LAFCO
City of Roseville Municipal Service Review & Sphere of Influence Update
Read the report at Local Agency Formation Commissions ↗
City of Roseville
Municipal Service Review &
Sphere of Influence Update
January & March 2025
Municipal Service Review: SOI Update Placer County LAFCO
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PLACER LAFCO RESOLUTION NO. 25-01
RESOLUTION OF THE LOCAL AGENCY FORMATION COMMISSION OF PLACER
COUNTY ADOPTING THE SERVICE REVIEW FOR THE CITY OF ROSEVILLE
(LAFCO Project No. 2023-05)
WHEREAS, pursuant to the Cortese-Knox-Hertzberg Local Government Reorganization Act of
2000 (CKH), commencing with section 56000 et seq. of the California Government Code (GC),
and more specifically GC section 56430, requiring the Local Agency Formation Commission of
Placer County (LAFCO or Commission) to regularly conduct a service review for each local
government agency whose principal jurisdiction is within Placer County; and
WHEREAS, LAFCO initiated and hired a consultant to prepare a service review of the City of
Roseville (City); and
WHEREAS, the Commission received a draft Service Review for the City on November 16,
2024, at a noticed public hearing; and
WHEREAS, LAFCO circulated the draft study for a 45-day public review and comment period;
and
WHEREAS, the Executive Officer has reviewed the final study prepared by LAFCO’s
consultant and has prepared a report including her recommendations and has furnished copies
of said report and the final study to the Commission and to all interested persons within the
time required by CKH; and
WHEREAS, the final study describes and discloses the information required for the review of
municipal services of the City pursuant to GC section 56430; and
WHEREAS, for California Environmental Quality Act purposes, LAFCO has identified
categorical exemption Class 6 (Cal. Code Regs., tit. 14, § 15306) as applicable to the subject
study because Class 6 exempts from CEQA projects that consist of basic data collection,
research, experimental management, and resource evaluation activities that do not result in a
serious or major disturbance to an environmental resource; and
WHEREAS, at a public hearing at a regularly scheduled meeting of February 19, 2025, the
Commission received and considered the final study, including the proposed determinations,
all written and oral testimony and comments received, the environmental determination, and
the Executive Officer’s report and recommendations;
NOW, THEREFORE, BE IT HEREBY RESOLVED, DETERMINED, AND ORDERED AS
FOLLOWS:
1. The final Service Review for the City is found to be adequate and complete pursuant to
the requirements of GC section 56430.
2. The Commission independently makes all of the Service Review written determinations
for the City of Roseville as described in the final study and by this reference
incorporated herein.
3. The Executive Officer is hereby directed to file a Notice of Exemption in compliance with
the California Environmental Quality Act.
The foregoing resolution was duly passed and adopted by the Local Agency Formation
Commission of Placer County at a regular meeting thereof, held on February 19, 2025, by the
following vote:
AYES: Alpine, Eklund, Friedman, Gustafson, Landon, Lomen, Rohan
NOES: None
ABSENT: None
ABSTAIN: None
�
Jo ua Alpine, Vic Chair
ocal Agency For ation Commission
County of Placer, State of California
Attest:
PLACER LAFCO RESOLUTION NO. 25-03
RESOLUTION OF THE LOCAL AGENCY FORMATION COMMISSION OF PLACER
COUNTY UPDATING THE SPHERE OF INFLUENCE FOR THE CITY OF ROSEVILLE
(LAFCO Project No. 2023-05)
WHEREAS, the Placer County Local Agency Formation Commission (LAFCO or Commission)
is a public agency of the State of California with regulatory and planning responsibilities to
facilitate orderly growth and development pursuant to the Cortese-Knox-Hertzberg Local
Government Reorganization Act of 2000 (CKH), commencing at section 56000 of the California
Government Code (GC); and
WHEREAS, the Commission is responsible, under GC section 56425, for establishing and
regularly updating the sphere of influence (SOI) of each local government agency whose
principal jurisdiction is within Placer County; and
WHEREAS, CKH directs that all jurisdictional boundary changes must be consistent with the
affected agencies’ SOIs; and
WHEREAS, prior to updating an agency’s SOI, the Commission must conduct a service review
under GC section 56430; and
WHEREAS, the Commission adopted the final Service Review for the City of Roseville (City)
on February 19, 2025, via Resolution No. 25-01, which Service Review serves as the informing
document for the Commission to proceed with a SOI update for the City; and
WHEREAS, the City does not provide or intend to provide facilities or services related to
sewer, nonagricultural water, or streets and roads to any territory in the proposed updated SOI
that is subject to a Williamson Act (GC section 56426.6) or farmland security zone (GC section
56426) contract; and
WHEREAS, acting as the lead agency under the California Environmental Quality Act
(CEQA), the Commission finds and determines that the SOI update for the City is not a project
subject to CEQA because it will not cause either a direct physical change in the environment or
a reasonably foreseeable indirect physical change in the environment and alternately finds and
determines that if the SOI update is a project subject to CEQA, it is exempt from further
environmental review under section 15061(b)(3) of the State CEQA Guidelines because it can
be seen with certainty that there is no possibility that the SOI update may have a significant
effect on the environment; and
WHEREAS, at a public hearing at a regularly scheduled meeting on January 8, 2025, and
continuing to March 12, 2025, the Commission received and considered the City of Roseville
Sphere of Influence Update dated March 2025, all written and oral testimony and comments
related to the SOI update for the City, proposed findings, determinations, and conditions of
approval, the Executive Officer’s report and recommendations, and the environmental
determination; and
WHEREAS, as part of the SOI update process, the Commission is required, pursuant to GC
section 56425(e), to make a written statement of determinations regarding certain factors,
which determinations are set forth in the City of Roseville Sphere of Influence Update dated
Municipal Service Review: SOI Update Placer County LAFCO
CONTENTS
Acknowledgments.......................................................................................................................... v
Acronyms ....................................................................................................................................... viii
Introduction ..................................................................................................................................... ix
Purpose of the Municipal Service Review ............................................................................... xi
Uses of the Municipal Service Review ..................................................................................... xii
Purpose of the Sphere of Influence Update .......................................................................... xii
MUNICIPAL SERVICE REVIEW ............................................................................................. ....1
Executive Summary ........................................................................................................................ 2
Growth and Population Projections ......................................................................................... 2
Disadvantaged Unincorporated Communities ...................................................................... 2
Present and Planned Capacity of Public Facilities ................................................................ 3
Financial Ability to Provide Services ......................................................................................... 4
Status and Opportunities for Shared Facilities......................................................................... 5
Government Structure and Accountability ............................................................................ 7
Other Matters Related to Effective Service Delivery .............................................................. 7
Sphere of Influence Recommendations .................................................................................. 7
SECTION I: CURRENT CONDITIONS ........................................................................................ 1
City of Roseville Profile ................................................................................................................... 2
Introduction .................................................................................................................................. 2
Growth and Population Projections .............................................................................................. 7
Disadvantaged Unincorporated Communities ........................................................................... 9
Determination ............................................................................................................................ 10
Present and Planned Capacity of Public Facilities ................................................................... 11
Water .......................................................................................................................................... 11
Wastewater ................................................................................................................................ 12
Solid Waste ................................................................................................................................. 14
Law Enforcement ...................................................................................................................... 15
Parks and Recreation ............................................................................................................... 29
Stormwater ................................................................................................................................. 30
Street Maintenance .................................................................................................................. 32
Public Transit............................................................................................................................... 33
Library.......................................................................................................................................... 34
Electric Utility .............................................................................................................................. 35
Financial Ability to Provide Services .......................................................................................... 37
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Revenues and Expenses .......................................................................................................... 37
General Fund Services.............................................................................................................. 39
Enterprise Fund Services ........................................................................................................... 41
Capital Improvements ............................................................................................................. 43
Debt ............................................................................................................................................ 44
Reserves ...................................................................................................................................... 45
Future Ability to Provide Service .............................................................................................. 46
Status and Opportunities for Shared Facilities........................................................................... 48
City Services ............................................................................................................................... 48
Management Efficiencies ........................................................................................................ 50
Government Structure and Accountability ............................................................................... 52
Staffing Levels ............................................................................................................................ 54
Organizational Effectiveness ................................................................................................... 55
Other Matters Related to Effective Service Delivery ................................................................ 56
Determination ............................................................................................................................ 57
SECTION II: SPECIAL TOPICS ................................................................................................ 59
Western Development .................................................................................................................. 60
Island Areas Within Existing Sphere of Influence ...................................................................... 72
SECTION III: FEASIBILITY ALTERNATIVES............................................................................... 75
Findings ........................................................................................................................................... 76
Opportunities for Enhanced Services ......................................................................................... 79
SECTION IV: MUNICIPAL SERVICE REVIEW ......................................................................... 80
Summary of Determinations ........................................................................................................ 81
Growth and Population Projections ....................................................................................... 81
Disadvantaged Unincorporated Communities .................................................................... 83
Present and Planned Capacity of Public Facilities .............................................................. 83
Financial Ability to Provide Services ....................................................................................... 84
Status and Opportunities for Shared Facilities....................................................................... 85
Government Structure and Accountability .......................................................................... 86
Other Matters Related to Effective Service Delivery ............................................................ 88
SPHERE OF INFLUENCE UPDATE ............................................................................................ 89
Executive Summary ...................................................................................................................... 90
Sphere of Influence Recommendations ................................................................................ 90
Sphere of Influence Recommendations .................................................................................... 91
Determination ............................................................................................................................ 93
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Municipal Service Review: SOI Update Placer County LAFCO
Sphere of Influence Update .................................................................................................... 93
Proposed SOI Determinations.................................................................................................. 95
Appendix A: Public Comments................................................................................................. 100
PCCP Comments Document ................................................................................................ 100
City of Roseville Comments Document ............................................................................... 102
PCWA Comments Document ............................................................................................... 104
County of Placer Comments Document ............................................................................. 105
County of Placer Comments Response Document ........................................................... 115
Western Placer Waste Management Authority (WPWMA) Comments .......................... 123
PCCP Comments Document ................................................................................................ 131
PCCP Comment Responses Document .............................................................................. 140
Appendix B: Table of Figures ..................................................................................................... 150
Appendix C: References ............................................................................................................ 152
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Municipal Service Review: SOI Update Placer County LAFCO
ACKNOWLEDGMENTS
Gratitude to the Roseville City Council
AP Triton is deeply honored to have been entrusted with conducting this Municipal Service
Review by the esteemed Roseville City Council. Our team appreciates the council
members' support and confidence in our capabilities. Special acknowledgment goes to:
• Bruce Houdesheldt, Mayor
• Krista Bernasconi, Vice-Mayor
• Scott Alvord, Councilmember
• Tracy Mendonsa, Councilmember
• Pauline Roccucci, Councilmember
Appreciation for the City of Roseville, Placer County LAFCO, and the County of Placer Staff
AP Triton also expresses its profound gratitude to the City of Roseville and Placer County
staff, who played a pivotal role in the data gathering and sharing of their invaluable
knowledge and expertise. Their contributions were instrumental in the comprehensive
development of this Municipal Service Review. We sincerely thank all the dedicated
professionals who collaborated with us. We especially appreciate those who generously
took time out of their demanding schedules to meet directly with the AP Triton team. Their
insights and cooperation were crucial in ensuring the accuracy and thoroughness of our
review. Special thanks are due to:
• Dominick Casey, City of Roseville City Manager
• Ryan DeVore, City of Roseville Assistant City Manager
• Heather Blanco, City of Roseville Executive Assistant
• Scott Pettingell, City of Roseville Assistant Finance Director
• Wayne Wiley, City of Roseville Economic Development Project Manager
• Richard Plecker, City of Roseville Environmental Utilities Director
Members of his staff, City of Roseville:
▪ Sean Bigley
▪ George Hanson
▪ Jason Marks
▪ Bryan Buchanan
▪ Janice Gainey
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Municipal Service Review: SOI Update Placer County LAFCO
▪ Michelle White
▪ Vickie Reid
▪ Tracie Mueller
▪ Matt Ocko
▪ Devin Whittington
▪ Brian Craighead
• Jill Geller City of Roseville Parks, Recreation & Libraries Director
Members of her staff, City of Roseville:
▪ Brian Castelluccio
▪ Tara Gee
▪ Jeff Nereson
▪ Julie Sparkes
▪ Rendi Hodge
▪ Pam Allen
▪ Natasha Martin
• Daniel Leonardich, City of Roseville Management Analyst II, Public Works
• Lauren Hocker, City of Roseville City Planner
• Jeff Beigh, City of Roseville Police Captain
• Jeffrey Kool, City of Roseville Police Lieutenant
• Chris Porter, City of Roseville Electric Utility Assistant Director
• Ed Scofield, City of Roseville Alternate Transportation Manager
• Chris Tamez, City of Roseville Street Maintenance Manager
• Sarah Cooper, City of Roseville Animal Control Supervisor
• Michelle McIntyre, Placer County LAFCO Executive Officer
• Erica Sanchez, Placer County LAFCO Assistant Executive Officer
• Amy Engle, Placer County LAFCO Commission Clerk
• Chris Pahule, County of Placer, Community Development Resource Agency
Planning Director
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Municipal Service Review: SOI Update Placer County LAFCO
This acknowledgment underscores the collective effort required to achieve a
comprehensive and insightful review of municipal services. We look forward to continuing
to partner and collaborate with the City of Roseville, Placer County LAFCO, the County of
Placer, and its dedicated team of professionals to enhance public service and community
well-being.
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Municipal Service Review: SOI Update Placer County LAFCO
ACRONYMS
ASR Aquifer Storage and Recovery
BGY Billion Gallons per Year
CIP Capital Improvement Projects
CFS Calls for Service
CKH Cortese-Knox-Hertzberg Local Government Reorganization Act
COVID-19 CO = Corona, VI = Virus, D = Disease, 19 = 2019
CRV California Redemption Value
CVP Central Valley Project
DUC Disadvantaged Unincorporated Community
EUD Environmental Utilities Department
FOG Fats, Oils and Greases
JPA Joint Powers Authority (also Joint Powers Agreement)
LAFCO Local Agency Formation Commission
MGD Million Gallons per Day
MRF Material Recovery Facility
MSR Municipal Services Review
MyRSVL My Roseville application
NCPA Northern California Power Association
PCWA Placer County Water Agency
PQI Pavement Quality Index
PUC California Public Utilities Commission
SOI Sphere of Influence
SPCA Society for the Prevention of Cruelty to Animals
SPWA South Placer Wastewater Authority
WPWMA Western Placer Waste Management Authority
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INTRODUCTION
Role and Responsibility of LAFCO
The fundamental role of a Local Agency Formation Commission is to implement the
statutory provisions of the Cortese-Knox-Hertzberg (CKH) Local Government Reorganization
Act of 2000 (Government Code Section 56000 et seq.). The direction of this legislation is to
provide for the logical, efficient, and orderly formation of cities, special districts, and
related service areas. In defining these policies, the opening preamble to CKH in
Government Code Section 56001 states:
The Legislature finds and declares that it is the policy of the state to encourage orderly growth
and development which are essential to the social, fiscal, and economic well-being of the state.
The Legislature recognizes that the logical formation and determination of local agency
boundaries is an important factor in promoting orderly development and in balancing that
development with sometimes competing state interests of discouraging urban sprawl, preserving
open-space and prime agricultural lands, and efficiently extending government services. The
Legislature also recognizes that providing housing for persons and families of all incomes is an
important factor in promoting orderly development. Therefore, the Legislature further finds and
declares that this policy should be effected by the logical formation and modification of the
boundaries of local agencies, with a preference granted to accommodating additional growth
within, or through the expansion of, the boundaries of those local agencies which can best
accommodate and provide necessary governmental services and housing for persons and
families of all incomes in the most efficient manner feasible.
The Legislature recognizes that urban population densities and intensive residential, commercial,
and industrial development necessitate a broad spectrum and high level of community services
and controls. The Legislature also recognizes that when areas become urbanized to the extent
that they need the full range of community services, priorities are required to be established
regarding the type and levels of services that the residents of an urban community need and
desire; that community service priorities be established by weighing the total community service
needs against the total financial resources available for securing community services; and that
those community service priorities are required to reflect local circumstances, conditions and
limited financial resources. The Legislature finds and declares that a single multipurpose
governmental agency is accountable for community service needs and financial resources and,
therefore, may be the best mechanism for establishing community service priorities especially in
urban areas. Nonetheless, the Legislature recognizes the critical role of many limited purpose
agencies, especially in rural communities.
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Municipal Service Review: SOI Update Placer County LAFCO
The CKH Act mandates that LAFCO conduct service reviews before or in conjunction with
the sphere of influence updates to assess the service capabilities of the agency. It also
requires that LAFCO review and update the sphere of influence of each city and special
district once every five years, as necessary.1 The last service review for the City of Roseville
was conducted in 2017. This MSR intends to provide Placer LAFCO with the information
needed to make mandatory determinations related to the services offered by the City of
Roseville.
Figure 1: Roseville, California Study Area
1 Government Code § 56430.
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Municipal Service Review: SOI Update Placer County LAFCO
Purpose of the Municipal Service Review
The purpose of the Municipal Service Review (MSR) in the context of the City of Roseville is
to collect and present data on a comprehensive analysis of service delivery by the City.
This presentation will review service provision within the existing City boundaries and the
potential of service needs in the areas developing around the City’s periphery. The Service
Review must include an analysis and a written statement of determination regarding each
of the following seven categories.
• Growth and population projections for the affected area: This section reviews the
projected growth within the existing city and identifies the population growth
anticipated for the surrounding areas.
• Location and characteristics of any disadvantaged unincorporated communities
within or contiguous to the sphere of influence: A disadvantaged community is
defined as a community of 12 or more registered voters with a median household
income of 80% or less of the statewide median income.
• Present and planned capacity of public facilities, adequacy of public services, and
infrastructure needs or deficiencies, including needs or deficiencies related to
sewers, municipal and industrial water, and structural fire protection in any
disadvantaged, unincorporated communities within or contiguous to the sphere of
influence: A discussion is provided regarding the quality, ability, and sustainability of
the services offered by the City.
• Financial ability of agencies to provide services: A review of the City’s fiscal data
and rate structures to ensure the viability and sustainability of the City to meet
service demands at present and for the future.
• Status of, and opportunities for, shared facilities: This section discusses City shared
facilities with other entities, such as the County, other cities, and special districts. It
will address opportunities for further sharing to avoid duplication of services and cost
efficiencies.
• Accountability for community service needs, including governmental structure and
operational efficiencies: A discussion of the City’s current governmental structure
and overall managerial practices. An element of this determination is evaluating
how well the City will make its government process transparent to its constituents
and public and whether it invites and encourages participation.
Any other matter related to effective or efficient service delivery, as required by the
commission. This section includes a discussion of any local policies of Placer LAFCO that
may impact the City of Roseville's ability to provide efficient services.
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Uses of the Municipal Service Review
The concept of a municipal service review was codified in 2000 following the
determinations made in the State study identified as “Growth Within Bounds.” This
document recognized that for a sphere of influence to fulfill its planning function and to
determine the probable physical boundary for each agency, its update required the
appropriate analytical studies to show the criteria for its designation. An MSR is used to look
at an agency's overall operations, identify agencies experiencing issues precluding them
from providing their range of services, or identify ways to give the range of services the
entity offers more efficiently. Government code Section 56375 allows a LAFCO to act
based upon the recommendations within an MSR, which may include, but are not limited
to, updating the sphere of influence or making studies of or initiating organizational
changes.
The focus of this MSR is to provide Placer LAFCO with the necessary and pertinent
information related to the City of Roseville to assess its service capabilities so that it can
determine the appropriate sphere of influence (SOI). In evaluating the potential for an
expanded sphere of influence, the MSR will provide the information necessary to assess the
ability of the City to offer its services to a larger area contemplated for urban uses. This
evaluation understands that other independent agencies provide service in the city and its
current sphere of influence, which are not a part of this review, i.e., fire protection
providers. A separate MSR and SOI Update is currently underway with Placer LAFCO. The
MSR discusses the financial condition of the city, its source of revenues, and its projected
expenses within the five-year timeframe anticipated for the following service review to be
conducted.
Purpose of the Sphere of Influence Update
A sphere of influence is defined by the Cortese-Knox-Hertzberg Local Government
Reorganization Act of 2000 (CKH) as a plan for the probable physical boundaries and
service area of an agency as defined by the local agency formation commission (LAFCO).
It is the tool the Commission uses to fulfill its statutory obligations for “planning and shaping
the logical and orderly development and coordination of local governmental agencies to
advantageously provide for the present and future needs of the county and its
communities.” The sphere of influence determination is the sole responsibility of LAFCO. It is
the Commission that must determine that the information being evaluated complies with
CKH and local policy. LAFCO is statutorily required to consider and prepare written
statements regarding the five factors outlined in CKH section 56425(e).
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1. The present and planned land uses in the area, including agricultural and open-
space lands.
2. The present and probable need for public facilities and services in the area.
3. The present capacity of public facilities and adequacy of public services the
agency provides or is authorized to provide.
4. The existence of any social or economic communities of interest in the area if the
Commission determines they are relevant to the agency.
