENTERPRISE ($53,573) $447,643 ($3,740) ($490,591) ($100,261) 13RMAP FROM GSRMA $14,550 $18,290 ($10,000) $22,840 14PROP 56 GRANT-TOBACCO $0 $84,683 ($84,683) $0 15NRA GRANT - PD $1,977 $1,977 16HOUSING ELEMENT ($13,106) ($13,106) 17USDA GRANT - FIRE $0 $0 18USDA BACKHOE - PW $0 $0 197AIRPORT IMPRVMT - FAA $4,310 $59,640 $60,000 ($258,592) ($134,642) 20JAG GRANT - PD $0 $0 21NUISANCE ABATEMENT $4,933 $4,933 22CV1 - SEWER UPGRADES $216 $55,194 ($55,409) $0 23COPS - SRO GRANT ($54,623) ($54,623) 25LEAP GRANT ($252) ($252) 26LOCAL FISCAL RECOV. $306,562 $306,562 ($500,000) $113,124 27CV2/CV3 - UTILITY RELIEF ($28,491) $210,569 ($182,078) $0 30AIRPORT ANNUAL CREDIT $10,000 $10,000 ($10,000) $10,000 32USDA - FIRE ENGINE ($115,828) $115,828 $0 33BSCC - OWMH GRANT $15,000 $15,000 34COURT ST. STIP $20,000 ($20,000) $0 358TH ST. STIP $40,000 ($40,000) $0 36NAGLE ST. STIP $0 37PEDESTRAIN IMPROV $10,279 ($10,279) $0 38EAST ST. STIP ($1,227) $1,227 $0 39WEST C. STIP $0 40MOSQUITO ABATEMENT $125,221 $26,000 ($23,691) $127,530 43SB1 - RMRA $129,139 $63,908 ($90,000) $103,047 44GAS TAX $144,810 $83,809 ($130,000) $98,619 45SNOW REMOVAL $17,787 ($15,641) $2,146 50SPECIAL ROAD $564,446 $355,500 $10,279 ($60,000) ($370,953) $499,272 60SEWER O&M $370,964 $630,000 ($791,680) $209,284 61SEWER RESERVE $518,013 $18,100 $536,113 62SEWER CAP. OUTLAY $28,840 $28,840 63SEWER PLANNING GRANT ($151,632) $136,489 ($22,372) ($37,515) 67SEWER LOAN FUND (SRF) $128,461 $95,844 ($95,844) $128,461 70WATER O & M $197,361 $503,500 $300,000 ($956,315) $44,546 72WATER RESERVE $1,369,846 $165,000 ($300,000) $1,234,846 79ARENA SHOW GROUNDS $1,849 $3,000 $5,000 ($9,690) $159 80MUNICIPAL POOL $7,793 ($11,182) ($3,389) 82RECREATION $7,599 $20,757 $9,000 ($19,126) $18,230 83COMMUNITY PROJ. $20,953 ($2,965) $17,988 84BUSINESS ENHANCE. $38,684 ($1,200) $37,484 85JOHN WALL TRUST $2,545,409 $2,545,409 TOTAL $7,471,863 $5,469,093 $588,975 ($588,975) ($6,315,041) $6,625,915 69 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 APPENDIX 3 – City of Alturas Municipal Sewer District Map Spicer Spicer Ln nL evoD Baldpate Dr W C o h o u d k D a u r c L k n Ln Bufflehead Dr Melvilane Ave Anna Ln tS tsaE evA enalaraS ·|}þ Ninteenth St 395 Archer Ave ·|}þ nL nosam ohT tS repinuJ Fi tS eniP fteen tS ecurpS th S tS t kaO tS elpaM Thirteenth St 4th 299 Bond S K t e tS m rennoB ble tS renraW St tS radeC tS ralpoP tS elgaN tS C tseW Eig F h o th u r S th t St tS niaM tS truoC tS A tsaE E N le i T v n e e t n h n S S F t t e S h h i i f x v t t S t S e h h t n t tS D tsaE S S th t t St tS enihpesoJ W T S P h e e tS a tseW i c s r r k o t d e n S C r S H d n t t a i g S r S l h t o t s S t S tS resuahnaD t tS B tseW tS llew dlaC tS A tseW Hend tS eniR e N r o s r o t tS draw oH h n S St t Wat M er o S d t oc St tS B tsaE McDowell St County Road 56 South West St 791 dR oC 97 etuoR AIB 395·|}þ 395 North West edistseW 70 tS potlliH Eighteenth St County Road 265 Seventeenth St Sixteenth St Fourteenth St Twelfth St Tenth St tS truoC tS tsaE tS B tsaE tS ralpoP R F iv o e rr r e s s