City of Dorris Municipal Services Review and Sphere of Influence Update - April 2021

SISKIYOU LOCAL AGENCY FORMATION COMMISSION CITY OF DORRIS MUNICIPAL SERVICES REVIEW AND SPHERE OF INFLUENCE UPDATE APRIL 2021 C D ITY OF ORRIS M S R UNICIPAL ERVICES EVIEW AND S I U PHERE OF NFLUENCE PDATE Prepared for: Siskiyou Local Agency Formation Commission 806 South Main Street Yreka, CA 96097 Contact Person: Rachel Jereb, Executive Officer Phone: (530) 841-2100 Consultant: 901 East Main Street Visalia, CA 93292 Contact: Steve Brandt, Project Manager Phone: (559) 733-0440 Fax: (559) 733-7821 April 2021 © Copyright by Quad Knopf, Inc. Unauthorized use prohibited. Project #160369 SISKIYOU LOCAL AGENCY FORMATION COMMISSION Commissioners Deborah Baird, Chair, City Representative Gary Peery, Vice Chair, Public Member-at-Large Representative Nancy Ogren, Siskiyou County Representative Ed Valenzuela, Siskiyou County Representative Matthew Bryan, City Representative Alternate Commissioners Michael Kobseff, Siskiyou County Representative Michelle DeCausmaker, City Representative Laurel Harkness, Public Member-at-Large Public Representative Staff Rachel Jereb, Executive Officer Janine Rowe, Commission Clerk Legal Counsel William Carroll, Legal Counsel Consultant 901 East Main Street Visalia, CA 93292 © Copyright by Quad Knopf, Inc. Unauthorized use prohibited. Project # 160369 TABLE OF CONTENTS SECTION 1 - Introduction .............................................................................................................................. 1-1 1.1 - Role and Responsibility of Local Agency Formation Commission (LAFCo) ..................... 1-1 1.2 - Municipal Service Review Purpose .................................................................................................... 1-1 1.3 - Methodology and Approach .................................................................................................................. 1-4 1.4 - Public Review and Adoption Process ................................................................................................ 1-4 1.5 - Required Topic Areas of Analysis ....................................................................................................... 1-4 1.6 - Issues Analyzed ........................................................................................................................................... 1-6 1.7 - Background, Setting and History ......................................................................................................... 1-7 1.8 - Services Currently Provided .................................................................................................................. 1-7 1.9 - Determinations ........................................................................................................................................... 1-8 SECTION 2 - Growth and Population Projections ................................................................................. 2-1 2.1 - Historical Data and Population Projections .................................................................................... 2-1 2.2 - Planning Documents ................................................................................................................................. 2-2 2.3 - Planning Boundaries ................................................................................................................................. 2-3 2.4 - Annexations .................................................................................................................................................. 2-3 2.5 - Land Use ......................................................................................................................................................... 2-5 2.6 - Regional Housing Needs Allocation/Plan (RHNA/P) ................................................................. 2-6 2.7 - Anticipated Service Needs ...................................................................................................................... 2-6 2.8 - Determinations ........................................................................................................................................... 2-7 SECTION 3 - Disadvantaged Unincorporated Communities ............................................................ 3-1 3.1 - Determinations ........................................................................................................................................... 3-1 SECTION 4 - Present and Planned Capacity of Public Facilities and Adequacy of Public Services, Including Infrastructure Needs or Deficiencies ................................................................. 4-1 4.1 - Capital Investment/Improvement Program (2014-2019) ...................................................... 4-1 4.2 - Fire Suppression and Emergency Response Services ................................................................ 4-2 4.2.1 - Summary of Prior MSR Findings ....................................................................................... 4-2 4.2.2 - Current Conditions .................................................................................................................. 4-2 4.2.3 - Determinations ......................................................................................................................... 4-3 4.3 - Police................................................................................................................................................................ 4-4 4.3.1 - Summary of Prior MSR Findings ....................................................................................... 4-4 4.3.2 - Current Conditions .................................................................................................................. 4-4 4.3.3 - Determinations ......................................................................................................................... 4-6 4.4 - Parks and Recreation ................................................................................................................................ 4-7 4.4.1 - Summary of Prior MSR Findings ....................................................................................... 4-7 4.4.2 - Current Conditions .................................................................................................................. 4-7 4.4.3 - Determinations ......................................................................................................................... 4-7 i 4.5 - Road Maintenance ..................................................................................................................................... 4-8 4.5.1 - Summary of Prior MSR Findings ....................................................................................... 4-8 4.5.2 - Current Conditions .................................................................................................................. 4-8 4.5.3 - Determinations ......................................................................................................................... 4-9 4.6 - Flood Control/Drainage ....................................................................................................................... 4-10 4.6.1 - Summary of Prior MSR Findings .................................................................................... 4-10 4.6.2 - Current Conditions ............................................................................................................... 4-10 4.6.3 - Determinations ...................................................................................................................... 4-10 SECTION 5 - Financial Ability to Provide Services ............................................................................... 5-1 5.1 - City Budget .................................................................................................................................................... 5-1 5.1.1 - Rates and Fees ........................................................................................................................... 5-1 5.1.2 - Proposition 218 ........................................................................................................................ 5-2 5.1.3 - Opportunities for Rate/Fee Restructuring ................................................................... 5-2 5.1.4 - Determinations ......................................................................................................................... 5-2 5.2 - Status of, and Opportunities for, Cost Avoidance and Shared Facilities ............................ 5-3 5.2.1 - Determinations ......................................................................................................................... 5-3 5.3 - Accountability for Community Service Needs, including Governmental Structure and Operation Efficiencies ........................................................................................................................................ 5-4 5.3.1 - Organizational Structure ...................................................................................................... 5-4 5.3.2 - Practices and Performance .................................................................................................. 5-5 5.3.3 - Determinations ......................................................................................................................... 5-5 SECTION 6 - Sphere of Influence Review ................................................................................................. 6-1 6.1 - Sphere of Influence Overview ............................................................................................................... 6-1 6.2 - Present and Planned Land Uses ........................................................................................................... 6-1 6.3 - Present and Probable Need for Public Facilities and Services ............................................... 6-1 6.3.1 - Disadvantaged Unincorporated Communities ............................................................ 6-1 6.4 - Present Capacity of Public Facilities and Adequacy of Public Services .............................. 6-2 6.5 - Existence of Any Social or Economic Communities of Interest .............................................. 