5. For an update of a sphere of influence of a city or special district that provides
public facilities or services related to sewers, municipal and industrial water, or
structural fire protection that occurs pursuant to subdivision (g) on or after July 1,
2012, the present and probable need for those public facilities and services of any
disadvantaged unincorporated communities within the existing sphere of influence.
Each LAFCO has policies and procedures related to spheres of influence that reflect local
circumstances and conditions. Placer LAFCO has established policies and procedures that
relate to defining the sphere of influence and reflecting local conditions. Those that are
specifically relevant to this sphere of influence update are:
• The Commission has established priorities for the urbanization of lands within and
adjacent to cities.
• Growth should be evaluated in relation to remaining land within the City for
development purposes.
• Expansions of city spheres of influence shall be discouraged if sufficient land exists
within the existing city sphere of influence.
The sphere of influence for the City of Roseville was last updated in 2017 following a
municipal service review.
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MUNICIPAL SERVICE REVIEW
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Municipal Service Review: SOI Update Placer County LAFCO
EXECUTIVE SUMMARY
Growth and Population Projections
As of January 1, 2024, the Esri Demographic Data Services estimates Roseville’s population
to be approximately 160,366. Roseville has approved nearly 14,000 new home sites,
reflecting ongoing development. The City's unemployment rate stands at 3.7%, which is
below the state average. The top ten employers in Roseville collectively provide jobs to
nearly 16,000 individuals, contributing to the City's economic stability.
“With ample housing and employment opportunities, Roseville is projected to experience
steady growth. The population is expected to reach around 179,000 by 2040, indicating a
modest annual growth rate of approximately 1.5%.”2
Disadvantaged Unincorporated Communities
In 2012, SB 244 was enacted to address infrastructure deficiencies in Disadvantaged
Unincorporated Communities (DUCs), requiring cities, counties, and LAFCOs to identify and
analyze these areas. DUCs are inhabited areas with a median household income of 80% or
less of the statewide median. Around Roseville, developments like Placer Ranch and Placer
Vineyards do not qualify as DUCs due to higher incomes. Within Roseville's sphere of
influence, five unincorporated areas exist, four islands but not DUCs. Despite receiving city
services, there is little interest in annexation from Roseville. Placer LAFCO lacks policies for
DUCs and islands, and no DUCs exist within or adjacent to Roseville's sphere of influence.
The City of Rocklin surrounds the City of Roseville to the north, Granite Bay (an
unincorporated community) to the east, and the City of Citrus Heights within Sacramento
County to the south. The territory to the west of the City of Roseville boundary is
unincorporated, primarily vacant land. However, this area is currently being developed as
a solar farm as an interim land use until the Regional University Specific Plan is developed.
The area to the southwest within Placer County is unincorporated with rural/suburban
development, which is transitioning through the development of the Placer Vineyards and
Riolo Vineyards Specific Plans.
2 Sacramento News & Review and Data USA.
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Municipal Service Review: SOI Update Placer County LAFCO
Present and Planned Capacity of Public Facilities
• Water Utility: Water supply and expansion capacity are adequate to meet current
service demands, contemplated growth, and potential expanded service areas.
• Wastewater Utility: Current wastewater collection and treatment capacity are
adequate to meet current service demands, contemplated growth, and potential
expanded service areas.
• Refuse Collection: The Material Recovery Facility's (MRF) collection fleet and
capacity are adequate to meet current service demands. An expanded fleet will
be necessary for expanded service areas.
• Parks and Recreation: Current facilities, services, and recreational opportunities are
adequate to meet community needs, however, rapid growth in western Roseville
increases the demand for added programs and facilities in this area. Facilities and
programs continually evolve to meet the public's changing tastes and new interests.
• Stormwater: Current facilities and maintenance efforts are adequate to provide
stormwater relief and property protection throughout the City. However, specific
potential at-risk locations receive increased attention, especially before storm
events.
• Street Maintenance: The current fleet of vehicles and equipment is adequate to
meet Pavement Quality Index (PQI) goals. Any expansion in the City limits will require
an additional fleet and equipment.
• Public Transit: Current service levels are adequate to serve community needs.
Service levels are sometimes excessive because post-COVID-19 pandemic ridership
has not returned to pre-pandemic levels. A variety of transit services are offered to
meet the varying community needs.
• Libraries: Current services are available to residents and non-residents alike. Rapid
growth in western Roseville increases the demand for added library services in this
area. Riley Library is most impacted by this growth, seeing more annual visitors than
the other two libraries combined.
• Electric Utility: Current electrical power supply and infrastructure capacity are
adequate to meet current service demands and contemplated growth.
• Animal Control: Current service levels meet community needs.
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Municipal Service Review: SOI Update Placer County LAFCO
• Police Department: Roseville's Police Department stands as a model of proactive,
community-oriented policing. Through its comprehensive approach to law
enforcement, the department protects life and property and works diligently to
build and maintain trust within the community. By prioritizing crime prevention,
community engagement, collaborative partnerships, specialized units, and
continuous improvement, the department ensures that it remains responsive to the
needs of Roseville's residents. As it moves forward, the department remains
committed to safeguarding the community and enhancing public safety in an ever-
changing world.
▪ With a staff allocation of 223 employees, the department includes 153 full-time
sworn positions and 70 professional staff members. Additionally, the organization
has a cadre of 43 volunteers and four reserve police officers. As of July 2024,
current vacancy rates equal ten sworn positions and two professional staff
members.
▪ With 153 full-time sworn officers, the ratio is 0.95 officer(s) per 1,000 residents.
▪ The crime rate has decreased since the last MSR in 2017 from fewer than 3,000
crimes per 100,000 population to 2,225 in 2022.
▪ All arrestees that require booking and fingerprint processing are transported to
the Placer County Sheriff’s Department, as the Roseville Police Department
ceased all jail operations in 2017.
• Fire Protection: This MSR did not specifically include an evaluation of fire protection
and emergency medical response in its data analysis. This analysis is being
completed concurrently in a separate countywide Fire MSR and SOI Update.
Financial Ability to Provide Services
The City Council approved an FY 2024 Budget (all funds) of $783.9 million in expenses, offset
by $793.9 million in revenues. The City’s two largest revenue sources are Taxes and Charges
for Services. Property Tax revenues comprise nearly 9% of all revenues, while Sales Tax
accounts for just over 13%. The City operates electric, water, refuse collection, and
wastewater utilities. Charges for services associated with these utilities comprise 41% of all
revenues. Major expense categories include Personnel Costs (35% of all expenses) and
Materials, Supplies, and Services (38%). The purchase of power and water for the City’s
utilities accounts for nearly $92 million (12% of all expenses).
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Municipal Service Review: SOI Update Placer County LAFCO
Budgeted FY 2024, General Fund expenses are $229.3 million, offset by $231.7 million in
revenues. Taxes (Sales Tax and Property Tax) account for 75% of General Fund revenues.
Public Safety (Police and Fire) accounts for the most considerable General Fund expenses
(45% of General Fund expenses).
The City has identified $484.5 million in capital improvement projects (CIP) over the next
five years (FY 2024 through FY 2028). City’s Electric Utility projects account for 30% of this
total, while Public Works projects account for 34%. The City’s Enterprise Funds fund 63% of
CIP projects for this period.
The City's debt has reduced from $476.8 million in FY 2020 to $297.2 million in FY 2024.
The City has adopted fiscally prudent reserve policies, establishing targeted levels of
General Fund reserves, equating to 25% of the annual General Fund operating budget. The
City complies with this policy and currently has fully funded reserves.
Status and Opportunities for Shared Facilities
This section of the MSR intends to discuss the opportunities for the City to share facilities,
programs, or direct services with neighboring agencies or communities. Sharing services
can provide cost savings and a more efficient and sustainable service delivery pattern for
some of its services.
• Water Utility: Currently, it has 17 points of interconnection to customers outside of the
city limits. While capacity may exist to serve additional areas, expansion of service
area opportunities may be limited by use restrictions contained in water contracts.
Increased regulatory requirements must be considered when considering
expansion.
• Wastewater Utility: It is currently operating under a Joint Powers Agreement with the
South Placer Wastewater Authority. Increased regulatory requirements must be
considered when considering expansion.
• Refuse Collection: Planned expansion of MRF may create opportunities for regional
expansion and economies of scale.
• Parks and Recreation: Currently about one-third of customers are citizens from
outside of the city limits. That ratio of shared use is not expected to change anytime
soon. When and where appropriate, fee structures should reflect resident versus
non-resident rates.
• Stormwater: No opportunities for shared facilities were identified.
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• Street Maintenance: No opportunities for shared facilities were identified.
• Public Transit: Current shared facilities include an operating agreement with South
Placer Transit, commuter service to Sacramento, and non-resident use of city bus
routes. Additional shared services are to be analyzed on a case-by-case basis.
• Libraries: Current shared services include Placer County in the West Roseville
unincorporated area, the NorthNet Library System Consortium, and cross-lending
with 41 other northern California libraries. Opportunities for additional shared facilities
are abundant.
• Electric Utility: Opportunities for shared facilities are unlikely except for mutual aid in
emergency situations.
• Animal Control: Contracts for sheltering and veterinary services with the Society for
the Prevention of Cruelty to Animals (SPCA) and local veterinarian services.
• Law Enforcement: The City of Roseville actively partners with local, county, and state
law enforcement agencies to ensure the safety and well-being of its residents. This
collaborative approach includes sharing resources, information, and strategies to
address crime, public safety concerns, and emergencies. The Roseville Police
Department works alongside neighboring police departments, the Placer County
Sheriff's Office, the California Highway Patrol, and other regional agencies to
implement coordinated enforcement efforts, conduct joint investigations, and
participate in task forces targeting specific issues such as narcotics, gang activity,
and traffic safety. These partnerships help optimize response times, enhance crime
prevention measures, and ensure a unified approach to maintaining peace and
order throughout the region.
• Fire Protection: This MSR did not specifically include an evaluation of fire protection
and emergency medical response in its data analysis. This analysis is being
completed in a separate countywide Fire MSR and SOI Update. However, the City
currently provides automatic and mutual aid into the sphere of influence territory
and the unincorporated areas to the west and southwest due to the proximity of its
stations.
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Government Structure and Accountability
The City operates as a Council-Manager form of government. It is governed by a City
Council of five members, elected by district to four-year terms. The Mayor and Vice Mayor
positions are served on a rotational basis by Council District number. The City Council
appoints the City Manager and City Attorney. The City Manager serves as the Chief
Executive Officer of the City, overseeing 14 operational departments. The City is a full-
service city that provides its citizens with various services.
Accountability is maintained through intentionally maintained transparency, including
open public access to City Council meetings and online availability of budgetary and
financial reports. It is also maintained by publishing business metrics, workload indicators,
and best management practices.
Other Matters Related to Effective Service Delivery
Adequate financial allocations and reserves must be maintained to preserve service levels
and protect against economic downturn impacts.
Sphere of Influence Recommendations
The MSR has shown that the City continues to be well-run and transparent in its operations.
The City’s efforts in developing a strategic plan have provided a blueprint for operating the
City in a sustainable, efficient working environment.
The existing sphere of influence of the City contains developed areas, some of which
receive their water service from the City. City staff has indicated that due to the
developed nature of the area, there is little opportunity or interest in pursuing annexation.
However, this position would be countered with the knowledge that the City currently
provides the area water service, it is typically the first responder for fire protection and
emergency medical response to the area, and the residents already benefit from the
library, parks, and transit service of the City without the City receiving the benefit of
property tax revenues.
This MSR suggests that the City of Roseville's sphere of influence should be expanded to
include the unincorporated areas to the west and southwest. To the west to allow the City
to plan the service needs of the region through annexation; to the southwest to enable the
City and service providers to address the sustainability of service delivery through the
potential for functional consolidation and contracts for service.
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Section I:
CURRENT CONDITIONS
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CITY OF ROSEVILLE PROFILE
Introduction
Nestled in the heart of Placer County, California, the City of Roseville is a testament to
resilience, growth, and community spirit. With a population projected to reach 160,366 by
January 1, 2024, and encompassing 42.26 square miles, Roseville is not only the largest city
in Placer County but also a vital part of the Sacramento Metropolitan Area in Northern
California. Its evolution from a railroad junction in the 1860s to a thriving urban hub is a story
of strategic development, economic vibrancy, and exemplary governance.
Early History and Incorporation
The roots of Roseville trace back to its establishment as a crucial railroad junction during
the westward expansion era of the late 19th century. Initially serving as a vital link for
transportation and trade, the burgeoning settlement around the junction soon attracted
settlers and businesses. This influx of population and economic activity laid the foundation
for Roseville's official incorporation as a city in 1909, marking a pivotal moment in its history.
The City's early growth was closely tied to the expansion of the railroad industry, which not
only facilitated the movement of goods and people but also spurred residential and
commercial development in the region.
Infrastructure and Transportation Network
Its robust infrastructure and strategic transportation network are central to Roseville's
development. The City is intersected by two major highways: Interstate 80, a key east-west
route connecting the San Francisco Bay Area with the Sierra Nevada mountains, and State
Route 65, which provides north-south access. These highways facilitate regional
connectivity and serve as catalysts for economic development, attracting businesses and
supporting the City's vibrant retail and commercial sectors.
In addition to highways, Roseville benefits from a well-maintained network of local streets
and roads managed by the City's Public Works Department. This department plays a
critical role in ensuring the functionality and safety of Roseville's infrastructure,
encompassing everything from road maintenance, traffic management, and new road
and City facility construction to facility maintenance, fleet maintenance, and public transit
services. The City's commitment to infrastructure investment underscores its dedication to
supporting economic growth, enhancing quality of life, and fostering sustainable
development for current and future generations.
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Economic Diversity and Major Employers
Roseville's economic landscape is characterized by its diverse industries, robust commercial
sectors, and prominent employers. At the forefront of its economic vitality are major retail
centers such as the Westfield Galleria at Roseville and the Fountains at Roseville, which
offer extensive shopping, dining, and entertainment options for residents and visitors alike.
These retail destinations contribute to the City's sales tax revenue and serve as community
gathering places and cultural landmarks within the region.
In addition to retail, Roseville hosts a significant corporate presence with major employers
spanning the healthcare, technology, education, and public administration sectors. Kaiser
Permanente, Hewlett Packard Enterprise, Sutter Roseville Medical Center, and Union
Pacific Railroad are among the largest employers in the City, providing thousands of jobs
and driving economic growth. Furthermore, the presence of educational institutions such
as the Roseville Joint Union High School District and the Roseville City School District
underscores Roseville's commitment to education and community development, ensuring
a skilled workforce and fostering lifelong learning opportunities.
Governance and City Administration
Roseville operates under a Council-Manager form of government, a model designed to
promote efficiency, accountability, and community engagement in municipal affairs. The
City Council, composed of five members elected by district to staggered four-year terms,
serves as the legislative body responsible for establishing policies, adopting budgets, and
overseeing city operations. The positions of Mayor and Vice Mayor rotate annually among
council members, ensuring equitable representation and leadership across the City.
Central to the Council-Manager system is the role of the City Manager, appointed by the
City Council to serve as the chief executive officer responsible for implementing council
policies and managing the day-to-day operations of the City. The City Manager oversees
14 operational departments, each tasked with delivering essential services and programs
that contribute to the well-being and prosperity of Roseville residents. These departments
encompass many functions, including public safety, utilities management, parks and
recreation, library services, and community development, reflecting the City's commitment
to providing comprehensive and responsive governance.
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Municipal Services and Departments
As a full-service city, Roseville prides itself on its ability to deliver a comprehensive range of
municipal services that enhance quality of life, promote sustainability, and support
economic vitality. The City's operational departments play a critical role in fulfilling this
mission, providing essential services across multiple sectors and ensuring the efficient
management of public resources.
Electric Utility Department: The Electric Utility Department (Roseville Electric Utility) manages
the City’s electricity supply, delivery, operations, and maintenance, including transmission,
distribution, generation, renewable energy, and streetlights. The department also houses
the City’s billing, credit, and collections for all city services. The Electric Utility partners with
the Environmental Utilities to educate and benefit the public through the Utilities Exploration
Center. Roseville Electric develops programs for businesses and residents to help them
manage costs during California’s rapid path toward decarbonization.
Environmental Utilities Department: The Environmental Utilities Department manages the
City's water supply, treatment, and distribution systems, ensuring reliable access to safe
and clean drinking water for residents and businesses. Additionally, the department
oversees wastewater collection, treatment, and discharge processes, promoting
environmental stewardship and compliance with regulatory standards. Through innovative
programs in solid waste management, recycling, green waste collection, and food
organics processing, the department advances sustainable practices and fosters
community-wide participation in environmental conservation efforts.
Public Works Department: The Public Works Department serves as the backbone of
Roseville's infrastructure network, maintaining and enhancing streets, and public facilities
essential to community mobility and safety. From road maintenance and traffic
engineering to stormwater management and public transit services, the department plays
a vital role in supporting economic development, improving transportation efficiency, and
preserving environmental quality. Its proactive approach to infrastructure planning and
maintenance ensures resilience against natural hazards and enhances the overall livability
of Roseville for residents and businesses alike.
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Parks, Recreation, and Libraries Department: The Parks, Recreation, and Libraries
Department enriches the quality of life in Roseville by providing diverse recreational
opportunities, preserving natural spaces, and promoting cultural enrichment through library
services. The department oversees developing and maintaining parks, community centers,
and recreational facilities catering to residents of all ages and interests. Through innovative
programming in sports leagues, fitness classes, arts and culture events, and educational
workshops, the department fosters community engagement, promotes healthy lifestyles,
and strengthens social bonds across Roseville.
Police Department: The Roseville Police Department is responsible for providing
comprehensive law enforcement services to the community of Roseville. Its core functions
include:
• Crime Prevention and Community Engagement: The department works to prevent
crime through community outreach, education, and partnerships. Programs such as
Neighborhood Watch and school resource officers help foster a strong relationship
between law enforcement and the community, encouraging public involvement in
safety initiatives.
• Patrol Operations: Uniformed police officers conduct routine patrols throughout the
City, responding to calls for service, enforcing laws, and maintaining a visible
presence to deter criminal activity. Patrol officers are often the first responders to
emergencies, accidents, and incidents requiring law enforcement intervention.
• Investigations: The division has specialized units, such as Investigations and the
Crime Suppression Unit, responsible for investigating crimes ranging from drug
offenses, property offenses, and serious violent crimes. These units work to solve
cases, gather evidence, and support prosecutions.
• Traffic Enforcement and Safety: The department focuses on traffic safety by
enforcing traffic laws, conducting DUI checkpoints, and promoting safe driving
practices. Officers also investigate traffic accidents and provide education on
pedestrian and cyclist safety.
• Special Operations Units: The Roseville Police Department includes various
specialized units such as Special Weapons and Tactics (SWAT), Unmanned Aerial
Systems, and Critical Incident Negotiations to handle specific situations that require
advanced skills and equipment. These units are trained to manage high-risk
incidents, including hostage situations, search and rescue operations, and other
critical events.
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• Emergency Management and Response: The department is crucial in emergency
preparedness and response, coordinating with local, state, and federal agencies to
manage and mitigate disasters and significant incidents. This includes planning for
natural disasters, public health emergencies, and other large-scale crises.
• Public Safety Communications: The department operates a communications center
that handles 911 emergency calls and dispatches police, fire, and medical services.
The center is critical in ensuring timely emergency responses and coordinating
efforts across multiple agencies.
• Support Services: In addition to frontline law enforcement, the Roseville Police
Department offers various support services, including victim assistance, crime
analysis, and records management. These services support the department's
operations and provide resources to the public.
Fire Department: The City of Roseville Fire Department’s mission is to protect and enhance
the safety and well-being of residents, businesses, customers, and partners. Roseville Fire
responds to medical incidents, fires, hazardous material incidents, rescue situations, and
natural disasters. Every Roseville Fire Department Firefighter is certified as a Paramedic or
Emergency Medical Technician, and with at least one Paramedic on every response unit.
The Department received an ISO Public Protection Classification rating of 2 in January of
2021.
This MSR did not specifically include an evaluation of fire protection and emergency
medical response in its analysis. This analysis is being completed in a separate countywide
Fire MSR and SOI Update.
The City of Roseville, California, epitomizes the synergy of history, development,
governance, and community service that defines a thriving city. From its humble
beginnings as a railroad junction to its current stature as a dynamic urban center, Roseville
has navigated through decades of growth with foresight, innovation, and a steadfast
commitment to community well-being. By leveraging its strategic advantages, fostering
economic diversity, and embracing sustainable practices, Roseville continues to evolve as
a model city where residents enjoy a high quality of life, businesses thrive, and opportunities
abound. As the City looks toward the future, its dedication to innovation, inclusivity, and
environmental stewardship ensures that Roseville remains a vibrant and resilient community
for generations.
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GROWTH AND POPULATION PROJECTIONS
The 2024 estimated population of 160,366 for Roseville represents an increase of over 1,825
new residents from the previous year. From 2015 to 2024, Roseville experienced an average
annual growth rate of 2.2%, down from the 2017 estimate of 4.9%. Figure 2 shows the
historical yearly population growth in the City of Roseville from 2015 to 2024.
