LAFCO
Solano Irrigation District Final MSR
Read the report at Local Agency Formation Commissions ↗
Final
Municipal Service Review
Solano Irrigation District
Solano Local Agency Formation Commission
June 9, 2014
SolanoIrrigationDistrict
MunicipalServiceReview TableofContents
Table of Contents
Acronyms...............................................................................................................................................iii
1: Introduction.......................................................................................................................................4
1.1RoleandResponsibilityofLAFCO.................................................................................................4
1.2PurposeoftheMunicipalServiceReview....................................................................................4
1.3UsesoftheMunicipalServiceReview..........................................................................................5
1.5CaliforniaEnvironmentalQualityAct...........................................................................................6
2:ExecutiveSummary............................................................................................................................7
3:DistrictProfile...................................................................................................................................12
4: GrowthandPopulationProjections................................................................................................14
5: DisadvantagedUnicorporatedCommunities..................................................................................16
6: Presentandplannedcapacityofpublicfacilities............................................................................17
6.1WaterSupplyandAllocationAgreements................................................................................17
6.2Groundwater.............................................................................................................................23
6.3RecycledWater..........................................................................................................................23
6.4WaterConsumption..................................................................................................................23
7: FinancialAbilitytoprovideservices................................................................................................26
8: StatusandOpportunitiesforSharedFacilities................................................................................30
9: Governmentstructureandaccountability......................................................................................31
10: LAFCOPoliciesAffectingServiceDelivery.....................................................................................33
11: SummaryofDeterminations.........................................................................................................34
12: References.....................................................................................................................................36
AppendixA: CommentsReceived
AppendixB: Maps
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SolanoIrrigationDistrict
MunicipalServiceReview Acronyms
ACRONYMS
AFY acrefeetperyear
CDOF CaliforniaDepartmentofFinance
CEQA CaliforniaEnvironmentalQualityAct
CKH Cortese-Knox-HertzbergLocalGovernmentReorganizationActof2000
CDP CensusDesignatedPlace
DSWA Dixon-SolanoWaterAuthority
DUC DisadvantagedUnincorporatedCommunity
ETAW evapotranspirationofappliedirrigationwater
FSSD Fairfield-SuisunSewerDistrict
ID ImprovementDistrict
JPA JointExerciseofPowersAuthority
LAFCO LocalAgencyFormationCommission
M&I municipalandindustrial
MPWD MainePrairieWaterDistrict
MSR MunicipalServiceReview
POE PointOfEntry
PPH personsperhousehold
PSC PutahSouthCanal
SCADA SupervisoryControlandDataAcquisition
SID SolanoIrrigationDistrict
SOI SphereofInfluence
SP SolanoProject
SSWA Suisun-SolanoWaterAuthority
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SolanoIrrigationDistrict
MunicipalServiceReview Introduction
1: INTRODUCTION
1.1RoleandResponsibilityofLAFCO
ThefundamentalroleofaLocalAgencyFormationCommission(LAFCO)istoimplementtheCortese-
Knox-Hertzberg(CKH)LocalGovernmentReorganizationActof2000(GovernmentCodeSection56000,
etseq.),providingforthelogical,efficient,andmostappropriateformationoflocalmunicipalities,
serviceareas,andspecialdistricts. TheCKHrequiresallLAFCO’s,includingSolanoLAFCO,toconducta
MunicipalServiceReview(MSR)priortoupdatingthespheresofinfluence(SOI)ofthevariouscitiesand
specialdistrictsintheCounty(GovernmentCodeSection56430). CKHrequiresanMSRandSOIupdate
every5years.
1.2PurposeoftheMunicipalServiceReview
ThisMSRwillprovideSolanoLAFCOwithaninformationaldocumentandmakedeterminationsforeach
ofthesevenelementsprescribedbyCKH. ThisMSRevaluatesthestructureandoperationofeach
districtanddiscussespossibleareasforimprovement,coordination,orchangestotheSOIas
appropriate. ThepurposeoftheMSRistocollectdatainordertoprovideacomprehensiveanalysisof
serviceprovisionbySolanoIrrigationDistrict(SID). TheboundariesofSIDandproposedSOIareshown
inExhibit1. Keysourcesforthisstudyincludedagency-specificinformationgatheredbyreviewing
strategicplans,generalplans,websites,financialreports,agencyaudits,research,personal
communication,andtheMunicipalServiceReviewGuidelinespublishedbytheGovernor’sOfficeof
PlanningandResearch.
ThereportcontainsonesectionforeachofthefollowingsevenelementsasprescribedbyCKH:
1. GrowthandPopulationProjectionsfortheAffectedArea. Thissectionreviewsprojected
growthwithintheexistingserviceboundariesofthedistrictandanalyzesthedistrict’splansto
accommodatefuturegrowth.
2. Thelocationandcharacteristicsofanydisadvantagedunincorporatedcommunitieswithinor
contiguoustothesphereofinfluence. Adisadvantagedunincorporatedcommunityisdefined
asinhabitedterritorywithamedianhouseholdincomeof80percentorlessofthestatewide
medianincome.
3. PresentandPlannedCapacityofPublicFacilitiesandAdequacyofPublicServicesIncluding
InfrastructureNeedsorDeficiencies. Thissectiondiscussestheservicesprovidedincludingthe
qualityandtheabilityofthedistricttoprovidethoseservices,includingadiscussionofcapital
improvementprojectscurrentlyunderwayandprojectsplannedforthefuturewhereapplicable.
4. FinancialAbilityofAgenciestoProvideServices. Thissectionreviewsthedistrict’sfiscaldata
andratestructuretodetermineviabilityandabilitytomeetservicedemands. Italsoaddresses
fundingforcapitalimprovementprojects.