6-2 6.6 - Dorris Sphere of Influence Recommendations.............................................................................. 6-2 SECTION 7 - References .................................................................................................................................. 7-1 LIST OF FIGURES Figure 1-1 Regional Location .......................................................................................................................... 1-2 Figure 1-2 City of Dorris City Limits and Sphere of Influence .......................................................... 1-3 Figure 2-1 Existing Developed Areas within the Sphere of Influence ........................................... 2-4 Figure 3-1 Median Household Income (2019) ........................................................................................ 3-2 Figure 4-1 Fire Department Revenues and Expenditures .................................................................. 4-3 Figure 4-2 Police Department Revenue and Expenditures ................................................................ 4-5 Figure 4-3 Road Maintenance Revenues and Expenditures .............................................................. 4-9 ii LIST OF TABLES Table 1-1 Services Matrix within the City of Dorris .............................................................................. 1-8 Table 2-1 Historical Population Growth (1970-2030) ........................................................................ 2-2 Table 2-2 Dorris 2014-2019 Housing Allocation ................................................................................... 2-6 Table 4-1 2016-2019 Reported Crime Statistics (Category 1 Crimes) ......................................... 4-5 Table 4-2 Dorris Road Projects ...................................................................................................................... 4-8 iii Introduction SECTION 1 - INTRODUCTION 1.1 - Role and Responsibility of Local Agency Formation Commission (LAFCo) The Siskiyou Local Agency Formation Commission (LAFCo) is the oversight agency for special districts and cities within Siskiyou County. The role of LAFCo under the Cortese- Knox-Hertzberg Reorganization Act of 2000 is to oversee local agency boundary changes and to adopt spheres of influence for local agencies. Among the purposes of LAFCOs are the discouragement of urban sprawl and the encouragement of the orderly formation and development of local agencies. As such, LAFCo is considered the “watchdog” of local agencies by the State Legislature and is solely empowered with establishing spheres of influence that dictate the provision of future service delivery to orderly growth of that agency. Therefore, it is LAFCo’s responsibility to review the information available regarding services provided by an agency and make appropriate determinations that will establish future policy for future boundary decisions, such as annexations, for the corresponding jurisdiction. 1.2 - Municipal Service Review Purpose The Municipal Services Review (MSR) process is a comprehensive assessment of the ability of existing government agencies to provide services effectively and efficiently to residents and users. The form and content of the MSR is governed by requirements of the Cortese- Knox-Hertzberg Local Government Reorganization Act of 2000 (CKH Act) and the State of California’s Local Agency Formation Commission (LAFCo) MSR Guidelines published in August 2003. The CKH Act requires all LAFCos, including Siskiyou LAFCo, to prepare an MSR for each of its incorporated cities and special districts. The fundamental role of LAFCo is to implement the CKH Act by providing for the logical, efficient, and most appropriate formation of local municipalities, service areas, and special districts. These MSRs must be completed prior to, or in conjunction with, the update of a Sphere of Influence (SOI) or before LAFCo initiates any reorganization of district boundaries. This review is intended to provide Siskiyou LAFCo with all necessary and relevant information related to the operations and management of the City of Dorris (City). The City is located approximately two miles south of the California-Oregon border in northeastern Siskiyou County (see Figure 1-1 and Figure 1-2). The information in this report may be used in considering an update to the City’s SOI by Siskiyou LAFCo or for other policy related decisions related to the City. MSRs are intended to provide LAFCo with a comprehensive analysis of service provision by cities and other service providers within the legislative authority of LAFCo. The MSR focuses on service providers within the area of the City and will make determinations in each area of evaluation, providing the basis for Siskiyou LAFCo to review possible Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 1-1 Introduction Figure 1-1 Regional Location Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 1-2 Introduction Figure 1-2 City of Dorris City Limits and Sphere of Influence Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 1-3 Introduction amendments to SOI or possible reorganization, consolidation, or annexation with those other service providers. 1.3 - Methodology and Approach The process of developing the MSR began with a kick-off meeting to discuss the existing services provided by the City to its residents. Following the meeting, a comprehensive survey was sent to the City of Dorris staff. The purpose of the survey was to retrieve more specific and technical information regarding the City’s operations and delivery of its various services. The information requested included documents such as planning and budgetary documents, adopted budgets, Capital Improvement Programs, technical or special studies, and any other records related to the provision of municipal services by the City. 1.4 - Public Review and Adoption Process Two drafts of the MSR document will be presented to LAFCo. A first draft will allow for public comments and a final draft will be presented to the Commission for formal acceptance. The final draft will incorporate any/all revisions, corrections, and responses to comments received at the prior public workshop. 1.5 - Required Topic Areas of Analysis The MSR contains analysis and conclusions, referred to as determinations, regarding six topic areas set forth in the CKH Act. These areas of analysis contain the essential operational and management aspects of each service provider, and together constitute a complete review of the ability of the providers to meet the service demands of the residents and businesses within the City. The six topic areas used for analysis in this MSR are as follows: 1. Growth and Population Projections; 2. Disadvantaged Unincorporated Communities; 3. Present and Planned Capacity of Public Facilities and Adequacy of Public Services, Including Infrastructure Needs or Deficiencies; 4. Financial Ability to Provide Services; 5. Status of, and Opportunities for, Shared Facilities; and 6. Accountability for Community Service Needs, Including Governmental Structure and Operational Efficiencies. An explanation of the specific operational and management aspects considered in each of these topic areas is provided below. 1. Growth and Population Projections Service efficiency is linked to a service provider’s ability to plan for the future need of a city while also meeting existing service demands. This section reviews Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 1-4 Introduction projected service demands and needs based upon existing and anticipated growth patterns and population projections. This is found in Section 2. 2. The Location and Characteristics of any Disadvantaged Unincorporated Communities within or Contiguous to the Sphere of Influence Unincorporated disadvantaged communities, as defined by Water Code §79505.5, may lack basic infrastructure, such as water, sewer, or fire protection, because they may have been overlooked during the comprehensive land use planning process due to their socioeconomic status. To promote equality and environmental justice in accordance with adopted local policy and Senate Bill 244, which was adopted in 2011, the proximity of any disadvantaged community to existing service providers is analyzed and discussed in order to determine if the community should be included in the SOI of the City. This is found in Section 3. 3. Present and Planned Capacity of Public Facilities and Adequacy of Public Services, Including Infrastructure Needs or Deficiencies Infrastructure can be evaluated in terms of condition, capacity, availability, quality, and relationship to operational, capital improvement and finance planning. This section assesses the adequacy and quality of the service providers’ physical infrastructure and analyzes whether or not sufficient infrastructure and capital are in place (or planned for) to accommodate planned future growth and expansions. This is found in Section 4. 4. Financial Ability to Provide Services This section analyzes the financial structure and health of the City with respect to the provision of services. Included in this analysis is the consideration of rates, service operations, and the like, as well as other factors affecting the City’s financial health and stability, including factors affecting the financing of needed infrastructure improvements and services. Compliance with existing State requirements relative to financial reporting and management is also discussed. This is found in Section 5. 5. Status of, and Opportunities for, Shared Facilities Practices and opportunities that may help to reduce or eliminate unnecessary costs are examined in this section. Occurrences of facility sharing are listed and assessed for efficiency, and potential sharing opportunities that would serve to better deliver services are discussed. This is found in Section 5.2. 6. Accountability for Community Service Needs, Including Governmental Structure and Operational Efficiencies. This section addresses the adequacy and appropriateness of the agency’s existing boundaries and Sphere of Influence and evaluates the ability of the City to meet their service demands under their existing government structure. Also, included in Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 1-5 Introduction this section is an evaluation of compliance by the agency with public meeting and records laws. This is found in Section 5.3. 