Figure 2: Historical Population Growth
Year Residents
2015 131,433
2016 134,767
2017 137,753
2018 141,216
2019 144,955
2020 149,218
2021 151,230
2022 155,168
2023 158,541
2024 160,366
The median age of the Roseville population is 40.7 years, and the median household
income is $115,725 per year. Income levels in all income brackets keep pace with
Sacramento County, the State of California, and the national U.S. average while slightly
outpacing the rest of Placer County. Roseville is not, however, without its at-risk
populations, though these numbers are not alarmingly high. Just over 8% of Roseville
residents live with disabilities, which is well below the national average of 13%. Additionally,
18.5% are aged 65 and over, which aligns with the national average of 18%. The under-18
demographic is 22.8% of the total population, just over the national average of about 20%.
However, 7% of Roseville’s households do live below the poverty level, which constitutes
about 3,900 of just over 60,000 total households.
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Population growth often depends on jobs and available housing, though with the post-
Covid shift to more remote employment options, this correlation is not as tight as it once
was. The 2024 estimate is that Roseville has 77,942 employed people but only 6,906 local
businesses, down from the 2017 estimate of 10,772 companies. Placer County’s
unemployment rate is 3.4% below the national average of 4.1%, while Roseville’s
unemployment rate is slightly higher than the national average at 4.9%. This is, however, a
complete percentage point lower than the unemployment rate for California, which is
5.9%.
Roseville’s workforce has attained a higher level of education than the national average.
A far lower number, 2.1%, have failed to achieve at least a high school diploma than the
national average of 8.9%. Additionally, 32.7% of Roseville residents have attained a
bachelor’s degree, well above the national average of 23.5%. Roseville is also above the
national average for graduate degrees, with an average of 14.8% compared to the
national average of 14.4%. Roseville has a workforce that is ready for jobs in the tech sector
and other professional verticals that require advanced degrees and technical
sophistication. The Roseville workforce is well prepared for the trade industries with high
attainment of high school diplomas and associate degrees. Roseville currently has a
workforce of 73.2% white collar, 11.4% blue collar, and 15.4% service-related.
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DISADVANTAGED UNINCORPORATED COMMUNITIES
In 2012, SB 244 (Wolk) provisions related to Disadvantaged Unincorporated Communities
(DUCs) went into effect. The legislation intended to address infrastructure deficiencies
within defined communities of lower socio-economic standing. Within the bill, it established
new requirements for land authorities, cities, and counties to address islands, legacy, and
fringe communities, to define their location, and to analyze seven specific services to
ensure they were adequate for the area. For LAFCOs, the bill added requirements for the
analysis and an exact determination made during a municipal service review to include
the location and characteristics of any disadvantaged unincorporated community.
The bill's language defined the term “disadvantaged unincorporated community” as an
inhabited area (defined by LAFCO law in GC Section 56046) or as may be determined by
LAFCO policy that meets the criteria specified by Water Code Section 79505.5. The water
code section clarifies the definition of a DUC, stating that it consists of at least ten dwelling
units in a fringe, island, or legacy community in which the median household income is 80%
or less of the statewide median income. Government Code Section 65302.10 provides
definitions of each of the community types reading:
(2) "Unincorporated fringe community" means any inhabited and unincorporated territory
that is within a city's sphere of influence.
(3) "Unincorporated island community" means any inhabited and unincorporated territory
that is surrounded or substantially surrounded by one or more cities or by one or more cities
and a county boundary or the Pacific Ocean.
(4) "Unincorporated legacy community" means a geographically isolated community that
is inhabited and has existed for at least 50 years.
Several communities are developing around the periphery of the City of Roseville, such as
Placer Ranch, Placer Vineyards, etc. These combined specific plan areas anticipate a
cumulative population of 53,593. But all these areas are outside the City of Roseville's
sphere of influence. Given the composition of the census tracts in the general area, it is
anticipated that these developments will be composed of households having the same
median income, which exceeds the threshold for a DUC classification.
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Within the existing sphere of influence for Roseville are five separate unincorporated areas.
Of these five spheres of influence areas, four would meet the criteria of an island as
outlined above. However, none meet the requirements of a disadvantaged
unincorporated community based on their median incomes. A review of the status of the
island areas with representatives of the City identified little interest in annexation on the
City’s part. This is even with the understanding that most are currently receiving services
from the City without the benefit of an out-of-agency service agreement. In addition, three
of the four island areas would qualify for using the special island annexation provisions
within CKH as they are less than 150 acres in size. The Placer LAFCO does not currently have
policies related to DUCs or island areas to address these areas of concern.
Determination
No disadvantaged unincorporated communities are in the Roseville sphere of influence or
adjacent to it.
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PRESENT AND PLANNED CAPACITY OF PUBLIC FACILITIES
The City of Roseville is a full-service city providing the full complement of essential services
needed by an urbanized community. The City offers its residents the services of water,
wastewater, solid waste, law enforcement, fire, street maintenance, stormwater collection,
public transit, parks and recreation, libraries, and an electric utility. The services are
complemented by special districts that overlay the City area as well as its sphere of
influence and surrounding unincorporated territory.
Water
The Water Utility is a division of the Environmental Utilities Department. The Water Utility is
staffed by 73 full-time equivalent positions, although as of May 2024, there were eight
vacancies. The staff provides comprehensive water management services of supply
production, treatment, distribution, delivery, and fire suppression.
Figure 3: Roseville Environmental Utilities Department—Water Utility Organization Chart
Environmental
Utilities
Department
Environmental
Utilities
Administration
Communications
Wastewater Government
and Public Waste Services Water Utility Utility Services
Utility Relations
Outreach
Responsibilities include:
• Operating and maintaining the Barton Road Treatment Plant, which treated a max
of 51 million gallons per day last year, with a 100 million gallons per day maximum
design capacity.
• Operating and maintaining six aquifer storage & recovery (ASR) wells and one
production well.
• Operating and maintaining eight treated water storage tanks with a combined
storage capacity of 44 million gallons.
• Maintaining 700 miles of water main pipes.
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• Providing water delivery to 50,420 customer water meters.
• Maintaining 5,600 fire hydrants.
• Conducting cross-connection and backflow testing to ensure water quality.
• Administering water efficiency and rebate programs.
• Maintaining 5 water booster pump stations.
• Maintaining a 10-year capital improvement plan, updated annually.
The City of Roseville has a Central Valley Project (CVP) contract with the Bureau of
Reclamation for 32,000 acre-feet of Class I water delivered through the Folsom Reservoir
intake. This CVP contract was signed for 40 years in 2020, with no known restrictions to
extend beyond that period. The City also shares a Joint Powers Authority agreement with
the Placer County Water Agency for 34,000 acre-feet per year with a 10,000 acre-feet per
year option.
The Water Utility provides a nominal level of water service to certain areas outside of the
City limits. There are 17 interconnection points to outside areas. As of May 2024, staff were
finalizing their efforts to complete documentation of those cooperative services.
Recruiting and developing an adequate number of qualified and certificated treatment
plant operators and distribution technicians is one of the more significant challenges facing
the City of Roseville and other water agencies well into the future. Water Utility leadership is
purposeful in their staff development and succession planning.
Wastewater
The Wastewater Utility is a division of the Environmental Utilities Department. The
Wastewater Utility is staffed by 110 full-time equivalent positions, although as of May 2024,
there were nine vacancies. The staff provides comprehensive wastewater management
services of collection, treatment, and discharge.
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Figure 4: Roseville Environmental Utilities Department—Wastewater Organization Chart
Environmental
Utilities
Department
Environmental
Utilities
Administration
Communications
Wastewater Government
and Public Waste Services Water Utility Utility Services
Utility Relations
Outreach
Responsibilities include:
• Operating and maintaining a sewer collection system with infrastructure that
includes 855 miles of sewer mains, 12,500 sewer manholes, and 20 lift stations.
• Operating and maintaining a wastewater treatment process, with infrastructure that
includes two wastewater treatment facilities treating 6.33 billion gallons of tertiary-
level treated wastewater per year.
• Operating and maintaining two recycled water pump stations, serving 1.26 billion
gallons of recycled water to large green space areas, including parks, golf courses,
school grounds, and utility corridors.
• Administration of customer cooperation and education programs, including
industrial pre-treatment and FOG (fats, oils, grease).
• Obtaining and complying with the National Pollutant Discharge Elimination System
(NPDES) and other relevant permitting at the federal, state, and regional levels.
• Maintaining a 10-year capital improvement plan, updated annually.
The Wastewater Utility shares sewer collection mains with many existing partners, operating
under a Joint Powers Agreement with the South Placer Wastewater Authority. Collection
and treatment capacity is adequate to meet the City’s growth-driven needs in the next
several years and help other underserved county areas. Recruiting and developing a
proper number of qualified and certificated plant operators is one of the more significant
challenges facing the City of Roseville and other wastewater treatment agencies well into
the future. Wastewater Utility leadership is purposeful in their staff development and
succession planning.
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Solid Waste
The Refuse Division of the Environmental Utilities Department provides collection services,
processing, and delivery of various waste streams within the City. The division is staffed by
73 full-time employees, although as of May 2024, there were nine vacancies. The division
collects 145,000 tons of refuse annually.
Figure 5: Roseville Environmental Utilities Department—Water Services Organization Chart
Environmental
Utilities
Department
Environmental
Utilities
Administration
Communications
Wastewater Government
and Public Waste Services Water Utility Utility Services
Utility Relations
Outreach
Responsibilities include:
• Servicing 52,000 households and 1,500 commercial accounts for the collection of
garbage and green waste.
• Operating a large Material Recovery Facility (MRF), which separates and sorts
recyclable materials from trash.
• Franchising with private entities to provide neighborhood clean-up programs and
large dumpster rentals.
• Operating notable routes for collection of household hazardous wastes and fats-oils-
greases.
• Operating an organic recycling program.
• Operating a cardboard drop-off program.
• Funds street sweeping program performed by Street Maintenance.
For California Redemption Value (CRV) items, citizens are directed to any one of several
privately operated CRV centers in and around the City. The division plans a $120 million
upgrade of the current MRF, which may create some processing capacity for areas
outside the City limits.
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Law Enforcement
The Police Department is a comprehensive, full-service organization dedicated to ensuring
public safety and maintaining order within the community. With a staff allocation of 223
employees, the department includes 153 full-time sworn positions and 70 professional staff
members. Additionally, the organization has a cadre of 43 volunteers and four reserve
police officers. As of July 2024, current vacancy rates equal ten sworn positions and two
professional staff members.
Figure 6: Roseville Police Department Organizational/Hierarchical Matrix
Organizational Structure and Divisions
The Police Department is structured into four vital divisions, each responsible for specific law
enforcement and public service aspects.
Professional Services Division
The Professional Services Division has six different units, encompassing:
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• Communications: Handles emergency calls and responses, dispatch services, 911
related records management, 911 related public information dissemination,
technology implementations & maintenance, critical information retrieval and entry
into various public safety systems and mass public notification systems, staff training,
inter-agency coordination, and crisis management to ensure efficient and effective
communication and response to incidents.
• Agency CLETS Coordination: The ACC has direct management and oversight
over the agency’s access and use of the California Law Enforcement
Telecommunications Systems (CLETS), administering required training to personnel
and ensuring compliance with state regulations for use of all law enforcement
telecommunications systems, and for the on-site physical security and confidentiality
of Confidential Justice Information (CJI), to include the exchange and tracking of
CJI. All DOJ CLETS Audits are handled by the ACC.
• Records: The Records Unit processes and distributes police reports, citations, and
other law enforcement records to a variety of law enforcement agencies, courts,
and other legal entities, and receives and responds to questions and requests for
police records from the public and outside agencies by phone, email, or in person
at the front counter. The unit ensures crime reports are classified according to
established federal crime index guidelines, accurately indexes case information,
and ensures compliance with all legal requirements related to police records
management and the laws governing the release of law enforcement information.
• Property: The Property unit performs technical and administrative tasks associated
with receiving, tracking, categorizing, storing, controlling, and disposing of police
evidence and property. The unit’s primary responsibility is to protect the integrity of
evidence throughout the judicial process and to ensure compliance with all state
and local laws regarding the collection, storage, and disposition of property and
evidence
• Crime Scene Investigations: The CSI unit documents crime and fatal traffic
accidents scenes through photographs and 3D scans, processes for physical and
trace evidence, including fingerprints and DNA, at scenes or in the onsite
laboratory, and collaborates with the Investigations unit and the District Attorney’s
Office to provide crucial evidence for criminal investigations and court proceedings.
The unit also coordinates forwarding evidence on to other forensic experts at major
crime laboratories for more in-depth processing.
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• Technology Projects: Manages, plans for, budgets, and implements various
technological initiatives and projects aimed at enhancing operational efficiency,
improving communication systems, upgrading IT infrastructure, implementing new
software for crime data analysis, developing digital forensic capabilities, and
ensuring compliance with technological advancements in law enforcement
practices. They may also oversee the integration of emerging technologies such as
surveillance systems, body cameras, and data analytics tools to support
investigative efforts and overall departmental operations.
Community Services Division
The Community Services Division supports the Department’s Community Policing and Crime
Reduction strategies. They are liaisons between the Police Department and the
community, utilizing various forms of outreach to engage and educate community
members, empowering them with the knowledge and tools to avoid being a victim of
crime and to proactively deter crime in their neighborhoods:
• Budget: The Police Department's Budget division manages financial resources,
allocates funding for equipment, training, and personnel, and ensures fiscal
responsibility and transparency in economic matters. The FY 2024 approved budget
for the Police Department totals $59.5 million from all funding sources and supports
223 full-time equivalent (FTE) positions (153 sworn and 70 professional).
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Figure 7: Roseville Police Department Budget Snapshot
2023 2023 2024
Police Department Adopted Amended
Adopted Budget
Budget Budget
Divisions
Administration 8.0 8.0 8.8
Records/Property 3.2 3.2 3.6
Communications 4.2 4.2 4.6
Social Services 2.3 2.4 1.9
Patrol 24.8 25.8 29.0
Investigations 6.0 6.0 5.3
Traffic 2.1 2.1 2.0
Animal Control 1.6 1.6 1.7
Vehicles 2.6 2.6 2.6
Total Expenditures $ 54.8 $ 55.9 $ 59.5
Major Expenditure Category
Salaries and Wages 24.9 25.1 27.2
Benefits 16.9 17 17.4
Materials, Services and Supplies 12.9 13.9 15.2
Internal Reimbursements — (0.2) (0.5)
Capital Outlay 0.1 0.1 0.2
Total Expenditures $ 54.8 $ 55.9 $ 59.5
Funding Summary
General Fund 54.60 55.50 58.81
Supplemental Law Enforcement 0.06 0.13 0.36
Forfeited Property 0.05 0.05 0.05
Federal Asset Seizure 0.05 0.05 0.05
Traffic Safety — 0.13 0.10
Police Evidence 0.02 0.02 0.02
Equipment Replacement — — 0.10
Total Expenditures $ 54.8 $ 55.9 $ 59.5
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• Professional Standards:
▪ Internal Affairs: Investigates allegations of misconduct or violations of
department policies by officers to maintain integrity and accountability within
the department.
▪ Training: Develops and coordinates ongoing training programs to ensure officers
have the necessary skills and knowledge to perform their duties effectively and
safely.
▪ Recruiting and Background Investigations: Recruits new officers through rigorous
screening processes, including background checks, to ensure qualified
candidates who uphold departmental standards are selected.
• Community Services:
▪ Traffic Unit: This unit enforces traffic laws, investigates traffic accidents, and
educates the public on safe driving practices to promote traffic safety within the
community.
▪ Social Services Unit: Provides assistance and support to community members in
need, including victims of crime, unhoused individuals, and those facing
behavioral health crises.
▪ School Resource Officers: Build positive relationships between law enforcement
and schools, ensure safety on school campuses, and provide guidance and
education to students on legal issues and crime prevention.
▪ Animal Control Officers: This Animal Control Unit is responsible for various duties
related to the safety and welfare of animals and the community. Their
responsibilities typically include
Responding to Animal-Related Calls: Animal Control Officers respond to calls
regarding stray, lost, or injured animals and situations where animals may
threaten public safety.
Enforcing Animal-Related Laws: They enforce local and state animal control
laws, including leash laws, licensing requirements, and regulations on the
number of pets allowed per household.
Investigating Animal Cruelty and Neglect: Officers investigate reports of
animal cruelty, neglect, or abuse. They work to ensure the proper treatment
of animals and may remove animals from unsafe conditions.
Rescuing and Relocating Animals: They are involved in the rescue and
relocation of animals that are in distress, such as those trapped in hazardous
situations or dangerous animals that pose a risk to public safety.
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Impounding Animals: Officers may impound stray, abandoned, or
surrendered animals. They often work with animal shelters to care for these
animals until they can be reclaimed by their owners or adopted.
Educating the Public: Animal Control Officers educate the public on
responsible pet ownership, animal care, and local animal control laws. They
may also provide information on how to deal with wildlife encounters.
Handling Wildlife: Besides domestic animals, officers may handle issues
related to wildlife, such as responding to sightings of potentially dangerous
wild animals and providing guidance on how to coexist with local wildlife.
Administering Animal Control Programs: They may oversee programs such as
pet adoption events, spay/neuter clinics, and public awareness campaigns
related to animal control issues.
Collaborating with Other Agencies: Animal Control Officers often work with
local law enforcement, public health officials, and animal welfare
organizations to address animal-related issues and coordinate responses.
• Public Affairs & Government Relations:
▪ Public Information Officer: Acts as a liaison between the police department and
the media, disseminating information about department activities, incidents, and
public safety initiatives to the public.
▪ Public Safety Programs & Volunteers: Coordinates community outreach
programs and engages volunteers to assist with public safety initiatives, fostering
collaboration between the department and community stakeholders to
enhance public safety.
Investigative Services Division
This division is distinguished into two units, the Investigations Unit, and Special Investigations
teams:
Investigations Unit: The investigations unit conducts follow-up on crimes with potential
suspects or leads that are too complex or time-consuming for the initially assigned patrol
officer to complete promptly. Investigators also handle cases that require special training,
equipment, or other resources. Also housed within the investigation unit are the crime
suppression unit, threat assessment, the crime analysis unit, registrant and permit
processing, and the real-time crime center.
The investigators, who are also called detectives, specialize in the following areas:
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• Persons Crimes: Homicide, robbery, sexual assault and other sex crimes, child abuse,
and missing person cases.
• Property Crimes: Includes Fraud, forgery, identity theft, financial crimes, burglary,
theft, and motor vehicle theft.
• Hi-Tech Crimes: Investigation of computer crimes, cellular phone extraction, internet
crimes against children, and other cases that require specialized training and
expertise.
• Crime Analysis Unit: The Crime Analysis Unit analyzes crime data to identify patterns,
trends, and hotspots, providing intelligence to investigators and patrol officers to aid
in crime prevention and resource deployment.
• Real-Time Crime Center: The Real-Time Crime Center leverages available
technology to assist field response to active incidents faster, more efficiently, and
safer.
• Offender Registration Community Services Officer: The Offender Registration CSO
manages the registration of offenders and ensures compliance with legal
requirements.
• Permit Coordinator Community Services Officer: The Permit Coordinator CSO
oversees the issuance of permits for business such as firearms dealers, pawn brokers,
and massage establishments.
Special Investigations
• Crime Suppression Unit: Assists Patrol, Investigations, and other regional teams,
conduct gang enforcement, monitor known offenders, narcotics enforcement,
human trafficking, and massage issues.
• Threat Assessment: The Threat Assessment Unit evaluates potential threats to public
safety or individuals, conducts assessments of individuals exhibiting concerning
behavior or making threats, collaborates with law enforcement agencies and
behavioral health professionals, and develops strategies to mitigate risks and ensure
proactive responses to potential threats.
• Placer County Regional Auto Theft Taskforce (RATTF): The RATTF was created to
investigate crimes, apprehend suspects, and reduce vehicle theft and related
crimes within Placer County through aggressive, innovative, and proactive
enforcement measures. The Task Force consists of one California Highway Patrol
(CHP) Sergeant, one CHP Officer, one Placer County Deputy Sheriff, and one Police
Officer from Roseville and Rocklin.
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• Regional Special Investigations Unit (SIU): SUI’s mission is to significantly diminish the
availability and use of illegal drugs in Placer County and apprehend the responsible
offenders, as well as assist the supervision and monitoring of PRCS (Post Release
Community Supervision) and high-risk offender population, thereby increasing public
safety.
Operations Division
This division is distinguished into the Patrol Shifts and Special Operations Units.
Patrol Shifts
The Roseville Police Department's Patrol Division serves as the primary point of contact for
the community, providing 24/7 coverage. Uniformed Patrol Officers, Community Service
Officers, Cadets, and Animal Control Officers respond to various incidents, from
emergencies to routine calls, animal complaints, and traffic accidents.
Patrol Officers are responsible for specific areas within the City's seven designated patrol
beats. When not actively responding to calls, they focus on identifying and addressing
crime patterns within their assigned neighborhoods. This proactive approach often involves
attending neighborhood association meetings to build relationships with residents,
encouraging a collaborative effort in addressing community concerns.