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SolanoIrrigationDistrict
MunicipalServiceReview Introduction
5. StatusofandOpportunitiesforSharedFacilities. Thissectionexaminesefficienciesinservice
deliverythatcouldincludesharingfacilitieswithotheragenciestoreducecostsbyavoiding
duplication.
6. AccountabilityforCommunityServiceNeeds,includingGovernmentStructureand
OperationalEfficiencies. Thissectionexaminesthedistrict’scurrentgovernmentstructure,and
considerstheoverallmanagerialpractices. Italsoexamineshowwelleachdistrictmakesits
processestransparenttothepublicandinvitesandencouragespublicparticipation.
7. MattersRelatedtoEffectiveorEfficientServiceDeliveryRequiredbyCommissionPolicy. This
sectionincludesadiscussionofanySolanoLAFCOpoliciesthatmayaffecttheabilityofeach
districttoprovideefficientservices.
1.3UsesoftheMunicipalServiceReview
TheMSRisusedtoexaminetheoperationsofalocalagency,identifyagenciesunabletoperformtheir
mandatedservices,oridentifywaystoprovidemoreeffective,efficientservices. GovernmentCode
Section56375allowsLAFCOtotakeactiononrecommendationsfoundintheMSR,suchasinitiating
studiesforchangesoforganization,updatingtheSOI,ororiginatingachangeoforganization.
Studiesinanticipationofachangeoforganizationareusefultoidentifypotentialissuesthatmayarise
duringtheprocess. Issuescanrangefromlegalbarrierstofiscalconstraintstoconcernsofresidentsand
landowners. Astudywouldallowmorefocusedanalysisandtheopportunitytoresolveissuesor
optionsbeforebeginningtheprocess.
TheMSRalsoprovidesthenecessaryinformationtohelpLAFCOmakedecisionsonaproposedSOI
update. InevaluatingtheSOI,theMSRprovidestheinformationnecessarytodetermineiftheagency
hasthecapabilitytoservealargerarea. TheMSRdiscussesthefinancialconditionofeachdistrict,
sourceofrevenues,andprojectedexpenses. Italsoincludesadiscussionoftheprojectedinfrastructure
needsthatwouldallowforexpansionofthoseservices. TheMSR,however,doesnotaddressCalifornia
EnvironmentalQualityAct(CEQA)requirementsfortheSOIupdate. Thatrequiresaseparateanalysis.
Alternatively,theMSRcanrecommendchangesoforganization:consolidation,dissolution,merger,
establishmentofasubsidiarydistrict,orthecreationofanewagencythattypicallyinvolvesa
consolidationofagencies. Thosechangesoforganizationmayalsorequireanenvironmentalreview,a
propertytaxsharingagreement,andanelection.
1.4SphereofInfluence
TheSOIisdefinedas"aplanfortheprobablephysicalboundariesandserviceareasofalocalagency"
(GovernmentCode56076).TheSOIrepresentsoneofthemostimportanttoolsLAFCOusesto"carry
outitspurposesandresponsibilitiesforplanningandshapingthelogicalandorderlydevelopmentand
coordinationoflocalgovernmentagencies"(GovernmentCodeSection56425).
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SolanoIrrigationDistrict
MunicipalServiceReview Introduction
CKHrequiresLAFCOtoadoptanSOIforeachcityandspecialdistrictinthecounty.TheSOIserves
muchthesamefunctionforLAFCOasgeneralplansserveforcitiesandcounties:itguidesthe
Commissioninitsconsiderationofannexationsandotherformsofreorganization.Thesphere
representsthelogicalextentoftheagency'sboundaryinthenext5to10years.However,sinceLAFCO
isrequiredtoupdateandreviewthesphereevery5years,thesphereinallpracticalityhasa5-year
planninghorizon.WhenadoptingtheSOI,theCommissionmustmakethefollowingdeterminations:
(cid:120)(cid:120) Presentandplannedlandusesinthearea.Thisconsistsofareviewofcurrentandplanned
landuses,includingagriculturalandopen-space,basedonplanningdocuments.
(cid:120) Presentandprobableneedforpublicfacilitiesandservices.Thisincludesareviewofthe
servicesavailableintheareaandtheneedforadditionalservices.
(cid:120) PresentCapacityofPublicFacilities. Thissectionincludesananalysisofthecapacityofpublic
facilitiesandtheadequacyofpublicservicesthatthedistrictprovidesorisauthorizedto
provide.
(cid:120) Socialoreconomiccommunitiesofinterest.Thissectiondiscussestheexistenceofany
socialoreconomiccommunitiesofinterestintheareaiftheCommissiondeterminesthat
theyarerelevanttothedistrict.Theseareareasthatmaybeaffectedbyservicesprovided
bytheDistrictormaybereceivingservicesinthefuture.
(cid:120) Presentandprobableneedforservicestodisadvantagedcommunities.BeginningJuly1,2012
thecommissionmustalsoconsiderservicestodisadvantagedcommunitieswhicharedefinedas
populatedareaswithintheSOIwhosemedianhouseholdincomeislessthanorequalto80
percentofthestatewidemedianincome.
ASOImaybeamendedorupdated.AnamendmentisarelativelylimitedchangetotheSOIto
accommodateaspecificproject.Amendmentscanaddorremoveterritory,addressachangein
provisionofservicesbyanagency,orreviseaplanforserviceswhenitbecomesimpractical.