id t e A v S e t tS radeC North St dvlB enalicuL 3 2 1 6 Blvd Lucilane tS lliM 7 11 12 10 Eleventh St Ninth St tS htim F S i i f x th th S S t t tS A tsaE S tS ralpoP S T e h c F i o i r r d n s d t S S t S t t Henderson St 18 14 13 15 Modoc County kj 22 kjTu kj lela N k e e well 2W3illow RanchkjFort Bkjidwell 24 19 kjDavis Creek ·|}þ kjLake City ·|}þ 139 kj kj Alt 3 u 9 r 5 asCeda kj rvi ·| l }þ l 2 e 99 Canby Eaglevillekj Lookoukjt kjAdin Likelykj htroN 24 pihsnwoT Range 12 East Modoc County LAFCo City of Alturas Municipal Sewer District "This map does not depict a legal property boundary and may not be used as a legal description as defined in the Subdivision Map Act" 4 Legend City of Alturas Municipal Sewer District 2018.29 Acres Modoc County Highways City of Alturas Municipal Sewer District C M i u ty n i o c f i p A a lt l u S r e a w s er District Parcels Sphere Of Influence Sectional Grid City of Alturas Municipal Sewer District (MDB&M) Modoc LAFCo Resolution: 2021-0004 Adopted: June 8, 2021 0 500 1,000Feet Effective August 11, 2021 Source: Modoc LAFCo Map Created 9/08/2021 Modoc LAFCO City of Alturas MSR Adopted February 13, 2024 APPENDIX 4 – Alturas Sphere of Influence, 2024 Fourteenth St Twelfth St E T l e e n v t e h n S th t St tS truoC Tenth St Ninth St tS htim S S F i i x ft t h h S S t t tS tsaE tS A tsaE tS B tsaE D tsaE tS ralpoP Th S ir e d c o S n t d St Henderson St 71 tS radeC Eighteenth St Seventeenth St Sixteenth St Riverside St Forrest Ave tS potlliH Range 12 East Modoc County LAFCo 33 34 35 36 31 City of Alturas Sphere of Influence 4 3 2 evA enalaraS dvlB enalicuL nL evoD G W C oo h o s u o e k d a L D r o L u o n c p k Ln rD etapdlaB rD daehelffuB 6 Melvilane Ave 1 Anna Ln tS tsaE ·|þ} Archer Ave 395 9 10 ·|þ} 299 11 nL nosam ohT tS repinuJ tS eniP tS ecurpS tS kaO tS elpaM F T 1 if h t 2 e ir e te n e th n t S h t St Eleventh St 7 Ke B m o b n tS rennoB l d e S S t t tS renraW tS radeC tS ralpoP F E o i P g u W a h r tS tseW r t e t k h h s t S S S e C t t t r H tS e a lgaN n i r g l S o h t s S tS resuahna S D t t tS C tseW tS B tseW tS llewdlaC tS A tseW F N ir tS eniR o s r t t S h t tS drawoH St tS niaM 593 ywH tS truoC Modoc tS setsE S F t N i S f i t h n h o t h S r tS C tsaE t t S S S t e t S v ix e t n h t h S t SttS enihpesoJ Pit St Water St 16 15 14 Glenn St 13 791 dR oC County Road 56 18 ·|þ} 395 West North 23 24 19 21 22 Modoc County Legend kj kjTu kj lela N k e e well Willow RanchkjFort B kj idwell Highways Modoc County 28 City o ·|}þ 13 f 9 Altura 2 s 7 kj Canby kj Al ·|}þ t 3 u 9 r 5 kj a E s D a a g C v le e is v Lkj d i a C a l kj l k r e r v e e i kj e · l |}þ C 2 l k e 9 it 9 y P S (M a e r D c c t B e io l & s n M a 2 l ) 6 Grid C M Ad i o t o y d p o o t c e f d L A : A l F t F u e C r b a o r s u R a S e r p y s h o 1 e l 3 u r , t e i 2 o o 0 n f 2 : 4 2 In 0 f 2 lu 4 2 e - 5 0 n 0 c 0 e 3 0 330660 1,320 3 Fe 0 et Lookout kj kjAdin Likelykj Source: Modoc LAFCo Map Created 4/1/2024 htroN 24 pihsnwoT O City of Alturas City of Alturas Sphere Of Influence Daphnedale