The division operates on a rotating schedule. Officers work in shifts that alternate between
four eleven-hour shifts followed by three days off and three eleven-hour shifts followed by
four days off. This schedule ensures continuous coverage across various periods, including
Day, Relief, Swing, and Night Shifts.
Officers begin each shift with a designated workout session to maintain physical fitness.
Afterward, they participate in a briefing conducted by the shift change Sergeant,
receiving updates on ongoing situations and recent events. This preparation ensures they
are well-informed and ready to patrol their designated areas.
Community Services Officers
Community Service Officers (CSOs) are professional staff members of a police department
who support sworn officers and assist with various non-emergency public safety duties.
Their responsibilities can vary depending on the specific needs of the community and the
policies of the police department, but typical duties include:
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• Public Assistance: CSOs provide public assistance, such as giving directions,
providing information, and answering general inquiries. They often act as a liaison
between the community and the police department.
• Traffic Control: They help with traffic control during events, accidents, or other
situations where directing traffic is necessary to ensure safety and smooth flow. This
includes setting up and managing road closures and detours.
• Non-Emergency Incident Response: CSOs respond to non-emergency calls for
service, such as taking reports of minor crimes (e.g., thefts, vandalism), documenting
accidents without injuries, and handling noise complaints.
• Parking Enforcement: They enforce parking regulations, issue citations for parking
violations, and manage situations involving abandoned vehicles.
• Crime Prevention: CSOs may participate in community outreach and crime
prevention programs. This includes conducting neighborhood watch meetings,
safety presentations, and distributing crime prevention materials.
• Report Writing and Documentation: They assist with writing reports for incidents they
handle, documenting details accurately and thoroughly. This helps relieve sworn
officers to focus on more severe or complex cases.
• Evidence Collection: In some cases, CSOs are trained to collect evidence at crime
scenes, particularly in minor incidents. This can include gathering witness statements,
taking photographs, and collecting physical evidence.
• Support for Special Events: CSOs assist with public safety at special events, parades,
and festivals, ensuring a visible police presence and supporting the public and
event organizers.
• Vehicle Assistance: They may provide essential vehicle assistance, such as jump-
starting vehicles, unlocking car doors, or calling for a tow truck when necessary.
• Administrative Tasks: CSOs often handle various administrative tasks, including data
entry, maintaining records, and managing lost and found property.
• Community Engagement: They engage with the community to build positive public
and law enforcement relationships, often participating in community events and
outreach programs.
Community Service Officers play a crucial role in enhancing the efficiency of police
departments by handling tasks that do not require the response of a sworn officer. This
allows sworn officers to focus on higher-priority calls for service and emergency situations.
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Cadets
Police cadets are college-aged adults receiving training and experience in law
enforcement while working part-time for the Roseville police department. Police Cadets
are required to be enrolled in college classes while participating in the program. The roles
and responsibilities of Police Cadets are similar to the job description of a Community
Service Officer.
Special Operations Units
The Special Operations Unit comprises six specialized teams trained to handle high-stakes
incidents in the City and the broader region. These teams include:
• Special Weapons and Tactics Team (SWAT): This team is equipped and trained to
handle situations requiring tactical expertise, such as hostage rescues, armed
standoffs, and high-risk warrant service.
• Explosive Ordnance Disposal Unit (EOD): EOD specialists are responsible for safely
assessing and neutralizing explosive threats, including suspicious packages,
improvised explosive devices (IEDs), and other hazardous materials.
• Critical Incident Negotiations: This team consists of trained negotiators who
peacefully resolve situations involving hostages, barricaded individuals, or persons in
crisis, aiming to de-escalate tensions and prevent violence.
• Rapid Containment Team (RCT): The RCT is skilled in quickly establishing containment
perimeters around active incidents, such as active shooter situations or barricaded
subjects, to prevent escalation and protect public safety.
• Tactical Dispatchers: Tactical dispatchers are specialized communicators who
support law enforcement and emergency response teams during high-risk and
complex operations.
• Unmanned Aerial Systems: The Unmanned Aerial Systems (UAS) Team, also known as
the drone team, is a specialized unit responsible for deploying and operating drones
to support various missions. Their work often involves coordinating with other public
safety units and providing real-time data to incident commanders, enhancing
public safety missions' overall effectiveness and safety. UAS teams must adhere to
strict regulations and guidelines, including Federal Aviation Administration (FAA)
rules, ensuring safe and legal drone operations.
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Patrol Activities
Between FY 2018 and FY 2023, the patrol units responded to 366,817 calls for service (CFS).
For FY 2023, CFS equaled 67,338—resulting in 3,438 arrests and misdemeanor citations. The
department estimates that the number of calls for service will remain nearly the same for FY
2024. The crime rate has been reduced from the last service review to less than 2,225 per
100,000 population.
Figure 8: Police Department Operations Activities (Fiscal Year Ending June 30)
Activity FY 2018 FY 2019 FY 2020 FY 2021 FY 2022 FY 2023
Calls for Service 77,656 76,260 81,395 71,698 70,126 67,338
Animal Control Calls 5,066 6,280 4,577 5,536 4,775 4,583
Arrests and Misdemeanor Citations 4,267 5,349 4,429 3,999 6,000 3,438
Investigation Cases 425 630 725 728 677 599
Injury and Fatal Traffic Accidents 562 607 575 525 519 565
DUI 775 772 688 668 638 682
Dog Licenses Issued 4,199 4,006 4,101 7,632 7160 6,400
Figure 9: Annual Crime Statistics
Year FY 2018 FY 2019 FY 2020 FY 2021 FY 2022 FY 2023
Violent Crimes 296 260 277 255 265 NIBRS = 400
Property Crimes 3,206 3,175 2,895 2,870 2,903 NIBRS = 3,510
Crimes per 100,000 Population 2,480 2,370 2,126 2,066 2,042 NIBRS = 2,467
Investigation Activities
Between FY 2018 and FY 2023, the number of assigned investigations ranged from 425 to
728 per year. The division also participates in regional initiatives such as the Sacramento
Regional High Technology Crimes Task Force and the Criminal Justice Automated
Information Systems.
Traffic Division Activities
The Traffic Division enforces traffic laws, including DUI regulations, investigates traffic
collisions, and runs programs to prevent traffic-related deaths and injuries. Between FY 2018
and FY 2023, the number of Injury and Fatal Traffic Accidents ranged from 519 to 607 per
year, while the number of DUI citations ranged from 638 to 775.
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Animal Control Activities
Animal Control is a division of the Police Department that is staffed by three full-time non-
sworn positions, supervised by a Police Lieutenant as a portion of his/her duties. The Animal
Control Officers respond to reports and conduct investigations of crimes against animals
and report situations where their investigations lead to suspicions of crimes against humans.
Responsibilities include:
• Investigating vicious animal attacks.
• Ordering rabies quarantines.
• Responding to barking complaints.
• Conducting welfare checks (often from concerned neighbors).
• Making determinations to put an animal down (whether tame or wild) to limit
suffering.
• Disposal of dead animals when needed.
• Contracting sheltering services w/SPCA and 24-hour veterinary clinic.
By ordinance, residents are allowed a maximum of three dogs over the age of 16 weeks
within a single residential dwelling unit. There is no ordinance limit on cats per dwelling unit.
Dogs and owned cats are required to be licensed. There is also a feral cat spay/neuter
and release program.
Over the last six fiscal years, animal control calls for service ranged from 4,577 to 6,280,
while dog licenses issued have ranged from 4,006 to 7,632.
Communications Activities
In FY 2023, the department received 204,339 calls, of which 105,238 were calls for service.
The unit has been targeted to handle almost all types of calls for service.
Jail Services
Since the Roseville Police Department jail closed in 2017, the City has been paying the
Placer County Sheriff’s Department all jail access fees.
Technological Advancements
In 2017, the department installed the New World Computer Aided Dispatch/Records
Management System (CAD/RMS), enhancing dispatch and records management
efficiency and accuracy.
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Staffing Summary
The staffing structure of the department is detailed in the following figure.
Figure 10: Police Department Staffing
Designation Staffing
Sworn Officers 153.0
Professional 70.0
Reserve Officers 4.0
Volunteers 43.0
Total (Including Volunteers) 270.0
Determinations
• Comprehensive Law Enforcement Services: The Police Department is structured to
handle the diverse law enforcement needs of the City, including patrol,
investigations, traffic enforcement, records management, and community services.
• Sworn Staff Ratio: The department maintains a ratio of 0.95 sworn officers per 1,000
residents. To ensure adequate law enforcement coverage, we recommend a
minimum of 1 sworn officer per 1,000 residents.3
• Jail Services Contract: The City will continue to contract with Placer County for jail
access at an annual cost of approximately $206,000, subject to future adjustments.
The Police Department remains committed to providing high-quality law enforcement
services to the community. The department is equipped to handle current and future
challenges through strategic staffing, specialized units, and advanced technology.
However, to properly provide law enforcement services for this rapidly growing population,
we recommend hiring sworn police officers to maintain 1 sworn officer per 1,000 residents.
By fostering strong community relationships and maintaining rigorous training standards, the
department ensures the safety and well-being of all residents, businesses, and visitors.
Fire Protection: This MSR did not specifically include an evaluation of fire protection and
emergency medical response in its data analysis. This analysis is being done in a separate
countywide MSR for that service. However, the City currently provides automatic and
mutual aid into the sphere of influence territory due to the proximity of its stations.
3 The International Association of Chiefs of Police (IACP) and the Federal Bureau of Investigation (FBI) have
referenced similar ratios in their discussions of police staffing, though they emphasize that staffing needs should
be tailored to each community's specific circumstances.
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Parks and Recreation
The City’s Parks and Recreation operations are in the same department as Library Services,
reported separately below. Parks and Recreation has 128 full-time positions, 575 part-time
positions, and 150 seasonal positions. Their locations receive 4.25 million visitors a year.
Figure 11: Roseville Parks, Recreation, and Libraries Department Organization Chart
Parks, Recreation
& Libraries
Department
Park Development Parks Recreation Libraries & Culture Administration
Programs, Events, Financial,
Park Planning Park Operations Facilities & Libraries HR/Payroll, &
Aquatics Technology
Open Space,
Youth Marketing &
Rehabs Urban Forestry & Cultural Arts
Development Communications
CFD/LLD
Park/Streetscape Maidu Museum &
Construction Historic Site
Responsibilities include:
• Maintaining 87 park sites.
• Maintaining and operating four community center buildings and three aquatic
centers.
• Maintaining 4,000 acres of open space, vernal pools, and trails.
• Providing athletic programs and facilities, aquatics, and senior programs and
services.
• Providing Youth Development programs on 21 city-owned sites on school campuses,
serving 1,400 students.
• Maintaining a 10-year capital improvement plan, updated annually.
• Maintaining a 5-year tree-trimming cycle in parks.
• Administering site reservation and rental programs.
• Promoting cultural enrichment programs.
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• Hosting an array of community events.
• Providing public outreach through social media, the MyRSVL app, and the City of
Roseville website.
Parks and Recreation relies on community surveys and focus groups to determine what
amenities are desired and will be used by the citizens. As of May 2024, a 10-field soccer
facility was under construction. The park locations are accessible, with 80% of the City’s
population living within a 10-minute walk of a park. The department has successfully raised
funds for programs, recovering 34% of its program costs through fees, grants, and
sponsorships—versus the national average of 24%. Parks and Recreation already shares
much of its facilities and programs, with one-third of the usage being done by non-
residents of the city, particularly for facilities in western Roseville.
Stormwater
The purpose of managing stormwater flows is not only to protect against flooding in all but
the largest of storm events, it is also to ensure appropriate environmental protection efforts
are in force. The lead responsibilities for overseeing the Stormwater Management program
are within the Refuse Division of the Environmental Utilities Department.
Figure 12: Roseville Environmental Utilities Department—Wastewater Organization Chart
Environmental
Utilities
Department
Environmental
Utilities
Administration
Communications
Wastewater Government
and Public Waste Services Water Utility Utility Services
Utility Relations
Outreach
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Figure 13: Roseville Public Works Department—Engineering/Street Maintenance
Organization Chart
Public Works
Alternative
Engineering Street Maintenance Facilities Fleet
Transportation
Transportation
Traffic Engineering Drainage/Sweeping Systems Facility Maintenance Fleet Services
Management
Traffic Signal Vehicle Parts/
Paving Bikeways Custodial Services
Maintenance Warehouse Services
Facility Rehab/New
City Projects Marking/Signs Transit
Construction
Floodplain
Management
Responsibilities include:
• Administering stormwater permit applications and compliance reporting.
• Monitoring and, if necessary, enforcement of stormwater runoff compliance.
• Ensuring protection of downstream creek restoration.
• Overseeing internal and external facility design.
• Prescribing development requirements for residential, commercial, and industrial
developments.
• Providing public education to discourage illegal dumping down drain inlets of
hazardous materials, which can contaminate both downstream waters and
groundwater basins.
The Street Maintenance Division performs regular maintenance of stormwater facilities, as
described in the following section. These departments cooperate productively to share in
the maintenance of the stormwater facilities.
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Street Maintenance
The Public Works Street Maintenance Division is staffed by 40 full-time and 13 seasonal
positions. They aim to provide safe, clean, quality street and stormwater infrastructure.
Figure 14: Roseville Public Works Department—Street Maintenance Organization Chart
Public Works
Alternative
Engineering Street Maintenance Facilities Fleet
Transportation
Transportation
Traffic Engineering Drainage/Sweeping Systems Facility Maintenance Fleet Services
Management
Traffic Signal Vehicle Parts/
Paving Bikeways Custodial Services
Maintenance Warehouse Services
Facility Rehab/New
City Projects Marking/Signs Transit
Construction
Floodplain
Management
Responsibilities include:
• Maintaining 1,170 lane miles of streets (with two paving crews).
• Street sweeping (funded by the Environmental Utilities Department), storm drain inlet
cleaning, and keeping drainage facilities clear and functioning.
• Conducting pre-flood inspections of inlet structures and five lift stations to handle
flooding “hot spots.”
• Producing and maintaining Signage for streets, parks, and City facilities.
• Painting street lines.
• Milling and filling potholes in streets and alleyways.
• Graffiti removal from City assets.
• Using various social media to promote special events.
• Interacting with the MyRSVL app to communicate with citizens and respond to
service requests.
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One significant performance metric is maintaining an adequate Pavement Quality Index
(PQI), which measures street condition/distress and smoothness of ride on a 1–100 scale. As
of May 2024, the PQI for arterials and collectors was 72, and for residential streets, it was 67.
Public Transit
The Public Works Department’s Public Transit Division serves its citizens with public
transportation and by planning that includes networking with bike and pedestrian trails.
Figure 15: Roseville Public Works Department—Alternative Transportation
Organization Chart
Public Works
Alternative
Engineering Street Maintenance Facilities Fleet
Transportation
Transportation
Traffic Engineering Drainage/Sweeping Systems Facility Maintenance Fleet Services
Management
Traffic Signal Vehicle Parts/
Paving Bikeways Custodial Services
Maintenance Warehouse Services
Facility Rehab/New
City Projects Marking/Signs Transit
Construction
Floodplain
Management
Responsibilities include:
• Operating the local scheduled bus service with ten scheduled routes.
• Operating Arrow, an on-demand app-based van service and paratransit service
(formerly Dial-A-Ride).
• Operating commuter bus service to Sacramento.
• Operation of the South Placer Transit regional service.
• Operation of Game Day Express to Sacramento Kings basketball games.
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• Maintaining a vehicle maintenance and vehicle replacement program.
• Administering Safe Routes to Schools and School Crossing Guard programs.
• Providing public outreach through social media, special events, flyers, and the City
website.
• Providing mobility training to those learning to use the transit system.
It’s important to note that the City’s transit operations already include collaborative efforts
with other jurisdictions, described in greater detail in the “Status and Opportunities for
Shared Facilities” section of this Municipal Service Review. The City’s Public Transit is
undergoing a significant conversion to an all-electric fleet and is commissioning a new
electric charging station at the City’s Corporate Yard. As of May 2024, consultants were
conducting a Comprehensive Operational Analysis to review the demands and
efficiencies of the City’s various transit services.
Library
The Library Service includes operations at three library locations, a mobile library, and other
community outreach. It is staffed by 19 full-time positions, 35 part-time positions, and 30
community volunteers.
Figure 16: Roseville Parks, Recreation, and Libraries Department Organization Chart
Parks, Recreation
& Libraries
Department
Park Development Parks Recreation Libraries & Culture Administration
Programs, Events, Financial,
Park Planning Park Operations Facilities & Libraries HR/Payroll, &
Aquatics Technology
Open Space,
Youth Marketing &
Rehabs Urban Forestry & Cultural Arts
Development Communications
CFD/LLD
Park/Streetscape Maidu Museum &
Construction Historic Site
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Responsibilities include:
• Full-time operation of the Roseville Public Library, including traditional library services
as well as virtual resources, arts and crafts, and special community events.
• Full-time operation of the Maidu Museum and Historic Site, which offers opportunities
to learn about the Nisenan Maidu, native Californian people who inhabited the
area thousands of years before the founding of the City of Roseville.
• Management of a contractual relationship with the Roseville Historical Society to
operate the Carnegie Museum, built in 1912 and containing historical displays of the
City of Roseville.
• Outreach to schools, seniors, and the underserved via the mobile library and other
resources.
• Promoting literacy, public art, and other outreach efforts.
• Maintaining a bank of computers for public use.
• Maintaining a 10-year capital improvement plan, updated annually.
• Providing programs for teens, caregivers, and childcare.
As of May 2024, the Library Service had over 400,000 visits annually. The library maintains a
circulation of 1.5 million and is growing while also actively culling out-of-date materials. The
library already collaborates with other libraries serving other areas to share resources,
described in greater detail in this Municipal Service Review's “Status and Opportunities for
Shared Facilities” section.
Electric Utility
There are 197 full-time equivalent positions in the Electric Utility Department. The Electric
Utility provides all the City’s electrical power generation, transmission, and distribution. It
aims to offer lower costs and higher reliability than other nearby electric providers. The City
is a Northern California Power Agency (NCPA) member and participates in some of
NCPA’s power generation projects including a steam injected generator, geothermal, and
hydro. As of May 2024, the Electric Utility had a 375-megawatt peak demand, with a
projected potential capacity to serve up to 550 megawatts.
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Figure 17: Roseville Electric Utility Department Organization Chart
Electric Utility
Department
Economic
Legislative & Public
Development & Operations
Regulatory Information
Partnership
Finance &
Customer Care
Resources &
Generation
Electric
Engineering
Electric
Operations
Responsibilities include:
• Serving electrical power to 61,613 residential meter accounts and 7,380 commercial
meter accounts.
• Maintaining a 10-year capital improvement plan, updated annually.
• Performing time-based preventive maintenance on all major equipment.
• Maintaining joint powers agreements, including mutual aid for emergencies.
• Working closely with the City’s Planning and Development Department to identify
growth patterns and future electric needs.
• Maintaining a physical and cyber security plan.
• Tree trimming to ensure trees are clear of powerlines.
• Inspecting power poles about every five years.
In addition to keeping pace with future service volume demands due to population
growth, the Electric Utility must also address future electric demand increases brought on
by legislation (particularly in the transportation industry), automation of consumer goods,
and remote work locations. Through proper planning and risk policies, City staff are
confident in their ability to meet the future electric demand.
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FINANCIAL ABILITY TO PROVIDE SERVICES
Revenues and Expenses
The City’s services and operations are supported through various funds, including General
Funds, Enterprise Funds, Special Revenue Funds, Capital Projects Funds, Permanent Funds,
Agency Funds, Trust Funds, and Internal Service Funds. Some services, such as law
enforcement, fire protection and emergency medical response, parks and recreation,
libraries, and public works, are funded through the general fund. The services of water,
wastewater, refuse, Roseville Electric, Roseville Transit, and the childcare program are
funded through charges as they are enterprise services. This section outlines significant
revenue sources and expenses at the City-wide or all-fund level.
Figure 18: Revenue—All Funds (In Millions)
2020 2021 2022 2023 2024
Revenue
Actual Actual Actual Actual Budget
Taxes $179.2 $202.6 $228.6 $239.3 $250.1
Charges for Service 283.8 297.5 319.1 343.3 357.0
Capital Contributions/Projects 62.4 103.1 101.9 110.4 119.5
Grants and Contributions 10.9 16.5 14.2 14.2 16.9
Other Revenue 75.6 137.5 132.8 108.1 50.4
Total Revenue $611.9 $757.2 $796.6 $815.3 $793.9
The City’s two largest revenue sources are Taxes and Charges for Services. Significant tax
revenues are General Fund property tax and sales tax, which together comprise
approximately 70% of the Taxes line item in the above figure. Property taxes have steadily
increased, from $52.9 million in FY 2020 to $70.5 million in FY 2024, an increase of 33%.
Similarly, sales tax has increased from $73.6 million to $104.2 million (a 42% increase) during
the same five-year period. Sales tax revenues include sales tax from Measure B, a half-cent
local sales tax measure approved by voters in 2018 with the commitment to maintain
service levels, invest in high-priority service areas, and build and maintain the City’s
economic stabilization reserve fund. Measure B sales tax revenues increased from $19.7
million in FY 2020 to $29.8 million in FY 2024.