1.6 - Issues Analyzed The City of Dorris (City) is located in northeastern Siskiyou County approximately two miles south of the Oregon border, encompassing approximately 460 acres. The City was established in 1908 and is empowered to provide various municipal services, including the following, which will be addressed in this MSR: • Water Infrastructure; • Wastewater Infrastructure; • Storm Drainage; • Roadways; • Law Enforcement; • Fire Protection; • Parks and Recreation; and • City Hall. The preamble of the CKH Act contains several legislative findings and declarations that serve as a general guide for LAFCo's and their purpose for being. The first and main declaration is that: It is the policy of the State to encourage orderly growth and development, which are essential to the social and economic well-being of the State. The Legislature goes on to make further declarations in CKH Section 56001 about how the determination of orderly local government boundaries is important to orderly growth and development. The Legislature also makes the following declarations in 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. Nonetheless, the Legislature recognizes the critical role of many limited purpose agencies, especially in rural communities. The Legislature also finds that, whether governmental services are proposed to be provided by a single-purpose agency, several agencies, or a multipurpose agency, responsibility should be given to the agency or agencies that can best provide government services. The main purpose of this MSR is to review past findings, if available, for various City services and evaluate if the level of services currently being provided is operating at a level that is still encouraging orderly growth and efficient service delivery to residents of Dorris. Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 1-6 Introduction Once that is determined by LAFCo, then questions regarding SOI and boundary change recommendations can be answered. 1.7 - Background, Setting and History The City of Dorris is located two miles south of the Oregon border in northeastern Siskiyou County. The City encompasses an area of approximately 0.75 square miles with an average elevation of 4,245 feet above sea level. Dorris is located within Butte Valley, which was created by geologic activity that created a valley as a closed drainage basin. Dorris was established as a result of the railroad coming through the Butte Valley and was incorporated in 1908. The City is governed and directed by the City Council who work alongside staff. The local economy is primarily agriculture and ranching with some lumber and millwork. There is no significant manufacturing within the City and the major employers are federal, State, county, and local government agencies with operations in the area. 1.8 - Services Currently Provided Dorris directly provides the following services: administration, public works, and fire protection. City recreational facilities include a playground, picnic area and youth building, a park, two baseball fields, and tennis courts. Further description of each service and the extent of its current operations are included in Section 4 of this document. Other essential services provided to the residents of the City are overseen through various other agencies. These agencies fill voids in the municipal service needs of City residents where the City chooses not to or simply cannot provide an identified service. The other public agencies include the Siskiyou County Sheriff’s Department, California Department of Forestry and Fire Protection (CDF), the Pleasant Valley Fire Company, Butte Valley Fire Protection District, Tule Lake Fire Department, and the Butte Valley Ambulance Service. Table 1-1 illustrates the services provided in the Dorris area. The matrix specifies whether the services can and are being provided now or whether those services that are authorized but not being provided currently. Provides - means that the agency is authorized by LAFCo and State law to provide the service and that the service is currently being provided. These services may continue to be provided by the agencies at their discretion. Authorized - means that the agency is authorized by LAFCo and State law to provide the service, but this service is not currently being provided. Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 1-7 Introduction Table 1-1 Services Matrix within the City of Dorris Municipal Service Type Dorris Water supply Provides Water distribution Provides Sewer collection & disposal Provides Storm drainage Provides1 Flood control Authorized Street construction Provides Street maintenance Provides Street lighting Provides Street sweeping/snow plowing Provides Street landscaping Provides Solid waste collection, transfer & disposal Provides Police protection Provides2 Fire protection Provides3 Animal control Provides Parks & recreation Provides Airports Authorized Ambulance service Provides4 Emergency medical service Authorized Heat and power Authorized Undergrounding of overhead electrical & communication facilities Authorized Generate and sell electricity Authorized Community facilities Provides Television/Cable services Authorized Transportation Authorized Cemeteries Authorized Open space conservation Authorized 1.9 - Determinations Determination 1-1 – Siskiyou LAFCo has the authority to determine the SOI for the City of Dorris. Determination 1-2 - A single multipurpose governmental agency, such as a city, County Service Area, Public Utility District or Community Services District, is the preferred entity 1 The City has limited drainage systems because of the condition of the natural landscape and weather conditions. However, the City was given the responsibility of maintaining the systems put in place by the California Department of Transportation near U.S. Highway 97. 2 Police protection has been contracted out to the Siskiyou County Sheriff’s Department. 3 Mutual aid agreements have been created with the California Department of Forestry and Fire Protection (CDF), the Pleasant Valley Fire Company, Butte Valley Fire Protection District and Tule Lake Fire Department. 4 Ambulance services are provided to the City by the Butte Valley Ambulance Service. Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 1-8 Introduction by LAFCo and could be accountable for all community service needs and financial resources and, therefore, may be the best mechanism for establishing community service priorities especially in urban areas. Governmental services should be given to the agency or agencies that can best provide government services. Determination 1-3 - The City of Dorris is currently providing the following services: • Water • Wastewater • Administration Staff • Public Works • Fire Protection • Parks and Recreation • Law Enforcement • Solid Waste Disposal Determination 1-4 – The following services are currently provided by other agencies or private entities within or around the City of Dorris: • Fire Protection • Ambulance Services Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 1-9 Growth and Population Projections SECTION 2 - GROWTH AND POPULATION PROJECTIONS The purpose of this section is to evaluate service needs based on existing and anticipated growth patterns and population projections. The MSR Guidelines call for LAFCo to determine historic and projected growth and absorption patterns in relationship to a service provider’s boundaries and SOI. In addition, LAFCo is tasked with evaluating the impact and compatibility of such growth on and with land use plans, services, local government structures and growth patterns. 2.1 - Historical Data and Population Projections Historical population data and future projections have been obtained from the U.S. Census Bureau and the California Department of Finance (DOF). For analysis purposes, this data is compared to other source data relating to growth and population, including the City’s General Plan population projections. According to the CA Department of Finance, the City’s population as of 2020 is 996. Historical census data indicates that the City of Dorris had a population of 890 in 1990, 886 in 2000, and 939 in 2010. Per the DOF, the City experienced its most dramatic population growth between 1980 and 1990, but the population peaked in 2016. Per U.S Census Bureau, the City’s population, as of January 2019, was 908 (507 males and 401 females). The total number of housing units was 420, of which approximately 336 were occupied. The breakdown in household size is as follows: one-person household – 32.5%, two-person household – 26.2%, three-person household – 14.0%, and four or more- person household – 27.3%. The 2019 American Community Survey five-year estimates state that the median total household income is $31,318. Hispanic/Latino residents account for the largest non-white racial/ethnic group, with 36.1% of all residents claiming some degree of Hispanic race or Latino ethnicity. The City’s Hispanic/Latino population grew at a faster rate than all other populations, increasing from 15.2% from the population in 2000. Based on the General Plan, the City of Dorris is expected to have a stable population into the foreseeable future. The decrease in growth rate will likely lead to reduced pressure to build new parks and public facilities as a result of immediate or significant growth periods. Table 2-1 compares the City of Dorris’ population to the overall population of Siskiyou County for years 1970, 1980, 1990, 2000, 2010, 2015, and 2020. Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 2-1 Growth and Population Projections Table 2-1 Historical Population Growth (1970-2030) Dorris Siskiyou County Average Average Annual Annual Year Population Growth Rate Population Growth Rate 1970 840 33,224 1980 836 -0.48% 39,732 +19.59% 1990 890 +6.5% 43,300 +8.9% 2000 886 -0.67% 44,301 +2.3% 2010 939 +5.9% 44,900 +1.4% 2015 986 +5.0% 44,731 -0.37% 2020 996 1.0% 44,461 -0.60 Source: (Department of Finance) 2.2 - Planning Documents The following long-range planning documents have been adopted by the City: the Housing Element for the City of Dorris; and the City of Dorris General Plan of 2007. The City of Dorris plans for future growth through the implementation of policies and standards set forth in its General Plan. The General Plan is a long-term, comprehensive framework to guide physical, social, and economic development within the community’s planning area. The City of Dorris General Plan is a long-range guide for attaining the City’s goals within its ultimate service area and accommodating its population growth to the year 2030. The City of Dorris General Plan, adopted August 2007, coordinates all components of the City’s physical development, and sets objectives, policies and standards which guide future growth within the City’s planning area. Senate Bill 375 contained a statutory amendment providing an option to applicable transportation agencies to change the update schedules for the Regional Transportation Plan and Housing Element (HE). A Metropolitan Planning Organization (MPO) or Regional Transportation Planning Agency (RTPA) on a five-year Regional Transportation Plan (RTP) update schedule can elect to adopt its RTP every four years. After the election is made, all local governments within the region of the MPR or RTPA change from a five-year to an eight-year HE planning period beginning with the next HE update (Department of Housing and Community Development 2014). The Housing Element also needs to be reviewed and approved by the California State Department of Housing and Community Development (HCD). The City of Dorris Housing Element, while part of the General Plan, is separately bound and was last updated in 2014. The City’s General Plan provides the foundation and policy base to guide future growth within the City. Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 2-2 Growth and Population Projections 2.3 - Planning Boundaries The Dorris 1985 SOI is coterminous with the Dorris City limits. The area includes roughly 460 acres. The SOI lies within the boundaries of Picard Road to the northwest, North Street to the northeast, Center Street to the east, and East Sixth Street to the southeast. The SOI then extends beyond that, encompassing various undeveloped areas to the west. 2.4 - Annexations The City of Dorris has little potential to pursue annexations of land within the SOI. It is projected that most new growth in Dorris will occur within the existing City limits. There are three policies within the General Plan related to annexations: Policy LU-3.1: Promote infill to reduce the costly extension of services. Policy LU-3.2: The City shall not extend City services outside the City limits without an agreement to annex. Policy LU-3.3: As available housing and vacant land becomes limited, or if the City otherwise determines that expansion of the City limits is in the interest of the City, the City will consider annexations of lands adjacent to the City. Implementation Measure LU-3.3.1: As vacant land within the City becomes limited, the City may petition LAFCo to expand the City's SOI, as well as pursue annexation of land that can be readily served with City sewer and water, provided that the expansion of City services is consistent with the City's policies for annexation and expansion of municipal services. Implementation Measure LU-3.3.2: When consistent with the City's policies for annexation and expansion of municipal services, the City will work with owners of property adjacent to the City to 1) pre-zone the proposed annexation area for land uses that are compatible with adjacent uses that are already within the City limits, and 2) develop the necessary infrastructure plans to support annexation and community expansion. Land within the City of Dorris’ SOI boundary may be annexed into the City upon approval by the Siskiyou County LAFCO, thereby transferring land use authority for the land within the SOI from the County of Siskiyou to the City of Dorris. Based on past trends, the City is not expected to grow significantly through the addition of new territory to its boundaries in the coming years and, accordingly, major annexations are not anticipated. There are a few rural residences and farming operations outside the SOI which will likely have a need for municipal services in the future, but no extension or request has been made, according to the City. Existing developed areas within the existing SOI are shown in Figure 2-1. Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 2-3 Growth and Population Projections Figure 2-1 Existing Developed Areas within the Sphere of Influence Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 2-4 Growth and Population Projections 2.5 - Land Use The City of Dorris is located within northeastern Siskiyou County approximately two miles south of the Oregon border. The City is located along State Route 97 and is approximately 0.75 miles long from north to south and approximately one mile wide from east to west. The elevation of the City lies roughly 4,240 feet above sea level and lies on flat land (Pacific Municipal Consultants, 2011). According to the Census Bureau’s Annual Estimates for 2017, the City’s population is currently 939. There will need to be a slight increase in development, but the General Plan Land Use Element attempts to steer development towards infill locations wherever possible. However, no significant growth or significant change in land use is anticipated by the City. The predominant land use within the City is residential. Tourism and agricultural industry are the primary bases of the Dorris economy. The downtown area has some vacant land, with sites that are suitable for development of small commercial enterprises or expansion of existing businesses. The largest industrial establishment is Dorris Lumber and Moulding. Whitsell Manufacturing Company is located just outside of the City limits to the south. Approximately 42.4 acres are designated and zoned for industrial use in the City with an estimated 25.4 acres being vacant and available for development. The City’s General Plan Land Use Element outlines several policies relating to land management, and development within and surrounding the City. Some of these policies, which could be applicable to the SOI review and MSR process, are reiterated below. Policy LU‐3.1 Promote infill to reduce the costly extension of services. Policy LU‐3.2 The City shall not extend City services outside the City limits without an agreement to annex. Policy LU‐3.3 As available housing and vacant land becomes limited, or if the City otherwise determines that expansion of the City limits is in the interest of the City, the City will consider annexation of lands adjacent to the City. As prescribed by General Plan Policy, the City should review its current land use demand and supply. It is recommended that the City coordinate this process with the scheduled updates to its SOI. Following mid-term General Plan reviews of land demand vs. supply, it is recommended that the City determine the need to explore opportunities to adjust its SOI, if needed. The process should include public participation, and stakeholder workshops. Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 2-5 Growth and Population Projections 2.6 - Regional Housing Needs Allocation/Plan (RHNA/P) California's Housing Element Law (Government Code, §§ 65580 et seq.) mandates that a local jurisdiction develop and approve a Regional Housing Needs Allocation (RHNA) to accommodate a share of the region’s projected housing needs as part of the process of updating local housing elements of the general plan. HCD is responsible for allocating each region’s share of the statewide housing need to each of California’s Council of Governments (COG), who in turn allocate a share of the region’s housing needs to each of the cities and counties in the region for the planning period. In the case of Siskiyou County, which is a non-COG area, the Siskiyou County Community Development Department is responsible for allocating the RHNA to individual jurisdictions within the county, including Dorris. The 2014-2019 Regional Housing Needs Plan (RHNP) was adopted and submitted to HCD in July of 2012. The RHNP establishes the total number of housing units that the City of Dorris must plan for within a five-year planning period. Based on the adopted RHNP, each city and county must update the housing element of its general plan to demonstrate how the jurisdiction will meet the expected growth in housing need over this period of time. According to Table 2-2 from the City’s Housing Element, the City of Dorris will need 12 additional housing units based on the anticipated growth between 2014 and 2019. Of these 12 units, five of them must be designated for extremely low, very low, and low-income individuals. Table 2-2 Dorris 2014-2019 Housing Allocation Total # of Projected Extremely Very Low Low Moderate Above Units Needed Low Income Income Moderate Based on Growth Income 12 1 (8.3%) 2 (24.0%) 2 (24.0%) 2 (24.0%) 5 (41.7%) Source: City of Dorris Housing Element 2014-2019 2.7 - Anticipated Service Needs The potential for population growth for the City is very low. The City of Dorris General Plan Report directs development and growth to vacant lots within the City through goals and policies that promote infill development. As such, growth beyond the existing City limits of Dorris would seem to be limited until infill development has been exhausted. As a result, infill development would likely have many existing services within their immediate area such as streets, parks, lighting, or snowplow services. Other essential services, mainly sewer and water, are provided through the City’s Public Works Department. Furthermore, law enforcement and fire protection services would already be servicing any surrounding properties or those in proximity to the city limits through agreements with the County or other Fire Service providers and would already be aware that any new infill development within their jurisdiction could be covered. Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 2-6 Growth and Population Projections 2.8 - Determinations Determination 2-1 - U.S. Census data indicates that in 2000 the City had a population of 886, and a population of 908 in 2019. This trend suggests that the City’s population has grown at an annual rate of approximately 0.13% from 2000 to 2019. Determination 2-2 - Based upon historical population trends, at an average annual growth rate of 0.13%, Dorris’ 2040 population is projected to be 930. Determination 2-3 - The City plans for future growth through the implementation of policies and standards set forth in its General Plan. The City’s General Plan was updated in 2008 and is a long-range guide for attaining the City’s goals within its ultimate service area and accommodating its population growth to the year 2030. The City’s General Plan provides a policy base to guide future growth within the City. Determination 2-4 - Present land use in the area includes residential, recreational, commercial, and tourist-related uses. Primary residential areas tend to fall on the western side of Highway 97. Determination 2-5 - Present needs for public facilities and services are currently being met. Probable needs for public facilities and services are not currently anticipated to vary from present needs, as future demands are expected to remain relatively the same. No significant growth or population increases are currently anticipated to affect the City’s ability to provide services. The City does not have any major plans for future expansion of boundaries. Determination 2-6 - The City’s General Plan Report contains several policies that promote development on vacant and underdeveloped properties. Determination 2-7 – The City will likely accommodate future growth through infill development area, which are likely already served by the City or other local agencies that provide municipal services. Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 2-7 Disadvantaged Unincorporated Communities SECTION 3 - DISADVANTAGED UNINCORPORATED COMMUNITIES Disadvantaged Unincorporated Communities (DUCs) are defined as inhabited territory (12 or more registered voters) that constitutes all or a portion of a community with an annual median household income that is less than 80% (or $60,188) of the statewide annual median household income, which was $75,235 as of 2019 (United States Census Bureau , 2019). These communities were identified as an area of concern by Senate Bill 244 that was adopted into State law in 2011. These communities may lack essential municipal services such as water or sewer as they may have been developed prior to infrastructure being installed in proximity to them. Pursuant to State law, LAFCo is now required to identify any DUC adjacent to the City and determine if they should be included with any SOI amendment. All areas within the Dorris SOI that are outside the City limits are potential DUCs based on income. Although all areas within the SOI are eligible to have services extended because they are within the City limits as well, all areas within and outside the existing City limits have a median household income below $40,000 annually and can be classified as disadvantaged on the basis of income only (Figure 3-1). Therefore, based on the information available, it can be determined that, although this area meets the definition of a DUC as it pertains to income level, this community is currently receiving the identified services of water, wastewater, and structural fire protection. Therefore, there are not any areas within proximity of the City that should be considered a DUC. 3.1 - Determinations Determination 3-1 – There are areas currently within the City’s SOI that can be considered unincorporated disadvantaged communities due to median household income being below 80% of the statewide average. Determination 3-2 – Due to the identified areas being eligible to receive the essential municipal services of water, wastewater, and structural fire protection, there are not any communities within the existing SOI that may be considered a disadvantaged unincorporated community. Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 3-1 Disadvantaged Unincorporated Communities Figure 3-1 Median Household Income (2019) Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 3-2 Present and Planned Facilities and Services Capital Investment/Improvement Program (2014-2019) SECTION 4 - PRESENT AND PLANNED CAPACITY OF PUBLIC FACILITIES AND ADEQUACY OF PUBLIC SERVICES, INCLUDING INFRASTRUCTURE NEEDS OR DEFICIENCIES The purpose of this section is to evaluate the infrastructure needs and deficiencies of the City of Dorris in terms of availability of resources, capacity to deliver services, condition of facilities, planned improvements, service quality, and levels of service. LAFCo is responsible for determining that an agency requesting an SOI amendment is reasonably capable of providing needed resources and basic infrastructure to serve areas within the City and its SOI. It is important that these findings of infrastructure and resource availability are made when revisions to the SOI and annexations occur. LAFCo accomplishes this by evaluating the resources and services to be expanded in line with increasing demands. 4.1 - Capital Investment/Improvement Program (2014-2019) Many cities decide to pursue the development of a Capital Investment Plan/Program (CIP). This document would describe investments made by a city to grow funds or to provide services more productively. Strategic approaches are therefore taken to prioritize investment opportunities. Information regarding a City Capital Investment Plan/Program was provided for the years 2016 to 2018. Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 4-1 Present and Planned Facilities and Services Fire Suppression and Emergency Response Services 4.2 - Fire Suppression and Emergency Response Services 4.2.1 - SUMMARY OF PRIOR MSR FINDINGS The City of Dorris MSR from 2011 identified that the City was providing a wide range of services associate with fire protection. The Dorris Volunteer Fire Department is located at 309 South Main Street and consists of a fire hall with two engines and two pickup trucks. The Department had an active roster of 15 volunteer firefighters and was headed by a part- time paid Chief. The Dorris Volunteer Fire Department responds to structure fires, vegetation fires, automobile fires, traffic collisions, hazardous material spills, calls for medical assistance, general aid, and 911 calls. The Dorris Volunteer Fire Department’s jurisdictional boundaries are contiguous with the City limits. According to the Fire Chief, the Dorris Volunteer Fire Department responded to an average of 227 calls per year. Approximately 69% of all calls the Department responded to in 2009 and 2010 were medical related. The City of Dorris had an ISO rating of four as determined by the Insurance Services Office, Inc. 4.2.2 - CURRENT CONDITIONS Fire protection services are provided by the Dorris Volunteer Fire Department (DVFD), which is located at 309 South Main Street. The City funds Fire Department operations through the General Fund. However, the funding for the past three report years has averaged only approximately $32,114. Mutual Aid Agreements The City maintains mutual aid agreements with California Department of Forestry and Fire Protection (CDF), the Pleasant Valley Fire Company, Butte Valley Fire Protection District, and Tule Lake Fire Department. Needs and Deficiencies The City has identified a need to replace some fire hydrants within the Capital Improvements Program. These replacements would be funded through the Community Development Block Grants available to the City at a total cost of approximately $100,000. No repairs or improvements were identified within the fire station building itself. Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 4-2 Present and Planned Facilities and Services Fire Suppression and Emergency Response Services Figure 4-1 Fire Department Revenues and Expenditures Revenue Expenses 34,169 34,788 27,386 3,749 2,722 1,181 2016-2017 2017-2018 2018-2019 Revenue 2,722 3,749 1,181 Expenses 27,386 34,169 34,788 Source: Bythenumbers.ca.gov 4.2.3 - DETERMINATIONS Determination 4.2-1 – The City provides fire protection through a volunteer fire department within the City limits and provides some funds using General Fund revenues. Determination 4.2-2 – The City maintains and upgrades facilities to meet the needs of its residents through the CIP. Determination 4.2-3 – The City must obtain alternate funding resources in order to improve facilities and equipment available to the Volunteer Fire Department. Determination 4.2-4 – The City should continue to program repairs to existing facilities in order to meet the needs of staff in order to provide a level of service acceptable to residents with the CIP. Determination 4.2-5 – The City should continue mutual aid agreements with adjacent agencies in order to provide overlapping and supplemented service within the City limits. Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 4-3 Present and Planned Facilities and Services Police 4.3 - Police 4.3.1 - SUMMARY OF PRIOR MSR FINDINGS Police and law enforcement services were reviewed by LAFCo in 2011. The City of Dorris contracted with the Siskiyou County Sheriff’s Department for law enforcement services. Under the terms of the contract, the City was provided with 3,900 hours of law enforcement presence per year with additional response provided as needed. From 2008-2010, the Sheriff Department responded to an average of 812 incidents per year within the City of Dorris, including law enforcement, medical assists, and fire calls (Pacific Municipal Consultants 2011). 4.3.2 - CURRENT CONDITIONS Police protection services are provided by the Siskiyou County Sheriff’s Department. A Sheriff’s Department substation is located at 324A North Pine Street, within a residential neighborhood on the north side of town. The City of Dorris contracts with the Sheriff’s Department for 3,820 hours of service per year. The City is assigned a Sheriff officer who serves as the Chief of Police. Facilities and Infrastructure No upgrades to the City law enforcement facility on Pine Street were identified for improvements within the Capital Improvements Program. Crime Statistics Crime statistics for Dorris were obtained from the Federal Bureau of Investigations (FBI) and are shown in Table 4-1. City does not have an adopted standard for sworn officers per 1,000 residents within the General Plan. The 2017 ratio for the Western region of the United States for cities whose population is under 10,000 residents was approximately 2.2 sworn officers per 1,000 (Federal Bureau of Investigation, 2019). The Western region ratio of officers to residents sets a standard ratio that can be used to guide employment of officers within Dorris into the future. However, the City currently has a contract with the Siskiyou County Sheriff’s Office to provide between 2950 to 3100 hours of law enforcement services per year plus overtime. Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 4-4 Present and Planned Facilities and Services Police Table 4-1 2016-2019 Reported Crime Statistics (Category 1 Crimes) Category 2016 2017 2018 2019 Population 900 899 902 897 Violent Crime 5 1 3 4 Murder/non-negligent 0 0 0 0 manslaughter Rape 1 0 0 0 Robbery 0 0 0 0 Aggravated Assault 4 1 3 4 Property Crime 19 30 12 11 Burglary 10 15 7 8 Larceny-theft 8 13 3 2 Motor vehicle theft 1 2 2 1 Arson 0 0 0 0 Total Reported Crimes 24 31 15 15 Source: www.fbi.gov The Police Funding Sources Figure 4-2 Police Department Revenue and Expenditures Revenue Expenses 214,330 213,198 212,351 5,401 4,785 1,452 2016-2017 2017-2018 2018-2019 Source: Bythenumbers.ca.gov Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 4-5 Present and Planned Facilities and Services Police Law enforcement is mostly funded through the General Fund and grants available through the U.S. Department of Justice Community Oriented Policing Services (COPS). There does not appear to be ancillary income generated to aid in the support of law enforcement activities. Figure 4-2 shows expenses in three recent fiscal years. 4.3.3 - DETERMINATIONS Determination 4.3-1 – The City contracts with the Siskiyou County Sheriff’s Department for staffing and law enforcement services. Determination 4.3-2 – The City does not appear to have a revenue financing source for funding law enforcement activities. Determination 4.3-3 – The City should investigate new, available funding sources such as grants in order to be less reliant on General Fund revenues to support law enforcement activities. Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 4-6 Present and Planned Facilities and Services Parks and Recreation 4.4 - Parks and Recreation 4.4.1 - SUMMARY OF PRIOR MSR FINDINGS In the 2011 MSR for the City of Dorris, it was found that the City’s existing park and recreation facilities are in good condition. Further, the City had sufficient parkland to exceed the standard of five acres per 1,000 population identified in the City’s General Plan. As the City and the number of residents grow, more open space lands will need to be improved to provide additional recreation opportunities. (Pacific Municipal Consultants 2011). 4.4.2 - CURRENT CONDITIONS The City’s parks and recreation facilities are maintained by the Public Works Department, which also performs upgrades, as necessary. While the Public Works Department is responsible for completing the work, the Public Works staff works closely with the City Council in order to determine the scope and nature of work to be performed. The City of Dorris has a 0.53-acre park located near the intersection of Fourth Street and Oregon Street (APN 051-242-180). Facilities include a playground, picnic area, and youth building. The City also has a 0.24-acre park situated adjacent to City Hall (APN 051-233-040) that includes picnic tables, park benches, and restrooms. In addition, there are two City-owned baseball fields located near the elementary school (APNs 051-192-010 and 020) that comprise approximately 4.4 acres and have been improved with dugouts, a concession stand, and restrooms. The City also maintains a newly constructed park (APNs 051-182- 090 and 100) located next to the baseball fields. The facilities for the newly constructed park consist of a large pavilion, picnic tables, and several locations with playground equipment. The City maintains tennis courts on an approximately 0.48-acre site near the ball fields (APN 051-101-090). The City does not have a Quimby Act Ordinance. However, the General Plan does state the City will adopt a Quimby Ordinance in order to allow for capital improvement and acquisition fees to be collected with new residential development. This fee would aid the City to meet its goals to providing five acres of community park land per 1,000 residents. Currently, the City is at approximately six acres for the current population, which is slightly under 1,000 residents. 4.4.3 - DETERMINATIONS Determination 4.4-1 – The City actively maintains parks and provides recreational services to the residents of Dorris. Determination 4.4-2 – The City utilizes the Capital Improvement Program to maintain and repair its numerous recreational facilities within the City limits to promote an active lifestyle to its residents and visitors. Determination 4.4-3 – The City should adopt a Quimby Act Ordinance to allow for new development to pay for development and acquisition of park facilities, if needed. Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 4-7 Present and Planned Facilities and Services Road Maintenance 4.5 - Road Maintenance 4.5.1 - SUMMARY OF PRIOR MSR FINDINGS The prior MSR was conducted in 2011. The Public Works Department maintains public rights-of-way (including alleys) that are within the City’s jurisdiction. These roadways are maintained as needed and as funding allows. Most roadway improvements are funded by monies provided by the State. The Siskiyou County 2005 Regional Transportation Plan (RTP), updated by the Local Transportation Commission (LTC) to comply with the California Transportation Commission (CTC) requirements, prioritizes transportation projects within Siskiyou County. The RTP has identified both short-range and long-range capital improvements for the next 20 years for the City of Dorris. Of the 12 short-range projects identified in the 2005 RTP, only one had been completed and four others were in progress. However, the City also completed two of its long-range projects and partially completed another. As recognized in the RTP, the City needed numerous improvements to streets and transportation facilities. Several projects listed in the RTP had not been completed due to a lack of funding. 4.5.2 - CURRENT CONDITIONS Public rights-of-way within the City are maintained by the Public Works Department on an as needed basis. Improvements and maintenance are dependent on funding, which is mainly provided by the State or the federal government. The road projects shown in Table 4-2 are included in the 2016 Siskiyou County RTP. Table 4-2 Dorris Road Projects Construction Route Description Cost Year California Street: 1st Street to 2nd and Sly Rehabilitate $130,000 2018 to North Road Fourth Street: Hwy 97 to Pine Street Rehabilitate $50,000 2016 Road North Juniper: 1st Street to Hazen and Sly Rehabilitate $153,000 2021 to North Road Oregon Street: 1st Street to Sly Street Rehabilitate $225,000 2016 Road Oregon Street: 3rd Street to 4th and Sly Rehabilitate $200,000 2016 Streets Road Note: Construction year is anticipated. Source: 2016 Siskiyou County Regional Transportation Plan Funding for the listed projects is expected to come from STIP/Regional Surface Transportation Program (RSTP), and local funds. Most of these projects are carryover projects from the 2011 Siskiyou County RTP; construction will occur as funding becomes Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 4-8 Present and Planned Facilities and Services Road Maintenance available. The 2016 RTP lists an additional five unconstrained (long-range) road projects. These amounts are not shown within the revenues because it is unclear if the City has received these funds for the projects above. Figure 4-3 shows recent expenditures in three past fiscal years. Figure 4-3 Road Maintenance Revenues and Expenditures Revenue Expenses $80,103 $44,803 $45,633 $7,579 $0 $0 2016-2017 2017-2018 2018-2019 4.5.3 - DETERMINATIONS Determination 4.5-1 – The City actively maintains the existing road systems and provides street sweeping and lighting services within the City limits, except for State Highways. Determination 4.5-2 – The City utilizes a Capital Improvement Program to plan repair and maintenance of existing roadways within the City limits. Determination 4.5-3 - The City utilizes various funding sources to supplement the General Fund for road maintenance. Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 4-9 Present and Planned Facilities and Services Flood Control/Drainage 4.6 - Flood Control/Drainage 4.6.1 - SUMMARY OF PRIOR MSR FINDINGS The prior MSR concluded that with relatively little precipitation, no surface waters, porous soils, and large residential lots, the City had done little to develop a storm drain system for its roadways. Further, what system there was had primarily been installed by the California Department of Transportation (Caltrans) to serve U.S. Highway 97 as it passes through town. Once completed, these improvements became the responsibility of the City to maintain. Fortunately, aside from two small detention basins, most improvements are limited to French drains, a few drop inlets and drainage pipes. According to City staff, these existing improvements were in good condition. 4.6.2 - CURRENT CONDITIONS Flood hazards in the planning area are extremely localized, short-lived, and limited to paved surfaces during peak storm events. With no drainages or other water bodies in the planning area, the Federal Emergency Management Agency has not mapped floodplains and/or areas subject to flooding (Pacific Municipal Consultants, 2007). As previously stated, the City has few storm drainage facilities to manage as it does not generally have a comprehensive system. As it is not in a flood plain, it would appear the needs for such facilities are limited. However, the City should address storm drainage within some sort of comprehensive document to ensure that future development does address and mitigate the additional impermeable surfaces that will be created. The CIP does not list any improvements specifically for storm drainage purposes. Instead, the CIP notes that Caltrans will clean the drainage sumps. No funds were programed towards facility improvements for storm drainage specifically. 4.6.3 - DETERMINATIONS Determination 4.6-1 – The City does not comprehensively address storm drainage due to the lack of precipitation and lack of a flood plain designation from FEMA. Determination 4.6-2 – The City should address whether storm drainage facilities will be necessary to accommodate any future growth within the City limits. Plan for Future Services As previously discussed, the City envisions growth occurring and being directed to infill properties already located within the City limits. No specific expansion beyond the SOI and City limits has been discussed or proposed currently. Therefore, expansion of infrastructure and services is not needed. The City can focus on improving delivery of existing systems and addresses deficiencies through the CIP. Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 4-10 Financial Ability to Provide Services SECTION 5 - FINANCIAL ABILITY TO PROVIDE SERVICES This section analyzes the financial structure of the City of Dorris with respect to the provision of services. Included in this analysis is the consideration of rates, service operations, and the like, as well as other factors affecting the City’s financial health and stability, including factors affecting the financing of needed infrastructure improvements and services. Compliance with existing State requirements relative to financial reporting and management is also discussed. An examination of financing includes an evaluation of the fiscal impacts of potential development, and probable mechanisms to finance needed improvements and services. Evaluating these issues is important to ensure new development does not excessively burden existing infrastructure and the ability of the City to fund existing improvements and services. An examination of rate restructuring should identify impacts on rates and fees for services and facilities and recognize opportunities to positively impact rates without decreasing service levels. The focus is on whether there are viable options to increase the City’s efficiency through rate restructuring prior to any SOI adjustment. The purpose of this review is to determine fiscal viability, suitability of current funding practices, and potential fiscal impacts resulting from new legislation. 5.1 - City Budget The City’s Annual Budget is recommended to be made more accessible to the public by posting it on the City’s website. The Annual Budget reflects the City Council’s goals, targets, and funding to maintain basic service levels. The budget includes assumptions and directions included in the CIP and Multi-year Financial Plan. The City’s reported revenue for 2019 for all funds in the amount of $1.11 million. The reported expenses totaled $1.39 million (California State Controller's Office , 2020). In 2019 the City incurred a deficit of $280,000.00. Typically, during years where the City incurs a debt, it will rely on grants, revenues from outside sources, and reserve funds from previous years. However, if the City continues to incur a deficit in the following years, a review of budgeting practices will be required and could result in the following: • Elimination of capital projects; and • Reduction of services to the community of Dorris. 5.1.1 - RATES AND FEES The City sets rates and fees for various services it provides. The City adopts fees as the beginning of the fiscal year and provides a comprehensive list of fees through the Master Fee Schedule that is revised accordingly annually based on recouping costs for service. Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 5-1 Financial Ability to Provide Services 5.1.2 - PROPOSITION 218 Proposition 218 restricts local government’s ability to impose assessment and property related fees and requires elections to approve many local governmental revenue raising methods. This initiative, approved in 1996, applies to nearly 7,000 cities, counties, special districts, schools, community college districts, redevelopment agencies, and regional organizations. It ensures that all new taxes and most charges on property owners are subject to voter approval and especially to the tools of using property related fees to fund governmental services instead of property related services. Of potential concern is the long-term effect the proposition has created in a local government’s ability to fill the growing divide between infrastructure needs and the provision of governmental services for the new infrastructure. However, Proposition 218 has not proven to be a factor in limiting the City’s ability to provide services. The City recently adopted revised fees for water service based on an engineering report in 2015. The report called for revised rates for customers, which were subject to Proposition 218. It appears that the rate increase was approved, and the new rates have been implemented. 5.1.3 - OPPORTUNITIES FOR RATE/FEE RESTRUCTURING The City’s Fee Schedule is subject to periodic comprehensive revisions and updates. A Fee Schedule was not provided so it is not clear the time it was adopted. It is recommended that it be updated annually so that the City is receiving full cost recovery for services and accounting for inflation. Rates for municipal services should be reviewed on a minimum five-year interval and rates reviewed to account for all needed improvements and maintenance activities. 5.1.4 - DETERMINATIONS Determination 5.1-1 – To provide transparency in the City’s budgeting process, it is recommended the City posts the Budget and CIP on the City's website. Determination 5.1-2 – The City should attempt to utilize other forms of revenue available besides property taxes and fees, such as grants, in order to supplement its revenue stream. Determination 5.1-3 – The services provided by the City are not generally subject to Proposition 218 and are adjusted annually to account for costs and inflation to allow for cost recovery. Determination 5.1-4 – There is no evidence suggesting that the City would be unable to provide services to the SOI areas for fees consistent with citywide fees for services. Since the City’s common practice is to review these fees and adopted revised fees annually, it can be assumed that future years will follow the same review and update procedure in order to ensure that full cost recovery is obtained for services rendered. Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 5-2 Financial Ability to Provide Services Determination 5.1-5 – The City’s utilization of an open and sound budgeting process allows the City to be financially able to provide an adequate level of service to residents. 5.2 - Status of, and Opportunities for, Cost Avoidance and Shared Facilities Practices and opportunities that may help to reduce or eliminate unnecessary costs are examined in this section, along with cost avoidance measures that are already being utilized. Occurrences of facilities sharing are listed and assessed for efficiency. Potential sharing opportunities that could result in better delivery of services is also discussed. An examination of cost avoidance opportunities should identify practices and opportunities that may help eliminate unnecessary or excessive costs to provide services. Such costs may be derived from a variety of factors including duplication of service efforts and facilities; inefficient budgeting practices; higher than necessary administration and operating cost ratios; inefficient use of outsourcing opportunities; and inefficient service boundaries. An examination of opportunities for shared facilities should determine if public service costs can be reduced as a result of identification and development of opportunities for sharing facilities and resources. The benefits of sharing costs for facilities are numerous, including pooling of funds to enjoy economies of scale; reduced service duplications; diversion of administrative functions of some facilities; reduced costs; and providing better overall service. Maximizing opportunities to share facilities allows for a level of service that may not otherwise be possible under normal funding constraints; however, facilities sharing opportunities are not without their challenges. When a municipality enters into a shared agreement, it generally relinquishes a portion of its control of the facility. Additionally, the facility may not be entirely suited to accommodate the municipality’s needs. The City shares property with the Volunteer Fire Department. The Sheriff’s Office operates out of a location within a residential neighborhood in the northern portion of the City which also houses the Superior Court. Collaboration with the existing school district and the City for sharing of open space and recreational facilities is generally described in the General Plan. Further negotiations for public use of the school recreational areas could lower the cost to build new facilities potentially. 5.2.1 - DETERMINATIONS Determination 5.2-1 – The City shares public facilities with multiple agencies within the City limits to maximize these facilities and not construct unnecessary, duplicative facilities. Determination 5.2-2 – The City should review any Joint Power Agreements of which the City participates annually in order to establish if cost savings are still being realized. Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 5-3 Financial Ability to Provide Services Determination 5.2-3 – A feasibility of cost and benefit analysis should be conducted by the City to identify the best alternative for providing services more efficiently if cost savings are no longer being realized through a Joint Powers Agreement. 5.3 - Accountability for Community Service Needs, including Governmental Structure and Operation Efficiencies This section addresses the adequacy and appropriateness of the City of Dorris’ existing boundary and SOI, assesses the management structure and overall managerial practices of the City, and evaluates the ability of the City to meet its service demands under its existing government structure. Also included in this section is an evaluation of compliance by the City with public meeting and records laws. An examination of government structure should consider the advantages and disadvantages of various government structures that could provide public services. In reviewing potential government structure options, consideration may be given to service delivery quality and cost, regulatory or government frameworks, financial feasibility, operational practicality, and public preference. An examination of local accountability should evaluate the accessibility to and levels of public participation with the agency’s management and decision-making processes. The MSR Guidelines note measures such as legislative and bureaucratic accountability, public participation, and easy accessibility to public documents and information as important in ensuring public participation in the decision-making process. 