AnupdateisacomprehensivereviewoftheSOIthatincludesthemapandrelevantportionsofoneor
moreMSR’s.Thereviewallowsfortheidentificationofareasthatarelikelytoreceiveservicesandto
excludethoseterritoriesthatarenotorwillnotbeservedintheSOI.
1.5CaliforniaEnvironmentalQualityAct
PublicResourcesCodeSection21000,etseq.,alsoknownastheCaliforniaEnvironmentalQualityAct
(CEQA),requirespublicagenciestoevaluatethepotentialenvironmentaleffectsoftheiractions. This
MSRisexemptfromCEQAunderClass6categoricalexemption. CEQAGuidelinesSection15306states
that“Class6consistsofbasicdatacollection,research,experimentalmanagement,andresource
evaluationactivitiesthatdonotresultinaseriousormajordisturbancetoanenvironmentalresource.”
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SolanoIrrigationDistrict
MunicipalServiceReview ExecutiveSummary
2: EXECUTIVE SUMMARY
ThefundamentalroleofaLocalAgencyFormationCommission(LAFCO)istoimplementtheCortese-
Knox-Hertzberg(CKH)LocalGovernmentReorganizationActof2000(GovernmentCodeSection56000,
etseq.),providingforthelogical,efficient,andmostappropriateformationoflocalmunicipalities,
serviceareas,andspecialdistricts. TheCKHrequiresallLAFCO’s,includingSolanoLAFCO,toconducta
MunicipalServiceReview(MSR)priortoupdatingthespheresofinfluence(SOI)ofthevariouscitiesand
specialdistrictsintheCounty(GovernmentCodeSection56430). CKHrequiresanMSRandSOIupdate
every5years.
ThisMSRwillprovideSolanoLAFCOwithaninformationaldocumentandmakedeterminationsforeach
ofthesevenelementsprescribedbyCKH. ThisMSRevaluatesthestructureandoperationofadistrict
anddiscussespossibleareasforimprovement,coordination,orchangestotheSOIasappropriate. The
purposeoftheMSRistocollectdatainordertoprovideacomprehensiveanalysisofserviceprovision
bySolanoIrrigationDistrict(SID). TheboundariesofSIDandproposedSOIareshowninExhibit1.
ThereportcontainsonesectionforeachofthefollowingsevenelementsasprescribedbyCKH:
1. GrowthandPopulationProjectionsfortheAffectedArea. Thissectionreviewsprojected
growthwithintheexistingserviceboundariesofthedistrictandanalyzesthedistrict’splansto
accommodatefuturegrowth.
2. Thelocationandcharacteristicsofanydisadvantagedunincorporatedcommunitieswithinor
contiguoustothesphereofinfluence. Adisadvantagedunincorporatedcommunityisdefined
asinhabitedterritorywithamedianhouseholdincomeof80percentorlessofthestatewide
medianincome.
3. PresentandPlannedCapacityofPublicFacilitiesandAdequacyofPublicServicesIncluding
InfrastructureNeedsorDeficiencies. Thissectiondiscussestheservicesprovidedincludingthe
qualityandtheabilityofthedistricttoprovidethoseservices,includingadiscussionofcapital
improvementprojectscurrentlyunderwayandprojectsplannedforthefuturewhereapplicable.
4. FinancialAbilityofAgenciestoProvideServices. Thissectionreviewsthedistrict’sfiscaldata
andratestructuretodetermineviabilityandabilitytomeetservicedemands. Italsoaddresses
fundingforcapitalimprovementprojects.
5. StatusofandOpportunitiesforSharedFacilities. Thissectionexaminesefficienciesinservice
deliverythatcouldincludesharingfacilitieswithotheragenciestoreducecostsbyavoiding
duplication.
6. AccountabilityforCommunityServiceNeeds,includingGovernmentStructureand
OperationalEfficiencies. Thissectionexaminesthedistrict’scurrentgovernmentstructure,and
considerstheoverallmanagerialpractices. Italsoexamineshowwelltheeachdistrictmakesits
processestransparenttothepublicandinvitesandencouragespublicparticipation.
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SolanoIrrigationDistrict
MunicipalServiceReview ExecutiveSummary
7. MattersRelatedtoEffectiveorEfficientServiceDeliveryRequiredbyCommissionPolicy. This
sectionincludesadiscussionofanySolanoLAFCOpoliciesthatmayaffecttheabilityofeach
districttoprovideefficientservices.
DISTRICTPROFILE
TheSolanoIrrigationDistrictwasformedin1948undertheCaliforniaWaterCode,Division11. Inallthe
serviceareacoversapproximately73,000acres.TheDistrictprimarilyservesagricultureaswellassome
municipalandindustrialusers. Itprovidesirrigationwaterandpotablewatertoapproximately11,000
retailcustomersincluding10,000potablewatercustomers,and1,000non-potablewatercustomers.
Between1948and1957,substantialeffortsweremadebytheDistrictandtheCountytoprovidewater
toSolanoCounty. Thewatersystem,termedtheSolanoProject,includedMonticelloDam,LakeSolano,
DiversionDam,the33-milelongPutahSouthCanal(PSC),andTerminalReservoir. Thegroundbreaking
ceremonyfortheMonticelloDam,withacapacityof1.6Millionacrefeet,washeldonSeptember25,
1953. ConstructionoftheSolanoProjectwascompletedonNovember7,1957. Alllandswithinthe
Districtboundaryhadwateravailablebythespringof1963.
InadditiontothewatersystemtheDistrictalsogenerateselectricity. In1981theDistrictbegan
constructionofan11.5megawatthydroelectricpowerplantatthebaseoftheMonticelloDam. The
plantwascompletedin1983. SIDmaintainsandoperatestheplant. PG&Epurchasesallthegenerated
power.