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Charges for Services include various permit fees and user fees. However, charges related
to the City’s utilities (Electricity, Water, Refuse and Wastewater) account for approximately
90% of the category. Utility charges increased from $269.7 million in FY 2020 to $322.7 million
in FY 2024, while other charges for services increased from $14.0 million to $34.3 million
during the same period.
Capital Contributions and Project revenues are derived primarily from permit fees from
developers and impact fees, as well as federal and state grants dedicated to specific
projects. These revenues have nearly doubled over the past five years, from $62.4 million to
$119.5 million.
The City receives additional program funding through state grants, federal grants, and
other state-mandated programs. These include grants for public safety, housing, transit,
transportation, and other programs. Revenue from grants and contributions increased from
$10.9 million in FY 2020 to $16.9 million in FY 2024.
The Other Revenue category includes revenue from licenses and permits, interest,
proceeds from bond sales, revenue from other agencies, and other revenue sources.
Revenue in this category fluctuated during the review period, primarily due to variances in
revenue from other agencies in the City’s Special Assessments Community Facility Districts.
Across all funds and revenue types, total revenue increased from $611.9 million in FY 2020
to $793.9 million in FY 2024.
The following figure outlines significant categories of expenses for Roseville for the period FY
2020 through FY 2024.
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Figure 19: Expenses—All Funds (In Millions)
2020 2021 2022 2023 2024
Expense
Actual Actual Actual Actual Budget
Salaries/Wages $128.6 $134.5 $145.4 $153.5 $172.4
Benefits 68.4 74.9 86.9 94.1 106.2
Subtotal – Personnel Costs $197.0 $209.4 $232.3 $247.6 $278.6
Reimbursements (11.9) (13.6) (16.4) (16.6) (14.4)
Materials, Supplies, & Services 223.3 274.7 298.1 294.8 297.9
Capital Outlay 100.1 129.0 112.4 62.1 26.2
Debt 50.1 65.8 52.4 14.3 47.8
Projects 73.4 89.4 107.6 90.5 147.8
Total Expense $632.0 $754.7 $786.4 $692.7 $783.9
The City’s two most significant expenses are Personnel Costs and Materials, Supplies, and
Services. These two expense categories comprise $576.5 million, or 73% of the FY 2024
Amended Budget. Personnel Costs of $278.6 account for 35% of the FY 2024 Budget. From
FY 2020 through FY 2024, Personnel Costs have steadily increased, on average,
approximately 10% per year, from $197.0 million in FY 2020 to $278.6 million in FY 2024.
On an annual basis, Roseville spends more on Materials, Supplies, and Services than any
other category. This expense category includes costs for materials, supplies, equipment
maintenance, and various contracts for professional and other services. While personnel
costs are typically the highest cost category for California municipalities, Roseville’s
operation of several utilities, including electric and water utilities, leads to high costs in the
Materials, Supplies, and Services category. The purchase of power and water accounts for
approximately 25% of the City’s entire Materials, Supplies, and Services expenses, with the
purchase of electricity accounting for many of these costs. Costs for the purchase of
power and water are offset by utility rates charged to customers. Overall, Materials,
Supplies, and Services costs increased City-wide from $223.3 million in FY 2020 to $297.9
million in FY 2024. During the same period, costs for purchasing power and water increased
from $58.2 million to $91.8 million.
General Fund Services
Roseville’s General Fund supports most city services, including Police, Fire, Economic
Development, Public Works, Development Services, Parks, Recreation, and Libraries. The
Fund also supports general government services, such as the City Council, City Manager,
City Attorney, City Clerk, Finance, and Human Resources.
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The General Fund is supported through a variety of revenue sources. General Fund
revenue increased from $169.0 million in FY 2020 to $231.7 million in FY 2024, an increase of
$62.7 million, or 37%. Much of the increase ($52.4 million) is attributable to increases in tax
revenues. The largest General Fund revenue source is Taxes, comprising 79% of all General
Fund revenues. Overall, tax revenues have increased from $131.6 million in FY 2020 to $184
million in FY 2024, an increase of 40%. Sales Taxes account for $101.1 million, while Property
Taxes account for $71.5 million. Property Tax revenues in the General Fund have increased
steadily, approximately 8–9% annually during this period. Sales Tax revenues increased
significantly (21.6%) from FY 2020 to FY 2021 and have experienced more modest increases
since then. The Measure B Tax local sales tax measure discussed in the section above is a
General Fund revenue source. The following figure outlines General Fund revenues from FY
2020 through FY 2024.
Figure 20: Revenue—General Fund (In Millions)
2020 2021 2022 2023 2024
Revenue
Actual Actual Actual Actual Budget
Taxes $131.6 $150.9 $168.9 $176.8 $184.0
Charges for Services 11.2 9.8 14.2 15.4 15.2
Grants and Contributions 0.5 2.2 0.4 0.2 0.1
Transfers and Carryover 13.4 13.6 13.9 16.9 18.1
Other Revenue 12.3 14.7 18.6 17.3 14.3
Total Expenses $169.0 $191.2 $216.0 $226.6 $231.7
The following figure outlines General Fund expenses from FY 2020 through FY 2024. General
Fund expenses have increased from $172.5 million in FY 2020 to $229.3 million in FY 2024, an
increase of $56.8 million, or 33%.
Figure 21: Expense—General Fund (In Millions)
2020 2021 2022 2023 2024
Expense
Actual Actual Actual Actual Budget
General Government $11.6 $11.8 $10.0 $11.7 $14.0
Police 45.4 47.4 51.1 55.0 58.8
Fire 36.4 35.8 42.9 42.4 45.2
Economic Development 1.0 1.0 0.8 1.1 0.9
Parks, Recreation, and Libraries 23.1 23.6 27.2 30.2 35.0
Public Works 7.2 7.2 8.3 8.8 10.5
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Development Services 8.2 8.4 9.3 10.3 11.9
Transfers and Other Expenses 39.6 31.9 45.4 68.4 53.0
Total Expenses $172.5 $167.1 $195.0 $227.9 $229.3
In the Adopted FY 2024 Budget, Public Safety accounts for 45%, Parks, Recreation, and
Libraries for 15%, and general government for 6%. Transfers and Other Expenses account for
24% of the budget.
Enterprise Fund Services
The City of Roseville has four main groups of enterprise funds, which are supported by utility
rates and other charges for services: Electric Funds, Environmental Utilities Funds,
Transportation Funds, and Youth Development Funds. The following provides a brief
description of each of these fund groups and their respective financial data for the period
FY 2020 through FY 2024.
Electric Funds
The Roseville Electric Utility is a community-owned utility that provides reliable electricity to
Roseville residents and businesses. The utility's enterprise funds are the Electric Fund and the
Electric Rate Stabilization Fund. The electric funds' primary source of operating revenue is
retail electricity sales to residential and business customers.
Environmental Utilities Funds
Roseville’s Environmental Utilities include water, wastewater, recycled water, and waste
services for residents and businesses. Customers' rates are the primary source of revenue for
these funds. Each utility has operating, construction, and rehabilitation capital programs
and rate stabilization funds.
Transportation Funds
Transportation Funds are used for transit, bikeway and Transportation Systems
Management programs and projects, and street and road improvements, such as
roadway resurfacing. Transportation Funds include Transit, Transportation, and
Consolidated Transportation Service Agency Funds. These funds are supported through
various revenues, including state sales taxes, passenger fares, and federal grants.
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Youth Development Fund
The Youth Development Fund records revenues and expenses associated with providing
youth and family programs, such as preschool programs and licensed before-and-after-
school childcare at elementary school locations. Revenues are derived from fees collected
for these programs.
The following figures display revenues and expenses, respectively, for Roseville’s Enterprise
Funds. Operating revenues, primarily from charges for services, such as utility rates and user
fees, have steadily increased between FY 2020 and FY 2024. The lower revenues and
expenses in FY 2024 can be primarily attributed to one-time resources associated with
loans, transfers, and capital projects.
Figure 22: Revenues—Enterprise Funds (In Millions)
2020 2021 2022 2023 2024
Fund Group
Actual Actual Actual Actual Budget
Electric Funds $175.8 $184.3 $182.6 $255.6 $202.3
Environmental Utilities Funds 151.0 200.0 265.1 219.9 218.2
Transportation Funds 11.9 14.3 14.5 15.7 47.7
Youth Development Fund 6.0 3.8 9.4 10.0 8.6
Total Enterprise Fund Revenues $344.7 $402.4 $471.6 $501.0 $476.8
Figure 23: Expenses—Enterprise Funds (In Millions)
2020 2021 2022 2023 2024
Fund Group
Actual Actual Actual Actual Budget
Electric Funds $206.8 168.6 $173.4 $282.0 $210.4
Environmental Utilities Funds 109.3 176.5 209.9 248.9 222.9
Transportation Funds 11.9 14.6 14.4 15.5 47.7
Youth Development Fund 6.7 6.7 6.7 8.3 9.0
Total Enterprise Fund Revenues $334.7 $366.4 $404.4 $554.7 $490.0
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Capital Improvements
Roseville’s Capital Improvement Program (CIP) includes projects related to the acquisition,
design, construction, or expansion of an element of the City’s infrastructure, such as utilities,
streets, public buildings, public services infrastructure, parks, and technology. The City
incorporates a Five-Year CIP into the budget process each fiscal year. The FY 2024 Budget
includes FY 2024 project estimates of $129.4 million and five-year (FY 2024–FY 2028) project
estimates of $484.6 million.
Projects are classified into one of nine categories: Citywide Technology, Electric, General
Government, Parks, Recreation & Libraries, Public Works, Waste Services, Wastewater, and
Water. The following figure displays projected FY 2024 and five-year project estimates by
category.
Figure 24: CIP Project Estimates by Project Type (In Millions)
5-Year (2024–2028)
Project Type 2024 Project Estimates
Project Estimates
Citywide Technology $2.2 $22.5
Roseville Electric 25.0 145.5
General Government 5.9 5.9
Parks, Recreation & Libraries 20.3 54.3
Public Works 47.2 162.5
Waste Services 2.6 31.6
Wastewater 4.0 14.5
Water 22.3 47.7
Total Project Estimates $129.5 $484.5
Roseville has an estimated $484.5 million in capital projects for FY 2024 through FY 2028, with
$129.5 slated for FY 2024. Projects in Roseville Electric, Public Works, and Parks, Recreation &
Libraries collectively account for 75% of estimated project expenses.
The following figure shows estimated five-year (FY 2024–FY 2028) project costs by fund type.
This includes projects worth $53 million for which funding is yet to be identified. Projects
supported by Enterprise Funds account for most (approximately 63%) of all projects. Of
these funds, $146.3 million are in the Electric Fund, $100.7 million are in Environmental
Utilities Funds, and $59.4 million are in Transportation Funds.
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Figure 25: CIP Projects by Fund Type (In Millions)
Five-Year (2024–2028)
Fund Type
Project Estimates
Enterprise $306.4
Capital Projects 87.9
Unidentified/TBD 53.0
General 16.9
Internal Services 14.6
Special Revenue 5.7
Total Project Estimates $484.5
Debt
The City’s Debt Management Policy provides guidelines for issuing bonds and other forms
of indebtedness to finance necessary land acquisitions, capital construction equipment,
and other items for the City. This policy aims to assist the City in determining appropriate
uses of debt financing, establish specific debt management goals, and help the City
maintain its credit ratings. The following figure displays the City’s total debt from FY 2020
through FY 2024. The City’s debt decreased by 38% between FY 2020 and FY 2024, from
$476.7 to $297.3 million. The primary debt mechanisms are revenue bonds (70%) and
certificates of participation (11%).4
Figure 26: Debt by Category (In Millions)
2020 2021 2022 2023 2024
Fund Group
Actual Actual Actual Actual Budget
Interfund Loans $40.8 37.2 $29.1 $34.5 $30.1
Revenue Bonds 301.8 275.3 251.2 230.6 209.2
Certificates of Participation 105.3 101.0 96.4 37.8 32.9
Tax Allocation Bonds 28.9 27.9 27.0 26.0 25.0
Total Indebtedness $476.8 $441.4 $403.7 $328.9 $297.2
4 The total debt amount does not include $93.5 million in State Revolving Fund Loans, representing funding for
the Pleasant Grove Wastewater Treatment Plant Expansion and Energy Recovery projects. South Placer
Wastewater Authority must provide the funding to service the debt for this loan.
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Reserves
Roseville has a variety of reserve funds and has policies for each. The reserve funds and
their respective policies are as follows.
General Fund Reserve Funds
The City’s General Fund Reserves Policy provides policy direction for the General Fund
Emergency Reserve Fund, General Fund Stabilization Reserve Fund, and Litigation Reserve
Fund. This reserve policy aims to establish targeted levels of General Fund reserves, an
essential component of a financially strong city. The policy establishes the amounts the City
will strive to maintain in each reserve fund to help sustain City operations when adverse or
unexpected circumstances affect the City, such as revenue shortfalls and/or
unanticipated expenditures.
The policy establishes three months of operating costs (25% of the annual General Fund
operating budget) as the City’s target level of reserves, to be achieved with a target of
10% of annual budgeted General Fund operating costs in the City’s Emergency Reserve
Fund and 15% of annual budgeted General Fund operating costs in the City’s Stabilization
Reserve Fund. The policy also establishes $250,000 as the minimum level in the City’s
Litigation Reserve Fund. The City also has a General Fund Capital Reserve Fund, which is
not addressed in the policy.
Development Services Stabilization Reserve Fund
The Development Services Stabilization Reserve Fund was established to maintain resources
from which the City Council may draw in years of lower development activity. The Fund will
bridge gaps between budgeted and actual development revenues during periods of
significant revenue decline. The target goal is equivalent to six months of estimated
building, planning, and engineering revenues.
Pension Reserve Trust Fund
The City’s policy states that it will establish and consider making contributions to an Internal
Revenue Code Section 115 Pension Trust to set aside extra resources for future pension
contributions at reduced investment risk and help smooth volatility from fluctuations in
annual required contributions.
The following figure displays balances for the above-mentioned reserve funds for FY 2020
through FY 2024.
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Figure 27: Reserve Fund Balances (In Millions)
2020 2021 2022 2023 2024
Reserve Fund
Actual Actual Actual Actual Budget
General Fund Emergency $15.6 $15.8 $17.1 $18.7 $20.1
General Fund Stabilization 16.0 23.4 26.1 27.9 30.2
General Fund Capital 0 0 0 6.3 6.8
Development Services Stabilization 0 0 2.0 2.6 2.6
Litigation 0.3 0.3 0.3 0.3 0.3
Pension Reserve Trust 0 0 0 12.8 17.1
TotalGeneral Fund Reserves $31.9 $39.5 $45.5 $68.6 $77.1
Future Ability to Provide Service
In the City’s FY 2024–2025 Proposed Budget, the City Manager has outlined several
challenges and opportunities relevant to Roseville’s financial ability to provide services. This
section includes a brief discussion of some of these issues and summarizes key points from
the above analysis for consideration.
• Residential development continues at a slower, more regular pace than in the last
three years. Single-family residential home production for the past twelve months is
estimated at 1,200 units, or 33% above the City’s historical annual average of 900
permits.
• Due to inflation, fees collected for improvements and amenities are not keeping up
with construction costs.
• Revenue growth from sales tax continues but is slower than immediately after the
pandemic rebound. General Fund sales tax revenue, including Measure B,
increased by 22% from FY 2020 to FY 2021, 12% from FY 2021 to FY 2022, then
flattened out (less than 1% increase) from FY 2022 to FY 2023.
• The state’s minimum-wage law, which went into effect April 1, 2024, raising salaries
to $20 an hour for fast-food workers, could likely increase labor costs for recreation
and library positions, which compete from the same labor pool.
• Roseville has experienced underspending in its General Fund. It has been attributed
to staff employing a high level of scrutiny in purchasing decisions in all economic
circumstances. Additionally, there are significant savings in personnel costs each
year.
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• As noted in the above section on reserves, Roseville has adopted prudent policies
for funding General Fund reserves, equating to 25% of General Fund operating
expenditures. Roseville remains in compliance with this policy through fully funded
reserves.
• Property tax revenues have increased due to higher home prices, continued
development, a competitive housing market, and the ability for residents to work
remotely. Property Tax revenues in the General Fund have increased steadily,
approximately 8–9% annually from FY 2020 through FY 2024.
• Roseville continues to attract manufacturing industries, including vehicle technology
and medical devices. Over the last year, Roseville’s manufacturing industry grew by
17.9 % to approximately 2,900 jobs.
• Global semiconductor manufacturer Bosch has completed the acquisition of assets
of TSI Semiconductors, based in Roseville, representing an investment of
approximately $1.5 billion. This investment will bring additional jobs and a significant
economic impact to Roseville and the region.
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STATUS AND OPPORTUNITIES FOR SHARED FACILITIES
This section of the MSR aims to discuss opportunities for the City to share facilities, programs,
or direct services with neighboring agencies or communities. Sharing services can provide
cost savings and a more efficient and sustainable service delivery pattern for some of its
services.
City Services
The City of Roseville has demonstrated a commendable commitment to maximizing the
efficiency and reach of its services through a robust culture of shared facilities and
cooperative service delivery. This culture is a testament to the City’s leadership and
strategic vision, ensuring residents receive high-quality services while optimizing resources.
Below is a detailed overview of the shared services within the City of Roseville:
Public Transit
The City of Roseville excels in providing extensive public transit services not only within its
boundaries but also extending to regional and commuter services throughout Placer
County and into Sacramento. This integrated transit network enhances mobility for
residents, reducing traffic congestion and promoting sustainable transportation options.
Parks and Recreation
Roseville’s Parks and Recreation Department offers diverse facilities and programs. These
include park facilities, sports programs, and cultural enrichment activities accessible to
residents and non-residents, albeit with some variations in cost structures. The City has also
established Joint Use Agreements with School Districts and the Roseville Historical Society,
further broadening the scope and impact of its recreational services.
Library Services
The City’s library services are bolstered through partnerships with Placer County and the
NorthNet Library System Consortium membership. This consortium combines lending
resources from 41 library systems across Northern California, vastly increasing the available
materials and resources for Roseville’s residents.
Water Supply
Roseville’s water supply network extends beyond its city limits, serving locations in Placer
County through 17 interconnection points with the City’s water main system—all within the
California American Water Company service area. This extensive network ensures a more
significant population's reliable and efficient water supply, fostering regional cooperation.
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AP Triton recommends that the City of Roseville consult with PCWA regarding the delivery
of treated and untreated water to areas outside the City's current limits but within its
proposed sphere of influence. This consultation is particularly crucial for areas outside the
existing CAL-AM certificated service area.
Solid Waste Collection
The City’s solid waste collection operations are streamlined through a Joint Powers
Agreement with the Western Placer County Waste Management Authority. This partnership
enhances the efficiency of waste management services and promotes sustainable waste
disposal practices.
Electric Utility
Joint Powers Agreements for emergency mutual aid support Roseville’s electric utility
services. These agreements ensure rapid response and resource sharing during
emergencies, maintaining service reliability and resilience.
Animal Control
The City of Roseville contracts with the SPCA for sheltering services and provides 24-hour
veterinary and clinic services. This partnership ensures comprehensive animal control and
welfare services, addressing routine and emergency needs.
Police Department
The Roseville Police Department exemplifies the City's dedication to public safety and
community engagement. The department’s structure and operations are committed to
proactive and responsive law enforcement through various initiatives and specialized units.
The department's sworn officers, reserve officers, professional staff, and volunteers are
dedicated to protecting life and property, preventing crime, and maintaining public order.
It is important to note that not all City services lend themselves well to combining services
or sharing assets. For example, the Electric Utility does maintain agreements for mutual aid
in the event of an emergency. Outside of those emergencies, however, adjacent
electrical power service suppliers are understandably very protective of their service areas
and attempts to realign service delivery areas are not likely to be successful. The same
would be true for private retail water purveyors in the unincorporated southwestern area.
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Management Efficiencies
In May 2024, AP Triton's on-site visit to the City of Roseville highlighted an exceptional level
of management efficiency and a deeply ingrained culture of continuous improvement
among city staff. The following key practices contribute to this high standard of
management:
Infrastructure Planning
The City of Roseville demonstrates foresight in infrastructure planning by proactively
preparing for future needs through comprehensive 5- and 10-year capital improvement
plans. These plans are meticulously reviewed and updated annually, ensuring the City's
infrastructure remains robust and capable of supporting anticipated growth and
development. This approach includes assessing current infrastructure capacities,
identifying potential future demands, and prioritizing projects that align with the City's long-
term strategic objectives. This strategic planning not only maintains the City's operational
capabilities but also positions it to adapt to evolving community needs and emerging
technologies.
Financial Stewardship
Roseville's financial management is characterized by a prudent and proactive approach,
maintaining substantial financial reserves that provide a buffer against economic
uncertainties. These reserves are carefully managed to ensure the City meets current and
future financial obligations. This fiscal solid stewardship allows the City to make strategic
investments in critical infrastructure projects, public services, and community programs,
thereby enhancing the quality of life for its residents. The City's commitment to sound
financial practices also includes regular financial audits, transparent reporting, and a
conservative approach to budgeting, all of which contribute to its financial stability and
resilience.