5.3.1 - ORGANIZATIONAL STRUCTURE The City of Dorris operates under the council-manager form of government. The Chief Executive Officer is the City Manager who is appointed by the City Council and carries out City policies. All other departments, except for the Sheriff’s Office, City Attorney, and City Engineer, report directly to the City Manager for day-to-day business. The City Council is responsible for governing as well as establishing the overall priorities and direction for the City’s municipal government. The Council’s responsibilities include the adoption of City ordinances and policies, approval of programs, services, projects, contracts and agreements, adoption of the annual budget, and establishment of short- and long-term goals for the City. Actions of the Council, including opportunities for public involvement and public hearings, are regulated in accordance with applicable statutes and City procedures. The City Council is elected on an at-large basis. Once elected, it is the duty of each Councilmember to represent the interests of all residents of the City. However, this structure of election allows residents to elect all council members but may result in areas of the City being unrepresented. Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 5-4 Financial Ability to Provide Services The City does not have a separate Planning Commission (the City Council serves in that capacity), nor are there other commissions and standing committees that operate on an ongoing basis as advisory bodies to the City Council. 5.3.2 - PRACTICES AND PERFORMANCE The Mayor presides over Council meetings which are typically held the first and third Monday of each month at 6:30 p.m. in the City Council Chambers located at 307 South Main Street. The City is required to follow the open meeting law set forth in the Brown Act (California Government Code Section 54950 et seq.). The intent of this legislation is to ensure that deliberations and actions of a legislative body be conducted openly and that all persons be permitted to attend any meeting except as otherwise provided in the law. Agendas must be posted at least 72 hours in advance of a meeting, and information made available to the Council must also be available to the public. The City publishes the Agendas and meeting minutes to the public by making them available through the City website (https://www.dorrisca.us/government/agendas-and-minutes/). Current staffing levels were not made available for evaluation by the City. So, it remains to be seen if the ratio of managers to workers appears to be appropriate. Given the fact that the City employs multiple contractors for positions, the City is likely maximizing resources to address issues on an as needed basis, which is appropriate for a city of Dorris’ size. 5.3.3 - DETERMINATIONS Determination 5.3-1 – The City Council is elected at-large and utilizes a rotating mayor format, which serves for a term of one year. This may prevent some areas of the City from being represented on the City Council. Determination 5.3-2 – The City conducts open meetings in compliance with the Brown Act that allows for complaints and comments regarding services and potential conflicts or inefficiencies to be identified to the City Council by residents. Determination 5.3-3 – The City makes reports, documents, council agendas and other information available to the public that detail operations and services provided by the City at City Hall. The City has a website however the meeting minutes are not posted consistently with the council agenda. Also, the City does not make the annual budget available on their website. Determination 5.3-4 – It is unknown whether the current City structure is efficient, transparent and meets expectations of its residents with the resources available due to lack of information provided by the City. Determination 5.3-5 – For the City to demonstrate that it is efficient and transparent, the following actions would need to be completed as a minimum: • Post adopted budgetary documents onto the website to include the CIP; Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 5-5 Financial Ability to Provide Services • Consistency in posting city council agenda staff reports, and meeting minutes on the website and maintain an archive of the meeting minutes, agenda, and staff reports; and • Any infrastructure planning documents such as wastewater master plans and master service agreements made available on the City website. Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 5-6 Sphere of Influence Review SECTION 6 - SPHERE OF INFLUENCE REVIEW 6.1 - Sphere of Influence Overview As part of any SOI review, LAFCo is required to consider all the information presented in the Municipal Service Review conducted for that agency. Additionally, LAFCo must also make written statement of its determinations for that agency regarding the following: 1. The present and planned land uses in the area, including agricultural and open- space lands; 2. The present and probable need for public facilities and services in the area; 3. The present capacity of public facilities and adequacy of public services that the agency provides or is authorized to provide; 4. The existence of any social or economic communities of interest in the area if the Commission determines that they are relevant to the agency; and 5. The present and probable need for those public facilities and services of any disadvantaged unincorporated communities within the existing SOI. After a written determination has been made with respect to the aforementioned areas of review, LAFCo may adopt a SOI that is appropriate for the agency’s provision of service. This section of the report fulfills the requirements of Government Code Section 56425 and allows LAFCo to adopt an SOI that is consistent with the written determinations for the City of Dorris. 6.2 - Present and Planned Land Uses The City General Plan has identified that most of the future growth should be directed to infill properties in order to prevent unnecessary extension of infrastructure and services. The current SOI is coterminous with the City limits and would further encourage implementation of the growth policy. Therefore, the current SOI would appear to be adequate to meet present and future service needs of residents. 6.3 - Present and Probable Need for Public Facilities and Services The City provides a range of services to its residents while being supplemented by other agencies within its City limits. The City also coordinates, as needed, through other agreements to collaborate with neighboring agencies to best provide services in a comprehensive manner. 6.3.1 - DISADVANTAGED UNINCORPORATED COMMUNITIES There are no communities or neighborhoods outside the SOI that could receive services from the City due to the SOI being coterminous with the City limits. Therefore, there are no Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 6-1 Sphere of Influence Review Disadvantaged Unincorporated Communities (DUC) impacted as it relates to fire, water, and wastewater service. 6.4 - Present Capacity of Public Facilities and Adequacy of Public Services The City currently provides a level of service that is satisfactory to meet the needs of residents and the visitor population that inhabits the area during peak times of the year. The City has directed all growth to infill areas in order to ensure that expansions of public facilities is not needed and that the new residents can be served by existing infrastructure. 6.5 - Existence of Any Social or Economic Communities of Interest As stated in Section 3, there are currently communities of social or economic interest within or adjacent to the existing SOI as it is coterminous with the City limits. 6.6 - Dorris Sphere of Influence Recommendations As shown in the MSR and throughout the determinations of this document, the City of Dorris is currently providing services at what appears to be an adequate level to its citizens. The City is accountable, but can disseminate information more efficiently through electronic methods, to its customers through the City Council, which are elected at-large. The City adopts a budget in an open format that allows for public comment and discussion to determine if financial resources are being spent properly. The growth of the City is restricted by growth policies within the General Plan that discourage growth beyond the SOI but rather direct them to infill properties. As a result, growth within the City will occur slowly and allow for services and infrastructure planning to catch up with the needs of new residents, if necessary. Until the City drastically changes its policies regarding growth, the SOI should be considered acceptable to meet present and future growth of the City. In conclusion, based on the analysis provided within this report, the existing SOI for the City of Dorris is adequate to service the existing residents as well as possible future needs of residents within it. Recommendation 6-1 – It is recommended that the City of Dorris’ SOI remain unchanged. Recommendation 6-2 – Until the City adopts a plan that significantly promotes development in areas currently beyond the SOI, the City’s existing SOI is acceptable to accommodate present and future growth needs for residents. Recommendation 6-3 – The capacity of public facilities is currently being reviewed annually by the City to accommodate the present and future needs of residents in a responsible manner. Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 6-2 References SECTION 7 - REFERENCES California State Controller's Office . (2020). Retrieved from https://cities.bythenumbers.sco.ca.gov/#!/year/2019/revenue/0/entity_name/Dor ris/0/category?vis=barChart California State Controller's Office. (2019, April 18). Dorris. Retrieved from https://cities.bythenumbers.sco.ca.gov/#!/year/2017/operating/0/entity_name/D orris/0/category?vis=pieChart Department of Finance. (n.d.). E-1: City/County Population Estimates with Annual Percent Change. Retrieved from Department of Finance : https://www.dof.ca.gov/Forecasting/Demographics/Estimates/E-1/ Federal Bureau of Investigation. (2019, April 8). Full-time Law Enforcement Employees. Retrieved from https://ucr.fbi.gov/crime-in-the-u.s/2017/crime-in-the-u.s.- 2017/topic-pages/tables/table-70 Pacific Municipal Consultants. (2007). City of Dorris General Plan. Dorris: City of Dorris. Pacific Municipal Consultants. (2011). Draft Municipal Services Review for the City of Dorris. Yreka: Siskiyou LAFCo. U.S. Census Bureau. (2016). Table DP03: Selected Economic Characteristics, 2012-2016 American Community Survey 5-Year Estimates. United States Census Bureau . (2019). Median income of Doris . Retrieved from United States Census Bureau : https://data.census.gov/cedsci/table?q=Median%20income%20Dorris%20&tid=A CSST5Y2019.S1901&hidePreview=false Dorris Municipal Services Review April 2021 Siskiyou LAFCo Page 7-1