GROWTHANDPOPULATIONPROJECTIONS
Approximately37,000peopleresidewithintheDistrictboundariesandanestimated10residentslivein
theproposedSOI. ThepopulationinSolanoCountyisexpectedtoincreaseby5%overthenextfive
years. SincemostoftheSIDterritoryisoutsidethecitiestheanticipatedCountygrowthratecanbe
usedtoestimategrowthintheDistrictandproposedSOI. At5%growththeDistrictandproposed
spherewouldhavebyapproximately38,900residentsby2020.
DISADVANTAGEDUNINCORPORATEDCOMMUNITIES(DUC)
In2012,themedianhouseholdincomefortheStatewas$61,400. Inordertomakethisassessment
incomeforcensusdesignatedplacesinSolanoCountywerecomparedtothestatewidemedian
householdincome. Elmirahasthelowestmedianincomeat84%oftheState’svalueandstilldoesnot
qualifyasaDUC. Theproposedsphereincludesprimarilyagriculturallandsandonlyfourresidences
with7registeredvotersscatteredthroughoutthespherearea. ThereforetherearenoDUC’sadjacent
toSIDboundariesorintheproposedSOI.
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SolanoIrrigationDistrict
MunicipalServiceReview ExecutiveSummary
PRESENTANDPLANNEDCAPACITY
SIDoperatestheSolanoProject,whichdeliversLakeBerryessawatertofourcities,theMainePrairie
WaterDistrictandotherSIDcustomers. TheSolanoProjectincludestheMonticelloDam,Putah
DiversionDam,andthePSC. SIDoperatesandmaintainstheseSolanoProjectfacilitiesonbehalfof
SolanoCountyWaterAgency. LakeBerryessahastheabilitytostore1,600,000acre-feetofwater. SID
providesirrigationwaterfromsurfacewatersbutalsohasitsowndeepwellsthatsupplementits
surface-watersupplyfromtheSolanoProject.
SIDhasanallocatedsurfacewatersupplyfromtheSolanoProjectfor141,000acrefeetperyear.With
theadditionofgroundwatersuppliesSIDhasavailableanaverageannualwatersupplyofapproximately
146,000acrefeet.Fullyutilizinghistoriccapacityofwellswouldresultinasupplypotentialof155,000
acrefeet.
TheSolanoIrrigationDistrict’sprimarywaterdemandistheagriculturalwaternecessarytoproducethe
cropsgrownwithintheSIDservicearea. InadditiontothisdemandSIDprovidesmunicipaland
industrial(M&I)andnon-potablewatersuppliestosomeruraldevelopmentswithinitsservicearea.
Whenlandusechangesandincreasedurbanizationoccur,M&Iwaterdemandincreases.Historically,
SIDhasenteredintoagreementswithcities(Benicia,Fairfield,Suisun,andVacaville)toaugmentthe
cities’supplies.TheagreementsprovideforwatertransfersfromSIDtothosecities. Dependingupon
theagreement,watermaybeheldintrustforthecityandavailableupondemand,oronanentitlement
basis.Ifonanentitlementbasis,thecityisabletoutilizetheentitlementwaterascarryoverstorageifit
isnotusedintheyearallotted.
Thereviewofprojectedagriculturalwaterdemandsneedstoconsiderongoingimprovementsinwater
deliveryefficiency. WaterdeliverylossesintheSIDdistributionsystemandtheon-farmdelivery
systemsofindividualfarmerstogetherwithoperationalspillsandtherecoveryandreuseoftailwater
areallfactorsaffectingtherequiredquantityofSIDwaterdeliveries. SIDhasarehabilitationand
bettermentprogramwhichcontinuestoimproveinfrastructurewhichhelpstoreducelosses.This
includesinstallingconcreteliningincanalsnotoriginallylinedtoreduceseepagelosses,automatic
controlgates,andSupervisoryControlandDataAcquisition(SCADA)systemstobettermonitor
operationalspillsandreduceunnecessarywatersupplylosses. Allpotential,costeffectivecontrol
measurestofurtherreducewaterlossesandimprovetheefficiencyofsurfacewaterdeliveriesare
investigated. Asthevalueofwaterincreases,manyfarmersinSIDarealsomakingchangesand
improvementstotheiron-farmwaterdeliverysystems.Thisincludescapturingandreusingagricultural
tailwaterreturnflowsandinstallingnewwaterdeliverysystems. OverthelastfiveyearsSIDhasseenan
increasednumberoffarmersinstallingmicrosprayanddripirrigationsystemsonnewlyplanted
orchards. Continuedtechnologicalimprovementinwaterdeliveryefficiencywillfurtherreducethe
waterdeliveryneededtomeettheannualSIDETAW. AcurrentestimateofSIDwatersuppliesand
waterdemandsprojectedto2034isprovidedinTable6.2.
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SolanoIrrigationDistrict
MunicipalServiceReview ExecutiveSummary
ThedatashowsthatDistricthasthecapacitytoprovidewatertocurrentcustomers.TheDistricthasan
averageannualexcesscapacityof6,400AFanditislikelytheDistricthassufficientcapacitytoserve
thoseareasintheproposedSphereofInfluence.