Interdepartmental Cooperation
A hallmark of Roseville's management efficiency is the close collaboration between city
departments. This cooperative spirit is evident in the seamless execution of joint projects,
the sharing of resources, and the coordinated efforts across various services. Departments
work together to align their objectives, streamline processes, and maximize the use of
available resources. This interdepartmental synergy not only optimizes operational
outcomes but also fosters a cohesive organizational culture that prioritizes the City's overall
mission and goals.
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Community Engagement
The City of Roseville places a high value on community engagement, recognizing the
importance of understanding and responding to the needs of its residents. The City
employs various methods to gather feedback, including customer surveys, focus groups,
public meetings, and other forms of direct engagement. This data-driven approach
ensures that services align closely with community expectations and desires. The City's
commitment to transparency and responsiveness fosters trust. It encourages active
participation from residents in the decision-making process, strengthening the bond
between the City government and the community.
Data Utilization
Roseville leverages quantitative and qualitative data to enhance service delivery across all
city operations. By utilizing data analytics and tailoring services to meet specific community
needs, the City can deploy resources more efficiently. This includes the strategic
placement of mobile and stationary services based on data insights, ensuring optimal
resource use and effective service coverage. The City's data-driven approach supports
continuous improvement initiatives, allowing real-time adjustments and long-term planning
based on accurate, up-to-date information.
Succession Planning
The City of Roseville strongly emphasizes succession planning and the development of
future leaders. The City invests in comprehensive mentorship programs and professional
development opportunities for staff, fostering a culture of growth and learning. These
initiatives are designed to prepare employees for advanced roles within the organization,
ensuring the continuity of high-quality services. By nurturing talent from within, Roseville not
only maintains a skilled workforce but also preserves institutional knowledge and promotes
a stable and effective management structure.
Conclusion
The City of Roseville exemplifies best practices in municipal service delivery through its
strategic use of shared services, efficient management, and strong commitment to
community engagement. The City's leadership demonstrates a proactive approach to
planning and resource management, which, combined with its dedication to public safety
contributes to a high standard of living for residents. The resilient and well-managed
municipal infrastructure further underscores Roseville's status as a model of operational
excellence.
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GOVERNMENT STRUCTURE AND ACCOUNTABILITY
Roseville is a charter law city, incorporated in 1909, and operates under a Council-
Manager form of government. The City Council appoints the City Manager and City
Attorney. It was identified in the 2017 MSR that the City Council was elected at large;
however, in 2019, the City transitioned to a district-based election system. In 2020, there
were several charter changes, one of which regulated the role of the mayor being rotated
among the districts. This rotation was determined by drawing straws, the Councilmember
elected from District 3 was to serve as the new Mayor with the two-year term commencing
in December 2022. The Vice-Mayor was designated as being from District 4 for that same
period.
Accountability is maintained through intentionally maintained transparency, including
open public access to City Council meetings and online availability of budgetary and
financial reports. Published business metrics, workload indicators, and best management
practices also maintain it.
The City Council meets on the first and third Wednesday of each month. Council meetings
are noticed per the Brown Act, meeting agendas are posted on the City's website, and
council meetings are broadcast live on the City’s website, government access channels,
and the City’s YouTube channel. On-demand video of meetings is available from the City’s
website.
The City has several standing committees, commissions, and boards, and residents are
encouraged to participate to serve in an advisory capacity to the City Council. The City
also appoints a member representing the City on the Placer Mosquito and Vector Control
District. The City provides notices on its website, social media, and published newsletters to
communicate with its citizenry. The City website offers a means for its residents to sign up to
receive a full range of information on its operations directly.
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Figure 28: City of Roseville Organizational/Hierarchical Matrix
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Staffing Levels
The staffing levels allocated in the City’s Proposed Annual Budget for Fiscal Year 2024–25
appear adequate for each department and division to meet current service demands.
However, while the funding of positions is an essential step toward achieving and
maintaining service standards to the community, filling those positions with qualified
personnel and retaining the personnel in those positions is equally crucial. As with many
work sectors in our society today, the City’s service-oriented departments and divisions are
impacted by the so-called “silver tsunami,” a metaphor used to describe the aging of the
population, specifically among the baby boomers (born between 1946 and 1964) as they
have reached and exceeded retirement age. All operating community service divisions
face the challenge of filling positions, which is particularly acute among services requiring
certifications (e.g., Electric Utility, Water Treatment and Distribution, and Wastewater
Treatment).
Looking to the future, maintaining positions filled with qualified and trained personnel will
require more deliberate practices than in years past. To their credit, most of the City’s
operating divisions are engaging in some level of succession planning. Programs aimed at
filling and retaining staffing levels that are being used and should be continued include:
• Formalized mentorship assignments
• Leadership Academies
• Job Fairs (at community events, on high school and college campuses, or at City
operational centers)
• Job profiling on the City’s website and social media
• Ride-a-longs and job shadowing
• Annual or biannual salary surveys (to maintain competitive compensation
packages)
• Internship programs
Employers commonly—and often by necessity—use overtime assignments to compensate
for the shortage of work hours caused by position vacancies. In most cases, however,
overtime should be viewed as a short-term and intermediate solution to staffing shortages.
Excessive overtime use can lead to worker fatigue, efficiency and effectiveness reductions,
workplace injuries, and ultimately increased costs. Overtime assignments should be used
judiciously and concurrently with other job-filling efforts.
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As additional services or service areas are contemplated, particularly within expanded City
limits and Spheres of Influence, staffing must be increased. However, it is essential to note
that enlarged service areas may require increased concentrations of employees, as the
“reach and return” requirements of expanded geographic distances of service require
more miles of travel and a more excellent ratio of travel to productive work.
Organizational Effectiveness
Overall, the City of Roseville’s various service enterprises are being performed at levels of
efficiency and effectiveness that meet or exceed industry standards. This can be attributed
to multiple positive business practices that the City has in place, including:
• Establishing key performance metrics and workload indicators relevant to each
enterprise.
• Making those performance metrics and workload indicators publicly available,
publishing them in the adopted annual budget.
• Linking the performance metrics and service effectiveness to executive
performance reviews.
• Conducting customer satisfaction surveys and publicly reporting results.
• Soliciting customer opinions for existing and proposed services.
• Adapting to aggressive growth trends and service needs.
• Compliance with federal, state, and local legislative and regulatory mandates.
• Fostering a culture of desire for improved performance across the organization.
When new services and service areas are contemplated, caution should be taken to
ensure that expanded services do not come at the expense of existing service efficiencies.
The possibility of sacrificing quality for quantity should be avoided.
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OTHER MATTERS RELATED TO EFFECTIVE SERVICE DELIVERY
Placer LAFCO has established policies in compliance with Cortese-Knox-Hertzberg
requirements. This section will review local LAFCO policies that may affect service delivery
to potential areas for inclusion in the sphere of influence. From our review of these policies,
the following appear the most relevant to the question:
• Placer LAFCO encourages the orderly formation of government agencies and the
efficient provision of governmental services.
• Placer LAFCO encourages the preservation of agricultural land and open space
resources.
• Placer LAFCO encourages logical patterns of growth and discourages urban sprawl.
The Placer LAFCO policy document clearly defines these issues and provides for the
prioritization of urbanization for the County. In that regard, its policies identify that it
discourages urban-level development adjacent to city boundaries (Policy III (A)(5)). The
sphere of influence expansion proposed to include the Curry Creek Community Plan area
and the Regional University Specific Plan would comply with this policy directive. Such an
expansion would allow the City to plan for the range and level of municipal services.
Placer LAFCO also has policies related to orderly growth patterns, which identify that the
area proposed for urban intensity development adjacent to cities and/or their sphere of
influence should be included in that city as its first preference. The area of the Dry Creek
West Placer community plan identified as the Vineyards and Riolo Vineyards specific plans
by the Commission policy should be considered for inclusion in the sphere of influence. In
this way, it will allow for future planning, which may alleviate the need for the proliferation
of districts and/or service providers to fund and provide the range of services available
from the City.
Both county planning areas have anticipated the urbanization of existing rural lands, so the
question of preservation of agricultural and open space resources has been answered. The
County’s Placer County Conservation Program (PCCP) provides a framework to “protect,
enhance, and restore the natural resources of western Placer County.” This plan has
identified the Curry Creek and the Dry Creek West Placer community plan areas as
potential future growth areas that will need the full range of urban-level services.
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Determination
The Placer LAFCO policies on logical growth patterns, discouraging urban sprawl, and the
discouragement of the proliferation of single-purpose special districts provide a direction
for the inclusion of these areas within the sphere of influence of the City of Roseville. Such a
determination would allow for the necessary service extension planning.
On-site vs. Remote Work Assignments
The COVID-19 pandemic caused most employers, including the City of Roseville, to rethink
how and where many job duties are performed. City employees provide many community
services; those services simply must be performed in person if they are to be performed at
all. Other job duties, internal support services for example, were relocated to remote
facilities, with many City workers performing their duties from home for all or part of the
work week. In addition to helping shield employees and customers from exposure, work-
from-home assignments had favorable environmental impacts due to reduced commuter
travel. Depending on the specific work being performed, work-from-home assignments
can also provide the employee with more schedule flexibility and the employer with
reduced demand for office space.
However, work-from-home assignments can also create an environment of reduced
oversight of work performed and a potential loss of workplace efficiency and service
delivery effectiveness. It will be important going forward to intermittently evaluate positions
and work performance to determine and preserve the best balance of on-site vs. remote
work assignments.
Aging of the Workforce
While mentioned elsewhere in this Municipal Service Review, the potential impacts of the
aging of the workforce on effective service delivery cannot be stressed enough. As the
“baby boomers” (born between 1946 and 1964) have reached retirement age, it has
become apparent through experience that it is a significant challenge not only to fill
positions vacated by retirements but also to replace the lost institutional knowledge,
experience, and skill sets. This phenomenon is even more apparent when considering job
positions that require extended education and/or job certifications.
To their credit, City leadership has been taking on this challenge head-on. To ensure that
these problems are abated, the various departments are engaging in succession planning
as a formalized component of their annual and long-term planning. Internal development
and external outreach will be critical efforts to maintain full staffing and preserve efficiency
levels.
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Formalizing Agreements for Shared Services
It is advised that all shared services and mutual aid agreements with other agencies be
formalized by written agreement, approved by the City Council after appropriate public
discussion, and retained in a centralized location (perhaps in the City Attorney’s Office).
LAFCO approvals should accompany the formalized agreements when applicable. Copies
of the agreements should be maintained online via the City website for the public to
access when desired and for city staff with operational oversight to access as needed.
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Section II:
SPECIAL TOPICS
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WESTERN DEVELOPMENT
AP Triton was requested to assess the potential for a sphere of influence expansion for the
City. Included in this task was the request to address the question of competition between
the County and the City in providing services for increased development in the western
areas. After review, AP Triton's opinion is that the competition between the agencies was
addressed in the early 2000s when Roseville wished to pursue expansion. This competition
ended when the City and County essentially laid out their respective service areas, as
outlined below.
The City of Roseville and Placer County have established policies related to development
that are to be considered by either agency in the western/southwestern unincorporated
area. This outgrowth of policies implemented in 2011 between the two agencies allowed
for a sphere expansion to include Sierra Vista (2,075 acres) and Reason Farms (1,754 acres)
annexations. This included a memorandum of understanding (MOU), which specified
specific actions to be taken as a part of the annexation process, including the sphere of
influence reduction for the City of Roseville to exclude the entirety of the Sunset Industrial
Area along the City’s northern boundary. The City’s resolutions approving this concept
were adopted in 2011, Resolutions No. 11-385, 11-386, and No. 11-387. A part of these
resolutions was a revenue-sharing component which stipulated that:
• A separate tax rate for the annexation area would be created.
• The County would receive 18.25% of the ad valorem property tax from the area
following annexation. (no mention is made as to the share the City would receive),
• The County would also receive a portion of the sales tax generated from the area
through an annual payment from the City. This payment schedule began five years
after the annexation was completed, and the transfer established would be 11.25%
of the sales tax through year 15 and 16% in year 16. The agreement does allow for a
limited reopening of this clause in year 15, anticipated to be in 2026.
A review of the City’s financial reports identifies that for 2022 (the latest year audit materials
are available), the payment to the County from the “annexation area” was $9,300,000. The
Amoruso Ranch (completed in 2018) and Reason Farms (completed in 2011) annexations
to the City only partially fall within this area, requiring minimum property tax sharing and
sales tax payments.
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Figure 29: City of Roseville General Plan Land Use—Planning Areas
At the time these discussions were underway, there were other specific plans in process in
the County around the southern and western perimeter of the City of Roseville, but it was
the understanding of City and county staff members contacted that there was “no interest
in their inclusion in the City.” The area of the Dry Creek West Placer Community Plan
included the Placer Vineyards Specific Plan, which was approved on July 16, 2007. The lack
of interest was attributed to the difficulty encountered with addressing the required
property tax sharing agreement.
Development of the specific plan anticipated the need for the full range of municipal
services to be provided to an anticipated population of 37,874 (14,340 dwelling units) and
a mix of business uses (estimated at 8 million square feet of commercial uses at present).
These municipal-level services are provided by a mix of community facility districts, county
service areas, and independent districts.
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Also approved at the time was the Regional University Specific Plan (2008), whose
residential component anticipated 4,387 dwelling units in a mix of low-density to
commercial mixed-use land use designations. Using the current average household make-
up for Placer County (2.68 persons per unit), this would represent 11,757 persons. The last
specific plan area included in the southwestern Placer unincorporated area is identified as
the Riolo Vineyard Specific Plan. It was adopted initially in 2009 and updated in 2015. It
anticipates 933 units (2,500 population) under its revised plan.
One specific plan not part of the southern unincorporated area is the Placer Ranch
Specific Plan adopted in 2019. The area of the specific plan is a part of the Sunset Area
Plan (SAP), which was removed from the Roseville sphere in 2011 and abuts the Roseville
City limits along its southern edge. Development in the overall SAP area includes Thunder
Valley Casino developed by the United Auburn Indian Community (which consists of the
Miwok and Maidu Auburn Indian tribes) and the anticipated residential component of
Placer Ranch. The following figure identifies the approved units and estimated population
using the County’s standard of 2.68 persons per household.
Figure 30: Approved Units & Estimated Population Using 2.68 Persons Per Household
Number of Estimated
Name of Specific Plan Adoption Date Residential Population
Units at Buildout
Placer Vineyards July 16, 2007 14,340 38,431
Regional University 2008/amended 2019 4,387 11,757
Riolo Vineyards 2009/updated 2015 933 2,500
Placer Ranch 2019 5,636 15,104
Projects in Dry Creek Community
Various 2,422 6,491
Plan not in a Specific Plan
TOTAL 27,718 74,283
As the issue of the sphere of influence expansion on the north has been addressed
contractually, there is the potential for discussion for the areas to the west and south. The
county land use decisions within these areas are essential to the debate on a potential
western/southwestern sphere expansion for the City of Roseville. The following map shows
these specific plan areas.
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Figure 31: City of Roseville Regional Development Map
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As noted, these services are provided by a range of providers, some public and other
private enterprises, and some by the City of Roseville on a regional basis. Therefore, the
standard impetus for an annexation to the City is not present, as there is no need for City
services to develop these areas. For the residential component of the Plans, there are the
quality-of-life services available throughout the City, i.e., parks and recreation, library, and
public transit, that can or are used by non-residents. In addition, the City participates in
mutual aid for fire protection, with the Placer County Fire Department maintaining a high
level of service delivery for residential uses (primarily medical assistance) and the myriads
of business types within the area. When looking at the potential for service delivery, CKH
points the affected LAFCO to a multi-function entity as the preferred service choice. This is
expressed as follows:
Excerpt from Government Code Section 56001: “…The Legislature finds and declares
that a single multipurpose governmental agency is accountable for community service
needs and financial resources and, therefore, may be the best mechanism for
establishing community service priorities especially in urban areas…”
For this general area, the statutes would direct the LAFCO to look to the City of Roseville as
the ultimate service provider. The theory of this choice is sound; however, the timing does
not lend itself to this direction for the entirety of the west Placer area. The die has been cast
for developing the Dry Creek West Placer area by developing specific plans and actions
taken by the Public Utilities Commission to define certificated service areas. The following
provides a more definitive look at these areas.
While approved, the Regional University Specific Plan has not shown much development
activity. Currently, much of its territory is a part of the Sacramento Municipal Utility District
(SMUD) Country Acres solar project, which has an anticipated lifespan of 30 to 50 years.
The need to discuss municipal service delivery to this area is not currently a priority.
However, a sphere of influence expansion to include this area within the City’s sphere of
influence would point toward the ultimate delivery of City service to the area when
development commences.
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The necessary planning for extending infrastructure and facility location design could be
addressed throughout the City. It would also preclude the elimination of the City as a
service provider as has occurred through the development of the Placer and Riolo
Vineyard Specific Plans using a private enterprise to provide the services, such as a private
water company, a private electrical provider, etc. The review of current service
capabilities for the City of Roseville showed the capacity to expand its services when
called upon to serve additional territory. Therefore, it is proposed that the sphere of
influence be expanded to include the area westerly of the City, north of the PUC service
area of the CAL-AM water company, easterly of the County line, and southerly of the City’s
existing boundary in the Reason Farms area.
The MSR of 2017 had limited discussion of the west/southwest Placer unincorporated
planning efforts. Since the last MSR in 2017, considerable activity has occurred or is in the
planning process for the Placer Vineyards and Riolo Vineyards Specific Plans and the Dry
Creek West Placer community plan areas. The following map shows the level of
development activity within these areas:
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Figure 32: Placer County Projects:
Regional University, Placer Vineyards, Riolo Vineyard, And Dry Creek
The service providers within this area are outlined in the following figure, and the equivalent
providers within the City are shown.
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Figure 33: Service Provider Outline
Service Unincorporated City
Electricity PG&E Roseville
Placer County Fire (CSA 28
Fire Protection Roseville FD
improvement zones)
Police Protection County Sheriff/CHP Roseville PD
County of Placer (utilization
Library Roseville
of Roseville facility)
Natural Gas PG&E PG&E
Placer County Parks, Trails,
Parks and Recreation Roseville
and Open Space
South Placer Wastewater Roseville/South Placer
Recycled Water
Authority Wastewater Authority
Solid Waste Waste Management Inc Roseville
Streetlighting and County of Placer Road
Roseville
Maintenance Maintenance
South Placer Wastewater Roseville/South Placer
Wastewater Services
Authority Wastewater Authority
California American Water Roseville/Placer County
Water Company/ Placer County Water Agency/ San Juan
Water Agency Water District
Placer County Flood Roseville/Placer County
Flood Control/Drainage
Control District Flood Control District
City of Roseville—regional
Transit Roseville
authority
The areas of Placer Vineyards and Riolo Vineyards currently receive their domestic water
from the California American Water Company (Cal-Am) and PG&E for electricity through
the certificated service areas as determined by the Public Utilities Commission (PUC). State
law precludes the duplication of service lines between public and private water entities, so
there would be no transition to Roseville service for the bulk of the area should a potential
annexation occur. The map of the Cal-Am service area is shown in the following figure:
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Figure 34: Cal-Am Service Area
However, it was noted during the on-site visit with the utility department that there are 17
interconnections for service outside the City limits, some of which are emergency interties.
The question was posed as to whether there were contracts in place for these services, to
which the response was in the affirmative except in one instance. Government Code
Section 56133 specifies the requirements for extension of service by an agency outside its
boundaries, which read in part:
(a) A city or district may provide new or extended services by contract or agreement outside its
jurisdictional boundary only if it first requests and receives written approval from the commission
of the county in which the affected territory is located.
(b) The commission may authorize a city or district to provide new or extended services outside
its jurisdictional boundary but within its sphere of influence in anticipation of a later change of
organization.
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Placer LAFCO has not adopted policies for implementing the provision of GC 56133. Still, a
strict interpretation of the law would limit future connections to existing city facilities in the
eastern portion of Dry Creek West Placer community plan area and the City's existing
sphere of influence without LAFCO approval.
While the expansion of the City’s sphere and the probable annexation may not appear to
be on the horizon, there are other mechanisms available to address service delivery that
may be feasible. Cities and counties can no longer afford to be at odds on delivering
services to their respective communities and must look to all methods that allow for the
most cost-effective, efficient, and sustainable service delivery pattern.
While not a function of this MSR, fire protection is a critical component of service for Placer
County. At present, there is a county fire station in the eastern area of the Dry Creek West
Placer Community Plan area. Based on the area's development, an additional facility will
be needed. To improve and/or maintain the level of service as the area's development
progresses, there is the potential to look at a functional consolidation of this service through
a contract with the City of Roseville. This could include collaboration on the siting of future
facilities to serve the County/City area the best. Inclusion within the City’s sphere of
influence would have the potential to support this effort. It could be envisioned that such
discussion could occur as a part of the 2026 reopener of the sales tax payment agreement
with the County.