Inyearswhendemandwillexceedsupply(andnocarryoverwaterisavailable),SIDhasthemeans
withinitsRulesandRegulationstoimplementanallocationpolicytolimittheamountofwatersupplied
(orallocated)toeachuser. Further,bymanagingitscarryoversuppliesinLakeBerryessa(SolanoProject
entitlementwatersthatarenotusedinoneyeararecarriedovertothenextandarecumulativeuntil
LakeBerryessaspills),SIDhastheabilitytomeetdemandsinyearsthedemandwillexceedsupply. SID
hasproventhisabilityoverthelast50+yearswithonlyoneyear(1991)whenSIDimplementedawater
shortageallocationprogramtoconservewaterandprovideasupplementalurbanwatersupplytohelp
SolanoProjecturbanwaterusersmeettheirdemandsduringawatershortage.Basedontheproposed
SphereofinfluenceandthedataprovidedinTable6.1,theaverageannualdemandresultsin
approximately3,500AF.
FINANCIALABILITYTOPROVIDESERVICES
SIDhasanoperatingbudgetofapproximately$7million. Alongwithjointventureoperations(SSWA,
DSWA,etc.)thebudgetisgenerallyinthe$14-16millionrange. Between2008and2012SIDhasshown
asurplusinfourofthefiveyears. In2009thesurpluswasduetothesaleofwaterrights. In2011
Powerplantrevenuesdecreasedby$2.8millionduetothetimingofthereceiptofcashfromPG&Eto
maketheJanuaryprincipalpaymentontheMonticelloPlantProject2006and1986Refunding
Hydroelectricbonds.In2010thefundswerereceivedandrecordedasrevenueinDecember2010;
whereas;in2011thefundswerereceivedandrecordedasrevenueinJanuary2012.
SIDprovidespotablewatertoseveralcommunitiesandsetsratesspecifictothoseareas. Insome
improvementdistricts,voterapproveddebt(liketheconstructionoftheGibsonCanyonImprovement
DistrictWaterTreatmentPlant)isrepayedthroughspecialassessmentappliedthroughtheproperty
taxes.
In2013SIDapprovedarateincreasetocoveranticipatedcostsduetoinflation,toreplenishan
operatingreserve,andtobegintoaddresscostsofpost-retirementbenefits. ThenewratesallowSIDto
implementitsfinancialplansoSIDwillhavethefinancialresourcestoprovideservices.
STATUSANDOPPORTUNITIESFORSHAREDFACILTIES
Managementandoperationalefficienciesareprovidedbycooperativearrangementwithother
agenciessuchastheSolanoWaterAuthority. AdditionallySIDtakespartinseveralother
committeesandagreementsincluding:
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SolanoIrrigationDistrict
MunicipalServiceReview ExecutiveSummary
(cid:120) SID/FairfieldWaterServicesAgreement
(cid:120) SID/VacavilleMasterWaterAgreement
(cid:120) SID/VallejoAgreement(exchangeofwater)
(cid:120) SID/MainPrairieWaterDistrictAgreement(forcoordinatingLakeBerryessawatersupplies)
(cid:120) SID/CountyAgriculturalCommissionerAgreement(forsharingshopspaceatSIDyard)
(cid:120) DSWAJointWaterServiceinDixon
(cid:120) SSWAJointWaterServiceinSuisunCity
SIDalsopartnerswiththeCityofDixonandSuisunCityforwaterdeliverythroughajointpowers
agreement.InadditionSIDparticipatesinpurchasingagreementswithotherlocalwatertreatment
plantsinordertoobtainbestpricingonchemicalpurchases,anditisinaninsurancepoolwiththe
AssociationofCaliforniaWaterAgenciesJointPowersInsuranceAuthority.
GOVERNMENTSTRUCTUREANDACCOUNTABILITY
SIDisgovernedbyafivememberboardelectedbydivisiontofouryearstaggeredterms. TheBoardof
DirectorsmeetsregularlyonthethirdTuesdayofthemonth. Meetingsarenoticedinthreelocal
newspapersandpostedontheDistrictwebsite. TheDistrictusesitswebsitetocommunicatewith
ratepayers.
SIDhas78employeesand15vacanciesforatotalstaffof93. StaffingisallocatedaccordingDistrict
functions.
LAFCOPOLICIESAFFECTINGSERVICEDELIVERY
SeveralofLAFCO’spoliciescanaffectSID’sservicedelivery. Theyincludethespherepolicywhichis
appliedtoareasthattheDistrictwouldliketoserveintheneartermandlongterm. SIDisoften
requestedtoprovideservicesoutsideitsboundary,soLAFCO’soutofareaservicepolicyapplies. LAFCO
policyallowingdetachmentfeescompensatesSIDforlossofrevenueswhenanareaisdetachedand
annexedtoacity.
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SolanoIrrigationDistrict
MunicipalServiceReview DistrictProfile
3: DISTRICT PROFILE
Bydefinition,anirrigationdistrictisatypeofspecialdistrictwhohaveauthoritytosellandleasewater,
operateasewagecollectionanddisposalsystem,deliverwaterforfireprotection,maintainrecreational
facilitiesinconnectionswithdamsandreservoirsoroperateandsellelectricalpower. Irrigationdistricts
operateunderSection20500etseq.oftheWaterCode.Therearenearly92irrigationdistrictsin
California. SIDistheonlyirrigationdistrictinSolanoCounty.
TheSolanoIrrigationDistrictwasformedin1948undertheCaliforniaWaterCode,Division11. Inallthe
serviceareacoversapproximately73,000acres.TheDistrictprimarilyservesagricultureaswellassome
municipalandindustrialusers. Itprovidesirrigationwaterandpotablewatertoapproximately11,000
retailcustomersincluding10,000potablewatercustomers,and1,000non-potablewatercustomers.
Exhibit1showstheboundariesoftheDistrictandtheproposedsphere.
Between1948and1957,substantialeffortsweremadebytheDistrictandtheCountytoprovidewater
toSolanoCounty. Thewatersystem,termedtheSolanoProject,includedMonticelloDam,LakeSolano,
DiversionDam,the33-milelongPutahSouthCanal(PSC),andTerminalReservoir. Thegroundbreaking
ceremonyfortheMonticelloDam,withacapacityof1.6Millionacrefeet,washeldonSeptember25,
1953. ConstructionoftheSolanoProjectwascompletedonNovember7,1957. Alllandswithinthe
Districtboundaryhadwateravailablebythespringof1963.
InadditiontothewatersystemtheDistrictalsogenerateselectricity. In1981theDistrictbegan
constructionofan11.5megawatthydroelectricpowerplantatthebaseoftheMonticelloDam. The
plantwascompletedin1983. SIDmaintainsandoperatestheplant. PG&Epurchasesallthegenerated
power.
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SolanoIrrigationDistrict
MunicipalServiceReview DistrictProfile
Exhibit1:SIDBoundaryMap
13
SolanoIrrigationDistrict
MunicipalServiceReview GrowthandPopulationProjections
4: GROWTH AND POPULATION PROJECTIONS
TheDistrictthroughitsoperationoftheMonticelloDamandPutahSouthCanalimpactsapproximately
threequartersofthepopulationoftheCounty. Howeverthenumberofpeopleactuallyresidinginthe
districtismuchsmaller. Wecanestimatethepopulationbasedonthenumberofconnectionsandusing
amultiplierforpersonsperhousehold. Table4.1showshowtheestimatedpopulationofthedistrictis
approximately37,000.
Thatestimatereliesonseveralassumptions. Whilethenumberofaccountsintheimprovement
districtsisknown,itisassumedtheyareprimarilyresidentialsothepopulationisbasedontheCounty
averageof2.83personsperhousehold. Elmiraisacensusdesignatedplacewhereactualpersonsper
householdisknownandslightlylower. ThepersonsperhouseholdvaluesforDixonandSuisunare
basedonthevalueswithinthecitylimits. Itwasalsoassumedthateachirrigationaccountistiedtoa
residencesotheestimatedpopulationforirrigationaccountsisthetotalaccountsmultipliedbythe
Countypersonsperhouseholdvalue. Whilenotexact,theestimatedDistrictpopulationshouldbe
reasonablyclose.
Muchoftheproposedsphereofinfluenceiszonedcommercialoragricultural. Afewoftheparcelsare
zonedag-resandincludeonedwellingunit. Therearefourparcelswhichincludearesidence. Usingthe
Countyestimateofpersonsperhouseholdtheproposedsphereislikelytoinclude10residents.
Table4-1:EstimatedPopulationofSID
Area Connections PPH Est.Population
ElmiraID 86 2.21 190
QuailCanyonID 37 2.83 105
StockingRanchID 6 2.83 17
TolenasID 180 2.83 509
GibsonCanyonID 158 2.83 447
PeabodyID 19 2.83 54
BlueRidgeOaksID 20 2.83 57
Dixon-SolanoWaterAuthority 2,563 3.13 8,031
Suisun-SolanoWaterAuthority 8,000 3.15 25,178
Irrigation 897 2.83 2,486
Total 37,073
Source:CDOF2013a,NBS2012,TheReedGroupInc.2012
AccordingtotheCaliforniaDepartmentofFinancethepopulationinSolanoCountyisexpectedtogrow
by5%between2015and2020. SincemostoftheSIDterritoryisoutsidethecitiestheCountygrowth
rateisagoodestimateofpopulationgrowthintheDistrict. AccordinglythepopulationoftheDistrict
wouldbeexpectedtogrowby5%overthenextfiveyearstoapopulationofapproximately38,900.
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SolanoIrrigationDistrict
MunicipalServiceReview GrowthandPopulationProjections
DETERMINATIONS:
4.1 WhilethepopulationthatbenefitsfromservicesprovidedbytheDistrictapproachesthree
quartersofthepopulationofSolanoCountyonlyapproximately37,000peopleresidewithinthe
Districtboundariesandanestimated10residentsliveintheproposedSOI.
4.2 ThepopulationinSolanoCountyisexpectedtoincreaseby5%overthenextfiveyears. Since
mostoftheSIDterritoryisoutsidethecitiestheanticipatedCountygrowthratecanbeusedto
estimategrowthintheDistrictandproposedSOI. At5%growththeDistrictandproposed
spherewouldhaveapproximately38,900residentsby2020.
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SolanoIrrigationDistrict
MunicipalServiceReview DisadvantagedUnincorporatedCommunities
5: DISADVANTAGED UNICORPORATED COMMUNITIES
TheCommissionisrequiredtoprovidewrittendeterminationswithrespecttothelocationand
characteristicsofanydisadvantagedunincorporatedcommunitieswithinorcontiguoustothesphereof
influence. TheCaliforniaGovernmentCodeSection56033.5definesadisadvantagedunincorporated
community(DUC)asaninhabitedterritory(12ormoreregisteredvoters)withanannualmedian
householdincomethatislessthan80percentofthestatewideannualmedianhouseholdincome.
In2012,themedianhouseholdincomefortheStatewas$61,400. Thetablebelowrepresentsthe2012
medianhouseholdincomesforallCensusDesignatedPlaces(CDP)inSolanoCounty. Asshowninthe
Table,Elmirahasthelowestmedianincomeat84%oftheState’svalueandstilldoesnotqualifyasa
DUC. Theproposedsphereincludesprimarilyagriculturallandsandonlyfourresidenceswith7
registeredvotersscatteredthroughoutthespherearea. Therefore,therearenoDUC’sadjacenttoSID
boundariesorintheproposedSOI.