There is another element of consideration for the west/southwestern unincorporated area
which is the County’s Placer County Conservation Program (PCCP). This plan is intended to
provide a framework to “protect, enhance, and restore the natural resources in specific
areas of western Placer County.” It operates as a regional Habitat Conservation Plan. As
shown on the map below, future growth areas are defined for the unincorporated areas.
While the City of Roseville has not opted into this program, its permittees developing within
the city may use the plan's resources, and the plan's land use definitions further
concentrate urban development closer to the existing city.
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Figure 35: Future Growth Areas Defined for Unincorporated Areas
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Determination
• The City of Roseville and the County of Placer are encouraged to discuss the
potential for functional consolidation of services within the sphere expansion area as
part of the re-opener clause of the Revenue Sharing Agreements signed in 2011,
which is anticipated to occur during 2026.
• Placer LAFCO is encouraged to develop policies related to implementing
Government Code Section 56133 out-of-agency service agreements to address
new extensions/connections to existing infrastructure and grandfather in existing
contracts.
• Placer LAFCO is encouraged to develop policies related to implementing 56134 fire
protection contracts to address any potential functional consolidation of fire
protection/emergency medical response services in the Dry Creek West Placer
community plan area.
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ISLAND AREAS WITHIN EXISTING SPHERE OF INFLUENCE
The existing sphere of influence for the City of Roseville includes five areas along its
southern boundary adjacent to the County line, which would qualify as “island” areas
under existing statutes. These areas are shown in the following map.
Figure 36: City of Roseville—Existing Spheres of Influence
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Many of these areas pre-date the requirements within CKH for spheres of influence, having
existed since the 1960s. These areas have been a part of the City’s sphere of influence
since its adoption but are not currently a part of the City’s General Plan or other service-
related master plans. The acreage of these areas has been identified by the City GIS as
follows (going from east to west):
Annabele Tract 375 acres
Livoti Tract (2 areas) 130 acres
Booth Road 144 acres
PFE Road 142 acres
Since the enactment of the Knox-Nesbitt Act (1963), which set forth the creation of
LAFCOs, islands of unincorporated territory surrounded by city boundaries have been a
concern as they result in illogical boundaries, as well as difficulty and confusion in the
delivery of municipal services from public agencies and for the public looking to receive
those services. Through the years efforts have been made to address this problem through
expedited annexation procedures to assist in removing these areas throughout the State.
These provisions include eliminating protest procedures under certain circumstances and
have existed since 1977. That said, there remains reluctance and resistance to using these
procedures by cities due to the elimination of protests and how the residents of these areas
perceive that.
Placer LAFCO has not adopted procedures related to implementing Government Code
Section 56375.3 (island annexation), though its policies addressed the denial of the
creation of new island areas. The statutory provisions specify that should an area meet the
criteria within the statute, the ability of protest by either landowner or registered voters
would be eliminated. The criteria are:
• The area must be less than 150 acres.
• It must constitute the entirety of the island; and,
• It must be substantially surrounded by the City or by the City and adjacent cities or
the County line.
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The statute does not define “substantially” leaving that to each LAFCO to determine based
upon local conditions and preferences. Without such a policy declaration, the Livoti areas
individually would qualify for annexation through these expedited procedures. If the
standard definition of substantial is used (substantial in quantity), then Booth Road Island
would qualify as the estimate because it is more than 75% surrounded by the City. The
Annabele Tract is too large to be processed under the island provisions (limitation 150
acres) excluding protest, but should annexation of the area be initiated by a resolution of
the City of Roseville, the Placer LAFCO would be unable to deny the proposal based upon
its existence as an island under the provisions Government Code Section 56375(a)(4). The
PFE Road sphere territory is surrounded by unincorporated territory and does not qualify for
either island procedure.
These island areas already receive service from the City through its water department,
sewer service through the South Placer Wastewater Authority (with the wastewater treated
by the City of Roseville), fire protection, and emergency medical response (Roseville
Stations 1, 3, and 4) as automatic and mutual aid in support of Placer County Fire Station
100 and South Placer FPD Station 15. The ultimate inclusion within the City would clarify the
service boundaries, eliminate response confusion, and improve police, traffic, fire
protection, and emergency medical response times.
Determination
• Placer LAFCO and all cities with such areas should develop policies related to
encouraging the annexation of the island areas.
• Discussions between Placer LAFCO, the City of Roseville, and the County of Placer
Administration should be undertaken to develop a methodology to address these
islands and the property tax allocation process and achieve service improvements
for the area.
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Section III:
FEASIBILITY ALTERNATIVES
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FINDINGS
Throughout this Municipal Services Review, our team identified vital findings highlighting
some of the strengths and challenges of the City's service delivery. The review reveals that
Roseville excels in providing reliable and high-quality municipal services, demonstrating
effective resource management and a solid commitment to public welfare.
However, the report also identifies areas requiring attention to support the City's growing
population and economic development. These findings provide a critical foundation for
future planning and decision-making, ensuring that Roseville can continue to deliver
exceptional services while adapting to emerging needs and challenges.
• Overall City Governance: The City maintains an effective governance model that
encourages accountability and openness.
• Management Effectiveness: City and departmental leadership consistently employ
the best management practices in providing services.
• Water Supply: The City has adequate water and treatment capacity to meet its
current and future needs. The City currently provides a modest water supply to
customers outside the City limits. The City can supply additional water to outside
customers, but that should be done only after carefully reviewing existing water
contracts to ensure existing contract terms are not violated. AP Triton recommends
that the City of Roseville consult with PCWA regarding the delivery of treated and
untreated water to areas outside the City's current limits but within its proposed
sphere of influence. This consultation is particularly crucial for areas outside the
existing CAL-AM certificated service area.
• Wastewater: The City has adequate wastewater collection and treatment facilities
to meet its current and future needs. If needed, the City could provide wastewater
treatment to surrounding areas, but the cost of installing a collection pipe would
limit that opportunity.
• Solid Waste Collection: The City has an adequate collection fleet to meet its current
needs. Future City expansion will provide future collection fleet expansions. The
upcoming $120 million expansion of the Material Recovery Facility will offer great
opportunities for processing waste from surrounding areas. The current landfill
capacity is projected for approximately 30 years.
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• Parks and Recreation: For a city of its size, the City has a robust offering of parks,
facilities, and recreational opportunities. Approximately one-third of parks and
recreation users are non-residents. The department and its services are well-
positioned to expand as the City grows.
• Library Services: The City’s library services collaborate extensively with other libraries
and agencies in Placer County and northern California. The library offers its
customers various traditional and contemporary services to meet the needs of the
clientele of all ages, with the capacity to grow as needed.
• Stormwater: The City’s stormwater management effectively meets its current needs.
Future growth is anticipated to have its stormwater needs met as well. The potential
for serving outside areas must be studied and engineered case-by-case.
• Street Maintenance: The current street maintenance needs are being met, and the
City is maintaining its targeted Pavement Quality Index. Providing services to
surrounding areas is possible but probably not practical. Maintenance costs
increase quickly as the coverage area expands.
• Public Transit: The City’s current public transit needs are being met through several
route-based and on-call services, both within the City, in the County, and to
Sacramento (commuter service). Public transit services have excess capacity, as
ridership has not yet returned to pre-COVID levels. The City’s transit fleet is
transitioning to an eventual 100% electric fleet, with a new charging facility being
constructed at the City Maintenance Yard.
• Electric Utility: The electric utility has sufficient electricity supply and infrastructure to
meet the City’s current and future needs. It also has mutual aid agreements to
provide assistance and power in emergencies. However, it is unlikely that the
electric utility will provide regular service to areas outside its existing service area, as
other electric utility providers are protective of their service areas.
• Law Enforcement: The Police Department is structured to fulfill the City's law
enforcement needs, comprising units for special operations, investigations,
community services, and professional services. Currently, the department maintains
a staffing ratio of 0.95 sworn officers per 1,000 residents. However, there is a
recognized need to increase this ratio to 1 officer per 1,000 residents to better serve
the community and enhance public safety for any expansion in the future.
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• Animal Control: The City’s animal control services fall under the law enforcement
sphere of influence. They meet the City's current needs and operate in conjunction
with the SPCA for shelter services and with veterinarians for veterinary services.
Animal control provides some limited service outside of city limits, but given current
staffing and shelter limitations, there is only limited capacity to provide service
beyond existing borders.
• Fire Department: This MSR did not specifically include an evaluation of fire protection
and emergency medical response in its data analysis. This analysis is being
completed concurrently in a separate countywide Fire MSR and SOI Update.
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OPPORTUNITIES FOR ENHANCED SERVICES
During this analysis, our teams investigated a range of opportunities to enhance services
both within the current sphere of influence and through its expansion. We evaluated
several alternatives, including potential contractual relationships, administrative
consolidations, and reorganization options, to assess their feasibility, effectiveness, and
potential for cost savings. The primary focus was to identify strategies that could improve
service efficiency, reduce redundancies, and optimize resource utilization. Through this
process, three specific areas were identified and are discussed below:
• Solid Waste Collection. With the planned $120 million expansion of the Material
Recovery Facility, there is an excellent opportunity to expand the overall volume of
recyclable material processed by the City and the array of recycled materials by
installing improved sortation lines. In addition to the facility expansion, success in
increasing recycled material volume will also rely on citizens being educated on
and then practicing new at-home material sortation. The increased capture of
materials diverted from the landfill not only increases recycling revenue at the time
of collection but also extends the landfill's life and defers needed investment in
landfill expansion and transportation costs.
• Public Transit. An excess in ridership capacity currently exists because ridership
continues to be down from the pre-COVID-19 pandemic era. Investing in updated
ridership studies may reveal opportunities to shift rider capacity from underutilized
routes to other ridership options, such as the popular Arrow on-call rider service.
• Street Maintenance. AP Triton recommends the Public Works Department seek out a
demonstration of an all-in-one pothole patcher truck to assess its viability for their
street maintenance operation. These trucks reduce the time and effort in filling
potholes and performing other asphalt repairs using permanent cold mix patching
material in a one-pass process. There may be an opportunity to increase the speed
at which pothole repairs are made and reduce repair costs.
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Section IV:
MUNICIPAL SERVICE REVIEW
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SUMMARY OF DETERMINATIONS
Growth and Population Projections
Roseville’s business community is strong and well-positioned for the future. Roseville is
situated along Interstate 80, a major trans-continental interstate, and is less than two hours
from ports along the California coast. Roseville is also home to Union Pacific’s J.R. Davis Rail
Yard, the most significant rail yard west of the Rockies. It is estimated that 98% of all rail
traffic in the region travels through the 950-acre facility. These factors, plus proximity to
Sacramento’s two airports, provide Roseville with easy access to all forms of inter-model
commerce.
Out of a potential estimated labor force of 80,231 people aged 16 and over, Roseville has
a healthy 77,959 people employed in local jobs.
Figure 37: Top Ten Roseville Employers
# Employer Employee Range
1 City of Roseville 1,000–4,999
2 Pride Industries 1,000–4,999
3 Sutter Roseville Medical Center 1,000–4,999
4 Kaiser Permanente, Roseville 500–999
5 Costco 250–499
6 Keller Williams 250–499
7 Roseville Toyota 250–499
8 Save Mart Distribution Center 250–499
9 TASQ Technologies 250–499
10 Union Pacific Railroad 250–499
Employment in Roseville is largely dominated by the service and retail business sector,
though a broad cross-section of industries employs Roseville citizens locally.
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Figure 38: Business Sectors By Percentage Of Employees Within Roseville
# Sector %
1 Service Industries 40.5%
2 Retail Trade 30.2%
3 Finance, Insurance, and Real Estate 12.4%
4 Government 4.5%
5 Construction 3.7%
6 Wholesale Trade 2.5%
7 Manufacturing 1.8%
8 Transportation 1.7%
9 Agriculture & Mining 1.0%
10 Communication 0.8%
11 Utility 0.6%
12 Unclassified 0.3%
Total 100%
With projected population growth, Roseville’s housing market must keep pace. Since 2010,
a little over 9,200 new homes have been built and occupied in Roseville. That brings the
total number of housing units to 63,519, which is expected to grow to 67,654 by 2029. This
supports the estimated population growth pattern, suggesting that Roseville will continue
to experience steady growth from now through 2040.
Figure 39: Projected Population Growth, 2024–2040
Year Projected Population Growth Rate
2024 160,366 —
2026 169,068 5.4%
2028 175,715 3.9%
2030 183,361 3.7%
2032 189,007 3.6%
2034 195,654 3.5%
2036 202,300 3.3%
2038 208,947 3.3%
2040 215,594 3.2%
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The current population has outpaced previous growth estimates, which are also somewhat
conservative. The last 2017 MSR Report estimated the 2025 Roseville population to be
143,377; the current estimate of 160,366 exceeds that by almost 11%.5,6
Disadvantaged Unincorporated Communities
In 2012, SB 244 was enacted to address infrastructure deficiencies in Disadvantaged
Unincorporated Communities (DUCs), requiring cities, counties, and LAFCOs to identify and
analyze these areas. DUCs are inhabited areas with a median household income of 80% or
less of the statewide median. Around Roseville, developments like Placer Ranch and Placer
Vineyards do not qualify as DUCs due to higher incomes. Within Roseville's sphere of
influence, however, five unincorporated areas exist, four of which are islands but not DUCs.
Despite receiving city services, there is little interest in annexation from the City, as outlined
in interviews conducted with staff.
Present and Planned Capacity of Public Facilities
• Water Utility: Water supply and capacity are adequate for current and planned
growth. Opportunities for shared services may exist. Conveyance agreements and
LAFCO approvals should secure existing relationships with customers outside of city
limits. AP Triton recommends that the City of Roseville consult with PCWA regarding
the delivery of treated and untreated water to areas outside the City's current limits
but within its proposed sphere of influence. This consultation is particularly crucial for
areas outside the existing CAL-AM certificated service area.
• Wastewater Utility: Wastewater collection and treatment and capacity adequate
for current and planned growth.
• Refuse Collection: Refuse Collection needs are being met, and serving growth and
expansion should not be a problem. The planned expansion of MRF may create
opportunities for regional expansion.
• Parks and Recreation: Current facilities and programs are adequate and popular
with the residents. However, rapid growth in western Roseville increases the demand
for added programs and facilities in this area. About one-third of customers live
outside of the city limits.
5 With a stable housing market and a highly desirable site and situation for business, Roseville is well positioned
for continued growth.
6 Roseville’s business community experienced a dip during COVID-19, as did much of the nation. With
continued population growth and the advantages, the local business community has with Roseville’s location,
both business and population, should see steady future growth.
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• Stormwater: The stormwater system is adequate to meet current needs and
immediate growth. Any long-term expansion needs to be studied and engineered.
• Street Maintenance: Current maintenance levels are adequate and meet the City’s
goal for pavement quality. Additional resources are needed for long-term
expansion and growth.
• Public Transit: An array of transit services is provided to meet the needs of different
subsets of transit ridership. Additional services should be analyzed on a case-by-case
basis.
• Libraries: Library services meet the community’s needs. While opportunities for
additional services and educational opportunities are plentiful, rapid growth in
western Roseville continues to increase the demand for added library services in this
area.
• Electric Utility: The Electrical power supply and infrastructure are adequate to meet
the City’s current and future needs. However, due to the territorial protections of
surrounding electrical utilities, opportunities for expanding facilities outside the
current service area are unlikely.
The Police Department is organized to address the City's law enforcement requirements. In
addition to patrol duties, it includes a special operations unit, an investigations division, a
community services division, and a professional services division. Additionally, the
Department is also responsible for managing animal control, which is currently meeting
community needs and standards. The staffing ratio for the police department is 0.95 sworn
officers for every 1,000 inhabitants.
Financial Ability to Provide Services
• The City Council approved an FY 2024 Budget (all funds) of $783.9 million in
expenses, offset by $793.9 million in revenues. The City’s two largest revenue sources
are Taxes and Charges for Services. Property Tax revenues comprise nearly 9% of all
revenues, while Sales Tax accounts for just over 13%.
• The City operates electric, water, and wastewater utilities. Charges for services
associated with these utilities comprise 41% of all revenues.
• Major expense categories include Personnel Costs (35% of all expenses) and
Materials, Supplies, and Services (38%). The purchase of power and water for the
City’s utilities accounts for nearly $92 million (12% of all expenses).
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• Budgeted FY 2024 General Fund expenses are $229.3 million, offset by $231.7 million
in revenues. Taxes (Sales Tax and Property Tax) account for 75% of General Fund
revenues. Public Safety (Police and Fire) accounts for the most significant General
Fund expense (45% of General Fund expenses).
• The City has identified $484.5 million in capital improvement projects (CIP) over the
next five years (FY 2024 through FY 2028). The City’s Electric Utility projects account
for 30% of this total, while Public Works projects account for 34%. The City’s Enterprise
Funds fund 63% of CIP projects for this period.
• The City's debt has been reduced from $476.8 million in FY 20 to $297.2 million in FY
2024.
• The City has adopted fiscally prudent reserve policies, establishing targeted levels of
General Fund reserves, equating to 25% of the annual General Fund operating
budget. The City complies with this policy and currently has fully funded reserves.
Status and Opportunities for Shared Facilities
• Water Utility: Currently, it has 17 points of interconnection to customers outside the
City limits. While capacity may exist to serve additional areas, expansion of service
area opportunities may be limited by use restrictions contained in water contracts.
AP Triton recommends that the City of Roseville consult with PCWA regarding the
delivery of treated and untreated water to areas outside the City's current limits but
within its proposed sphere of influence. This consultation is particularly crucial for
areas outside the existing CAL-AM certificated service area.
• Wastewater Utility: It is currently operating under a Joint Powers Agreement with the
South Placer Wastewater Authority. When considering expansion, increased
regulatory requirements must be considered.
• Refuse Collection: Planned expansion of MRF may create opportunities for regional
expansion and economies of scale.
• Parks and Recreation: Currently about one-third of customers are citizens from
outside of the City limits. That ratio of shared use is not expected to change anytime
soon. When and where appropriate, fee structures should reflect resident versus
non-resident rates.
• Stormwater: No opportunities for shared facilities were identified.
• Street Maintenance: No opportunities for shared facilities were identified.
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• Public Transit: Current shared facilities include an operating agreement with South
Placer Transit, commuter service to Sacramento, and non-resident use of city bus
routes. Additional shared services to be analyzed on a case-by-case basis.
• Libraries: Current shared services include those with Placer County in the West
Roseville unincorporated area, the NorthNet Library System Consortium, and cross-
lending with 41 other northern California libraries. Opportunities for additional shared
facilities are abundant.
• Electric Utility: Opportunities for shared facilities are unlikely except for mutual aid in
emergencies.
• Police Department: The Roseville Police Department collaborates closely with other
agencies to enhance public safety and community engagement. This collaboration
involves sharing information, resources, and expertise with local, state, and federal
law enforcement agencies, as well as with other public safety organizations. The
department's proactive approach includes participating in joint task forces,
coordinating with regional emergency response teams, and engaging in mutual aid
agreements. These partnerships enable the department to address complex issues,
such as significant investigations, disaster response, and cross-jurisdictional crime
prevention. Through these cooperative efforts, the Roseville Police Department
maximizes its ability to protect life and property, prevent crime, and maintain public
order while ensuring they are responsive to the community's needs and
expectations.
• Animal Control: Contracts for sheltering and veterinary services with SPCA and local
veterinarian services.
Government Structure and Accountability
The City operates as a Council-Manager form of government. The City is governed by a
City Council of five members, elected by district to 4-year terms. The Mayor and Vice
Mayor positions are served on a rotational basis by Council District number. The City
Council appoints the City Manager and City Attorney. The City Manager serves at the
pleasure of the City Council and serves as the Chief Executive Officer of the City,
overseeing 14 operational departments. The City is a full-service city that provides its
citizens with a full array of services.
Accountability is maintained through intentionally maintained transparency, including
open public access to City Council meetings and online availability of budgetary and
financial reports. Publish business metrics, workload indicators, and best management
practices also maintain it.
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Other Matters Related to Effective Service Delivery
Adequate financial allocations and reserves must be maintained to preserve service levels
and protect against the impacts of economic downturns.
Revenue growth from sales tax continues but is slower than immediately after the
pandemic rebound. General Fund sales tax revenue, including Measure B sales tax
revenue, increased by 22% from FY 2020 to FY 2021, 12% from FY 2021 to FY 2022, and
flattened out (less than 1% increase) from FY 2022 to FY 2023. As this is a significant General
Fund revenue source (39% of General Fund revenues), flattening revenues may make it
challenging to keep pace with increasing expenditures, especially in categories such as
personnel costs. Property tax revenues have increased due to higher home prices,
continued development, a competitive housing market, and the ability for residents to
work remotely. Property Tax revenues in the General Fund have increased steadily,
approximately 8–9% annually from FY 2020 through FY 2024.
Roseville has experienced underspending in its General Fund. They have attributed this to
staff employing a high level of scrutiny in purchasing decisions in all economic
circumstances. Additionally, there are significant savings in personnel costs each year. This
helps create a General Fund surplus, which can be applied to reserves and/or unfunded
one-time projects.