Table5.1:SolanoCountyCDP2012HouseholdIncome
SolanoCountyCDP MedianHouseholdIncome %of State’sMedianHousehold
Income($61,400)
AllendaleCDP $89,984 147%
ElmiraCDP $52,125 84%
GreenValleyCDP $139,474 227%
HartleyCDP $100,123 163%
Source:CDOF2013c
DETERMINATIONS:
5.1 TherearenodisadvantagedunincorporatedcommunitiesadjacenttotheboundariesofSIDor
intheproposedSOI.
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SolanoIrrigationDistrict
MunicipalServiceReview PresentandPlannedCapacity
6: PRESENT AND PLANNED CAPACITY OF PUBLIC FACILITIES
SIDoperatestheSolanoProject,whichdeliversLakeBerryessawatertofourcities,theMainePrairie
WaterDistrictandotherSIDcustomers. TheSolanoProjectincludestheMonticelloDam,Putah
DiversionDam,andthePSC. SIDoperatesandmaintainstheseSolanoProjectfacilitiesonbehalfof
SolanoCountyWaterAgency. LakeBerryessahastheabilitytostore1,600,000acre-feetofwater. SID
providesirrigationwaterfromsurfacewatersbutalsohasitsownwellsthatsupplementitssurface-
watersupplyfromtheSolanoProject.
SIDalsoownsandoperatesthehydroelectricpowerplantlocatedatthebaseofMonticellodam. The
powerplantwasbuiltin1983andhasthreegeneratorswithacombinedcapacityof11,500kilowatts.
SIDsellselectricalpowertoPG&EandprovidesadditionalelectricitytoNorthernCalifornia.
6.1WaterSupply,Demand,andAllocationAgreements
SIDhasanallocatedsurfacewatersupplyfromtheSolanoProjectfor141,000acrefeetperyear.With
theadditionofgroundwatersuppliesSIDhasavailableanaverageannualwatersupplyofapproximately
146,000acrefeet.Fullyutilizinghistoriccapacityofwellswouldresultinasupplypotentialof155,000
acrefeet.
TheSolanoIrrigationDistrict’sprimarywaterdemandistheagriculturalwaternecessarytoproducethe
cropsgrownwithintheSIDservicearea. InadditiontothisdemandSIDprovidesmunicipaland
industrial(M&I)andnon-potablewatersuppliestosomeruraldevelopmentswithinitsservicearea.
Whenlandusechangesandincreasedurbanizationoccur,M&Iwaterdemandincreases.Historically,
SIDhasenteredintoagreementswithcities(Benicia,Fairfield,Suisun,andVacaville)toaugmentthe
cities’supplies.TheagreementsprovideforwatertransfersfromSIDtosaidcities. Dependinguponthe
agreement,watermaybeheldintrustforthecityandavailableupondemand,oronanentitlement
basis.Ifonanentitlementbasis,thecityisabletoutilizesaidentitlementwaterascarryoverstorageifit
isnotusedintheyearallotted.
Toconfirmitsagriculturalwaterdemandanagriculturalwaterbalanceanalysisfora1991–2010study
periodisunderdevelopmentbySIDtoguidedevelopmentofafutureagriculturalwaterallocation
policy.Thepreliminaryanalysisshowscropevapotranspirationofappliedirrigationwater(ETAW)orthe
portionofappliedwateractuallyconsumedwithinSIDhasrangedfrom57,000to91,000acre-feetper
yearovera1991–2010studyperiod. Table6.1summarizesthenormalizedETAWforthecropsgrown
withinSID. Itsummarizesbyyear,fromthelowesttothehighest,theannualappliedwaterrequiredto
meettheevapotranspirationrequirementsfortheagriculturalacreageofthestudyperiod. Thisanalysis
includedtheweatherdataandcroppingpatternsexperienced.TheETAWhassignificantvariations
whicharedependentonchangesinweather. Thisincludesvariationsinprecipitation,temperature,and
windswhichallaffecttheamountofwaterrequiredforoptimumcropproduction. Theagricultural
17
SolanoIrrigationDistrict
MunicipalServiceReview PresentandPlannedCapacity
waterbalanceanalysisshowsvariationsincroppingpatternshaveoccurredduringthestudyperiod.
Additionalchangesinthetypeofcropsbeingplantedandcropacreagecanalterthecropwater
demands.
Thereviewofprojectedagriculturalwaterdemandsneedstoconsiderongoingimprovementsinwater
deliveryefficiency. WaterdeliverylossesintheSIDdistributionsystemandtheon-farmdelivery
systemsofindividualfarmerstogetherwithoperationalspillsandtherecoveryandreuseoftailwater
areallfactorsaffectingtherequiredquantityofSIDwaterdeliveries. SIDhasarehabilitationand
bettermentprogramwhichcontinuestoimproveinfrastructurewhichhelpstoreducelosses.This
includesinstallingconcreteliningincanalsnotoriginallylinedtoreduceseepagelosses,automatic
controlgates,andSupervisoryControlandDataAcquisition(SCADA)systemstobettermonitor
operationalspillsandreduceunnecessarywatersupplylosses. Allpotential,costeffectivecontrol
measurestofurtherreducewaterlossesandimprovetheefficiencyofsurfacewaterdeliveriesare
investigated. Asthevalueofwaterincreases,manyfarmersinSIDarealsomakingchangesand
improvementstotheiron-farmwaterdeliverysystems.Thisincludescapturingandreusingagricultural
tailwaterreturnflowsandinstallingnewwaterdeliverysystems. OverthelastfiveyearsSIDhasseenan
increasednumberoffarmersinstallingmicrosprayanddripirrigationsystemsonnewlyplanted
orchards. Continuedtechnologicalimprovementinwaterdeliveryefficiencywillfurtherreducethe
waterdeliveryneededtomeettheannualSIDETAW. AcurrentestimateofSIDwatersuppliesand
waterdemandsprojectedto2034isprovidedinTable6.2.