Roseville continues to attract manufacturing industries, including vehicle technology and
medical devices. Over the last year, Roseville’s manufacturing industry grew by 17.9% to
approximately 2,900 jobs. Additionally, global semiconductor manufacturer Bosch has
completed the acquisition of assets of TSI Semiconductors, based in Roseville, representing
an investment of roughly $1.5 billion. This investment will bring additional jobs and a
significant economic impact to Roseville and the region.
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SPHERE OF INFLUENCE UPDATE
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EXECUTIVE SUMMARY
Sphere of Influence Recommendations
Based on the municipal service review (MSR) approved by Placer County Local Agency
Formation Commission on February 19, 2025, the City of Roseville's sphere of influence
should be expanded to include the unincorporated areas to the west and southwest of the
City’s existing boundaries – To the west to allow the City to plan the service needs of the
region through annexation; to the southwest to enable the City and service providers to
address the sustainability of service delivery through the potential for functional
consolidation and contracts for service.
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SPHERE OF INFLUENCE RECOMMENDATIONS
A sphere of influence is defined by the Cortese-Knox-Hertzberg Local Government
Reorganization Act of 2000 (CKH) as a plan for the probable physical boundaries and
service area of an agency as defined by the local agency formation commission (LAFCO).
It is the tool the Commission uses to fulfill its statutory obligations for “planning and shaping
the logical and orderly development and coordination of local governmental agencies to
advantageously provide for the present and future needs of the county and its
communities.” The sphere of influence determination is the sole responsibility of LAFCO. It is
the Commission that must determine that the information being evaluated complies with
CKH and local policy. LAFCO is statutorily required to consider and prepare written
statements regarding the five factors outlined in CKH section 56425(e).
6. The present and planned land uses in the area, including agricultural and open-
space lands.
7. The present and probable need for public facilities and services in the area.
8. The present capacity of public facilities and adequacy of public services the
agency provides or is authorized to provide.
9. The existence of any social or economic communities of interest in the area if the
Commission determines they are relevant to the agency.
10. For an update of a sphere of influence of a city or special district that provides
public facilities or services related to sewers, municipal and industrial water, or
structural fire protection that occurs pursuant to subdivision (g) on or after July 1,
2012, the present and probable need for those public facilities and services of any
disadvantaged unincorporated communities within the existing sphere of influence.
Each LAFCO has policies and procedures related to spheres of influence that reflect local
circumstances and conditions. Placer LAFCO has established policies and procedures that
relate to defining the sphere of influence and reflecting local conditions. Those that are
specifically relevant to this sphere of influence update are:
• The Commission has established priorities for the urbanization of lands within and
adjacent to cities.
• Growth should be evaluated in relation to remaining land within the City for
development purposes.
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• Expansions of city spheres of influence shall be discouraged if sufficient land exists
within the existing city sphere of influence.
The sphere of influence for the City of Roseville was last updated in 2017 following a
municipal service review. The following figure identifies that sphere of influence.
Figure 40: City of Roseville—2017 MSR Study Area
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Determination
• The sphere of influence for the City of Roseville should be expanded to include the
area identified as the Curry Creek Community Plan, which includes the Regional
University Specific Plan. This will allow the City to prepare its infrastructure extension
plans in accordance with service needs based on the development plans
associated with the City. The City staff has identified that there is sufficient expertise
and capacity to address service needs for the future.
• The City of Roseville's sphere of influence should be expanded to include the Dry
Creek West Placer community plan area, which also includes the Placer Vineyards
and Riolo Vineyards Specific Plans. This will allow the agencies to review service
efficiencies and sustainability options between the City and County service
providers.
Sphere of Influence Update
The City of Roseville's sphere of influence was updated during the 2017 municipal service
review process to include the Amorusa Specific Plan area, and the balance of the sphere
of influence was confirmed. However, the annexation of the Amorusa Specific Plan in 2018
constrained the Roseville sphere of influence to the island areas along its southern border.
Recommended SOI
The 2025 MSR shows that the City of Roseville is exceptionally well-run, providing
transparency with its residents and addressing service impacts sustainably. Having
reviewed the policies of Placer LAFCO and the urbanization of the areas surrounding the
City through County planning, it is recommended that the City’s sphere of influence be
expanded to include the Curry Creek and Dry Creek West Placer community plan areas
while omitting portions of the Placer County Conservation Program (PCCP) Reserve
Acquisition Area as shown in Figure 41 on the next page.
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Figure 41: Recommended SOI Expansions—Curry Creek & Dry Creek West Placer
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Proposed SOI Determinations
As required by statute, the following address the sphere of influence expansion
determinations:
Determination #1: The present and planned land uses in the area, including
agricultural and open-space lands.
To the west of the City of Roseville boundary is unincorporated, primarily vacant land.
However, this area is currently being developed as a solar farm as an interim land use until
the Regional University Specific Plan is developed. The area to the southwest within Placer
County is unincorporated with rural/suburban development, which is transitioning through
the development of the Placer Vineyards and Riolo Vineyards Specific Plans. A review of
the land use plans associated with the Regional University Specific Plan within the Curry
Creek community plan area and the Placer Vineyard and Riolo Vineyard specific plans
within the Dry Creek West Placer community identifies that urbanization will occur within
the planning zones. The PCCP specifies the areas to be retained for preservation in open
space and agriculture and those proposed for potential growth. The land use plans by the
County of Placer have identified the full range of urban, suburban, and rural land uses
within the unincorporated area surrounding the City of Roseville to the west and southwest.
The following figures illustrate the anticipated and occurring development levels.
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Figure 42: Placer County Projects—Anticipated & Occurring Development Levels
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Figure 43: Specific Plan Land Use Determinations
Number of Estimated
Name of Specific Plan Adoption Date Residential Population
Units at Buildout
Placer Vineyards July 16, 2007 14,340 38,431
Regional University 2008/amended 2019 4,387 11,757
Riolo Vineyards 2009/updated 2015 933 2,500
Placer Ranch 2019 5,636 15,104
Projects in Dry Creek Community
Various 2,422 6,491
Plan not in a Specific Plan
TOTAL 27,718 74,283
These land use determinations will not change because of the sphere of influence
amendment; the County shall retain land use control until an annexation of the area is
approved.
Determination #2: The present and probable need for public facilities and services
in the area.
Based on the range of land uses associated with the sphere of influence expansion, the
present and probable need for a full range of municipal-level services will remain acute.
The service evaluations presented in the recently approved 2025 MSR have clearly
identified the City's service capabilities.
Determination #3: The present capacity of public facilities and adequacy of public
services that the agency provides or is authorized to provide.
The City of Roseville is a full-service city providing the full range of municipal-level services.
The City of Roseville has demonstrated a commitment to maximizing the efficiency and
reach of its services through a culture of shared facilities and cooperative service delivery.
This culture is a testament to the City’s leadership and strategic vision, ensuring residents
receive high-quality services while optimizing resources. The following is a detailed
overview of the shared services within the City of Roseville:
• Public Transit: The City of Roseville excels in providing extensive public transit services
not only within its own boundaries but also to regional and commuter services
throughout Placer County and into Sacramento. This integrated transit network
enhances mobility for residents, reducing traffic congestion and promoting
sustainable transportation options.
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• Parks and Recreation: Roseville’s Parks and Recreation Department offers diverse
facilities and programs. These include park facilities, sports programs, and cultural
enrichment activities accessible to both residents and non-residents, albeit with
some variations in cost structures. The City has also established Joint Use Agreements
with School Districts and the Roseville Historical Society, further broadening the
scope and impact of its recreational services.
• Library Services: The City’s library services are bolstered through partnerships with
Placer County and the NorthNet Library System Consortium membership. This
consortium combines lending resources from 41 library systems across Northern
California, vastly increasing the available materials and resources for Roseville’s
residents.
• Water Supply: The City has adequate water supply and treatment capacity to meet
its current and future needs. The City currently provides a modest water supply to
customers outside the City limits pursuant to the City’s PCWA Middle Fork Water
Supply Contract. The City can supply additional water to outside customers, but that
should be done only after (1) reviewing the Roseville City Charter’s provisions on
water; (2) carefully reviewing existing water supply contracts to ensure terms are not
violated and for adequacy to meet the additional demand; and, (3) after
coordination with currently planned water purveyors, either Placer County Water
Agency, or California American Water Company, as appropriate to negotiate
changes to their water supply and infrastructure plans.
• Solid Waste Collection: The City’s solid waste collection operations are streamlined
through a Joint Powers Agreement with the Western Placer County Waste
Management Authority. This partnership enhances the efficiency of waste
management services and promotes sustainable waste disposal practices.
• Electric Utility: Joint Powers Agreements for emergency mutual aid support
Roseville’s electric utility services. These agreements ensure rapid response and
resource sharing during emergencies, maintaining service reliability and resilience.
• Animal Control: The City of Roseville contracts with the SPCA for sheltering services
and provides 24-hour veterinary and clinic services. This partnership ensures
comprehensive animal control and welfare services, addressing routine and
emergency needs.
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• Police Department: The Roseville Police Department exemplifies the City's
dedication to public safety and community engagement. The department’s
structure and operations are committed to proactive and responsive law
enforcement through various initiatives and specialized units. The department's
sworn officers, reserve officers, professional staff, and volunteers are dedicated to
protecting life and property, preventing crime, and maintaining public order.
• Fire Protection: The 2025 MSR did not specifically include an evaluation of fire
protection and emergency medical response in its data analysis. This analysis is
being completed concurrently in a separate countywide Fire MSR and SOI Update.
However, the City currently provides automatic and mutual aid into the sphere of
influence territory and the unincorporated areas to the west and southwest due to
the proximity of its stations.
It is important to note that not all City services can be extended to the proposed sphere of
influence. For example, the Electric Utility does maintain agreements for mutual aid in the
event of an emergency. Outside of those emergencies, however, the Public Utilities
Commission defines adjacent electrical power service boundaries and attempts to realign
service delivery areas are not likely to be successful. The same applies to the private retail
water purveyor California American Water Company in the unincorporated southwestern
area.
Determination #4: The existence of any social or economic communities of interest
in the area.
There are no distinct communities of interest within the proposed sphere of influence
expansion. However, all areas are included within Roseville zip codes and attend schools
associated with the City of Roseville.
Determination #5: The present and probable need of any disadvantaged
unincorporated communities for the city’s public facilities and services.
No DUCs are identified within or contiguous to the City of Roseville and its sphere of
influence.
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APPENDIX A: PUBLIC COMMENTS
PCCP Comments Document
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City of Roseville Comments Document
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PCWA Comments Document
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County of Placer Comments Document
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County of Placer Comments Response Document
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Western Placer Waste Management Authority (WPWMA) Comments
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PCCP Comments Document
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PCCP Comment Responses Document
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APPENDIX B: TABLE OF FIGURES
Figure 1: Roseville, California Study Area ......................................................................................... x
Figure 2: Historical Population Growth ............................................................................................. 7
Figure 3: Roseville Environmental Utilities Department—Water Utility Organization Chart..... 11
Figure 4: Roseville Environmental Utilities Department—Wastewater Organization Chart .... 13
Figure 5: Roseville Environmental Utilities Department—Water Services Organization Chart 14
Figure 6: Roseville Police Department Organizational/Hierarchical Matrix ............................. 15
Figure 7: Roseville Police Department Budget Snapshot ............................................................ 18
Figure 8: Police Department Operations Activities (Fiscal Year Ending June 30).................... 25
Figure 9: Annual Crime Statistics ..................................................................................................... 25
Figure 10: Police Department Staffing ........................................................................................... 27
Figure 11: Roseville Parks, Recreation, and Libraries Department Organization Chart .......... 29
Figure 12: Roseville Environmental Utilities Department—Wastewater Organization Chart .. 30
Figure 13: Roseville Public Works Department—Engineering/Street Maintenance
Organization Chart ................................................................................................................... 31
Figure 14: Roseville Public Works Department—Street Maintenance Organization Chart .... 32
Figure 15: Roseville Public Works Department—Alternative Transportation Organization
Chart ........................................................................................................................................... 33
Figure 16: Roseville Parks, Recreation, and Libraries Department Organization Chart .......... 34
Figure 17: Roseville Electric Utility Department Organization Chart .......................................... 36
Figure 18: Revenue—All Funds (In Millions) .................................................................................... 37
Figure 19: Expenses—All Funds (In Millions) ................................................................................... 39
Figure 20: Revenue—General Fund (In Millions) ........................................................................... 40
Figure 21: Expense—General Fund (In Millions) ............................................................................ 40
Figure 22: Revenues—Enterprise Funds (In Millions) ..................................................................... 42
Figure 23: Expenses—Enterprise Funds (In Millions)....................................................................... 42
Figure 24: CIP Project Estimates by Project Type (In Millions) ..................................................... 43
Figure 25: CIP Projects by Fund Type (In Millions) ......................................................................... 44
Figure 26: Debt by Category (In Millions) ...................................................................................... 44
Figure 27: Reserve Fund Balances (In Millions) .............................................................................. 46
Figure 28: City of Roseville Organizational/Hierarchical Matrix ................................................. 53
Figure 29: City of Roseville General Plan Land Use—Planning Areas ........................................ 61
Figure 30: Approved Units & Estimated Population Using 2.68 Persons Per Household .......... 62
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Figure 31: City of Roseville Regional Development Map ............................................................ 63
Figure 32: Placer County Projects: Regional University, Placer Vineyards, Riolo Vineyard, And
Dry Creek .................................................................................................................................... 66
Figure 33: Service Provider Outline ................................................................................................. 67
Figure 34: Cal-Am Service Area...................................................................................................... 68
Figure 35: Future Growth Areas Defined for Unincorporated Areas ......................................... 70
Figure 36: City of Roseville—Existing Spheres of Influence .......................................................... 72
Figure 37: Top Ten Roseville Employers .......................................................................................... 81
Figure 38: Business Sectors By Percentage Of Employees Within Roseville .............................. 82
Figure 39: Projected Population Growth, 2024–2040 ................................................................... 82
Figure 40: City of Roseville—2017 MSR Study Area ...................................................................... 92
Figure 41: Recommended SOI Expansions—Curry Creek & Dry Creek West Placer .............. 94
Figure 42: Placer County Projects—Anticipated & Occurring Development Levels .............. 96
Figure 43: Specific Plan Land Use Determinations ....................................................................... 97
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APPENDIX C: REFERENCES
California American Water Company Northern Division, Sacramento area:
https://www.amwater.com/caaw/resources/PDF/Customer-Service-Billing/Rates-
AL/Northern/Sacramento%20District%20Service%20Area%20Maps.pdf
City of Roseville Adopted Annual Budget FY2023–2024:
https://cdnsm5-
hosted.civiclive.com/UserFiles/Servers/Server_7964838/File/Government/Departments/Financ
e/Financial%20Transparency/Annual%20Budgets/FINAL%20Adopted%20Budget%20FY24%200
9-06-23-updated%20bookmarks.pdf
City of Roseville Adopted Annual Budget FY2024–2025:
https://cdnsm5-
hosted.civiclive.com/UserFiles/Servers/Server_7964838/File/Government/Departments/Financ
e/Budget/2025%20Budget%20Book%20-%20compressed.pdf
City of Roseville Financial Policies – July 1, 2024:
https://cdnsm5-
hosted.civiclive.com/UserFiles/Servers/Server_7964838/File/Government/Departments/Financ
e/Financial%20Transparency/Financial_Policies-Effective%20July%201,%202024.pdf
City of Roseville Police Department 2018 Annual Summary:
https://cdnsm5-
hosted.civiclive.com/UserFiles/Servers/Server_7964838/File/Government/Departments/Police
%20Department/About%20Roseville%20Police/PoliceAnnualSummary.pdf
City of Roseville Police Department 2019 Annual Summary:
https://cdnsm5-
hosted.civiclive.com/UserFiles/Servers/Server_7964838/File/Police/Community%20Services/Pol
ice_AnnualSummary_2019_updated.pdf
City of Roseville Police Department 2020 Annual Summary:
https://cdnsm5-
hosted.civiclive.com/UserFiles/Servers/Server_7964838/File/Government/Departments/Police
%20Department/Police_AnnualSummary_2020.pdf
City of Roseville Police Department 2021 Annual Summary:
https://cdnsm5-
hosted.civiclive.com/UserFiles/Servers/Server_7964838/File/Police/forms%20and%20reports/a
nnual%20summary/Police_AnnualSummary_2021.pdf
City of Roseville Police Department 2022 Annual Summary:
https://cdnsm5-
hosted.civiclive.com/UserFiles/Servers/Server_7964838/File/Police/forms%20and%20reports/a
nnual%20summary/Police_AnnualSummary_2022.pdf
City of Roseville Police Department 2023 Annual Summary:
https://cdnsm5-
hosted.civiclive.com/UserFiles/Servers/Server_7964838/File/Police/Community%20Services/Pol
ice_AnnualSummary_2023.pdf
City of Roseville Website Information:
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Municipal Service Review Placer County LAFCO
▪ Board & Commissions for City:
https://www.roseville.ca.us/cms/One.aspx?portalId=7964922&pageId=8541922
▪ City of Roseville Community Priorities Advisory Committee:
https://www.roseville.ca.us/cms/one.aspx?portalId=7964922&pageId=9731801
▪ City of Roseville General Plan and Development guidelines:
https://www.roseville.ca.us/government/departments/development_services/planni
ng/general_plan_development_guidelines
▪ City of Roseville GIS portal:
https://data-
roseville.opendata.arcgis.com/datasets/f121bcb860474b7c80ffbdddc30e1e1c/explo
re
▪ City of Roseville GIS portal – Annexations:
https://data-
roseville.opendata.arcgis.com/datasets/79b6b539683d43bda130adc95ac6cda3/expl
ore?location=38.749333%2C-121.275122%2C13.88
▪ City of Roseville Specific Plans, Planning Areas, and Development Agreements:
https://www.roseville.ca.us/government/departments/development_services/plannin
g/specific_plans_planning_areas
▪ City of Roseville Strategic Plan:
https://cdnsm5-
hosted.civiclive.com/UserFiles/Servers/Server_7964838/File/City%20Council/Council%2
0Goals/COR_StrategicPlan_2023_Web.pdf
▪ City of Roseville’s Vision:
https://www.roseville.ca.us/cms/one.aspx?portalId=7964922&pageId=8716669
▪ Publications:
https://www.roseville.ca.us/government/departments/public_affairs_communication
s/publications
▪ Utility Exploration Page:
https://www.roseville.ca.us/cms/one.aspx?portalId=7964922&pageId=8715907
Data USA - Roseville, CA Census Place:
https://datausa.io/profile/geo/roseville-ca/
Esri Business Analyst, US Bureau of the Census:
https://www.esri.com/arcgis-blog/products/esri-demographics/analytics/2020-census-data-
in-business-analyst/
Map of Placer County Fire Protection Providers:
https://www.placer.ca.gov/7648/PCFD-Jurisdictional-Map
Placer County Board of Supervisors Agenda Item for September 13, 2011, addressing Roseville-West
Placer Annexations, including attachments:
Attachment 1 - Map of Proposed Annexations Subject to Revenue Sharing Agreements
Attachment 2 - Resolution Authorizing Execution of Agreements and MOU
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Municipal Service Review Placer County LAFCO
Attachment 3 - Agreement Regarding Transfer of Property Tax Upon Annexation (Including
Exhibits A,B,C)
Attachment 4 -Agreement Regarding Transfer of Sales Tax Upon Annexation (Including Exhibits
A,B,C)
Attachment 5 - Memorandum of Understanding (Includes Map of Sphere of Influence
Adjustments • Exhibit 1)
Placer County Conservation Program:
https://www.placer.ca.gov/3362/Placer-County-Conservation-Program
Placer County General Plan and Specific Plans:
Riolo Vineyards:
https://www.placer.ca.gov/3339/Riolo-Vineyards-Specific-Plan
Placer vineyards:
https://www.placer.ca.gov/3563/Placer-Vineyards
Regional University:
https://www.placer.ca.gov/3340/Regional-University-Specific-Plan
Sunset Area Plan, including Placer Ranch Specific Plan
Placer County LAFCO: Maps of Cities and Special Districts
Placer County LAFCO - Municipal Service Review for the City of Roseville, dated December 13, 2017:
https://www.placer.ca.gov/DocumentCenter/View/7733/Final-Roseville-Municipal-Service-
Review-PDF
Placer County LAFCO: Policies Related to Spheres of Influence, Municipal Service Reviews
Report of the Commission on Local Governance for the 21st Century, January 2000, Growth Within
Bounds:
https://www.acgov.org/lafco/documents/GrowthWithinBounds.pdf
Roseville’s rise to ramping up on population encounters mixed feelings:
https://sacramento.newsreview.com/2022/05/10/rosevilles-rise-to-ramping-up-on-
population-encounters-mixed-feelings/
State of California Employment Statistics:
https://edd.ca.gov/
Taking Their Pulse: How The LAFCOs Implemented AB 2838 (Hertzberg, 2000):
https://sgf.senate.ca.gov/sites/sgf.senate.ca.gov/files/TakingTheirPulsePub.pdf
Union Pacific Railroad:
https://www.up.com/index.htm
Zip Code Mapping Roseville CA:
https://zipmap.net/California/Placer_County/Roseville.htm
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Setting a course for the future of
Placer County, its cities, and its special
districts.