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MunicipalServiceReview PresentandPlannedCapacity
TABLE 6.1-Normalized Evapotranspiration ofApplied Water(ETAW)
ForSID AgriculturalAcreage1991-2010
Seasonal ET ofApplied Water(ac-ft)
Other Pasture/ Representative
Corn Grain Annual Hay Tree/ Vine Total Year
4,219 4,215 14,946 24,562 9,031 56,974 1998
4,680 5,764 17,315 28,469 10,638 66,866 1995
4,865 5,404 17,271 30,792 11,364 69,695 1993
4,695 5,942 16,512 30,921 11,964 70,035 2010
4,956 5,840 17,858 31,038 11,162 70,854 2006
5,005 5,548 17,785 31,734 11,814 71,885 1996
4,853 5,970 17,490 31,640 12,039 71,993 2005
4,819 5,743 16,975 33,711 12,926 74,174 2000
5,177 6,420 18,905 32,438 11,380 74,320 1991
5,088 6,405 18,730 34,264 12,493 76,980 2003
5,031 6,192 17,795 36,109 13,569 78,696 2009
5,171 5,940 18,419 36,077 13,327 78,933 1992
4,929 6,544 18,187 36,691 14,095 80,445 1999
5,093 6,721 18,460 37,882 14,329 82,485 1994
5,259 6,739 18,703 38,888 14,449 84,039 2004
5,339 6,513 18,959 38,770 14,461 84,042 2001
5,088 6,919 18,170 40,132 15,606 85,914 2007
5,333 7,212 19,707 39,142 14,772 86,166 2008
5,452 7,244 19,793 40,235 15,397 88,121 2002
5,444 7,643 19,849 42,592 15,572 91,101 1997
Average 77,186
Source:DavidsEngineering2014
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SolanoIrrigationDistrict
MunicipalServiceReview PresentandPlannedCapacity
TABLE 6.2
SIDWaterSuppliesandWater Demands
AgWaterBalanceScenarioTypes 1
SIDWaterSupplies (QuantitiesinAF)
A B C
Minimum Average Maximum
1. SolanoProjectAllocation 141,000 141,000 141,000
2. GroundwaterPumping (HistoricMinimum,Average,andHistoricMaximum) 2,300 5,000 14,000
EstimatedRangeTotalWaterSupply(AF) 143,300 146,000 155,000
SIDWaterDemands
1. AgWaterDemand-TheestimatedrangeofSIDAgriculturalWaterDemands
isbasedonWaterBalanceScenarioTypes,definedbelowinthefootnotes.
SIDETAWforWaterScenarioTypes(AF)
A B C
56,9742 77,1863 91,1014
TheETAWaretheinfieldcropwaterdemandsanddonotincludeestimated
distributionsystemlossesandon-farmlossesexperiencedindeliveringand
applyingtheirrigationwater. Theseareestimatedat30.1%intheWaterBalance
Analysis.TheestimatedWaterDeiliveriesrequiredtomeettheEtaware
estimatedbydividingtheETAWby69.1%.
SIDEstimatedRangeforAgWaterDemands (AF) (82,452) (111,702) (131,839)
2. SIDMunicipal&IndustrialDemands (AF) (5,240) (5,300) (5,650)
3. SIDSupplyProvidedtoSuisun-SolanoWaterAuthority (AF) (2,400) (3,150) (3,900)
EstimatedRangeTotalSIDWaterDemands(AF) (90,092) (120,152) (141,389)
SIDWATERSUPPLYCITYCOMMITMENTS
1. VacavilleAgreement (3,000) (6,525) (9,325)
2. FairfieldAgreements (3,820) (10,920) (19,386)
3. Benicia (2,000) (2,000) (2,000)
EstimatedRangeSIDWaterSupplyCityCommitments(AF) (8,820) (19,445) (30,711)
1TheWaterScenarioTypesweredevelopedbyDavidsEngineeringandSIDduringarecentDistrictWaterBalanceAnalysis. For
WaterSupplyand Demands,"Minimum"referstotheminimumsupplyordemandavailableorrequiredduringtheperiodofrecord,
the"Average"refers totheaveragesupplyordemandovertheperiodofrecord,andthe"Maximum"representsthemaximum
supplyordemandanticipatedinthefuturethrough2034.
2TheMinimumNormalizedETAWexperiencedfrom1991-2010. SeeTable6.1.
3TheAverageNormalizedETAWcalculatedbetween1991-2010. SeeTable6.1.
4TheMaximumNormalizedETAWexperiencedfrom1991-2010. SeeTable6.1.
Source:SummersEngineering2014
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SolanoIrrigationDistrict
MunicipalServiceReview PresentandPlannedCapacity
Thetabulateddataforwaterdeliveredtocitiesshowsaminimumdemand(today’scontractualamount
tosupply,notwatersheldintrust),amaximumdemand(maximumwaterrequiredtodeliverby
contractinyear2034),andanaveragedemand(anaverageoftheminimumandmaximumbasedon
waterentitledandheldintrust).Thesevariousdemandsareshowntoillustratetheuseofcarryover
waterthatisstoredinLakeBerryessa.
SIDreceives100percentofitssurfacewaterfromLakeBerryessa. Groundwaterfordomestic
consumptioncomesfromwellsinElmira,QuailCanyon,StockingRanch,andfivewellsintheDixon-
SolanoWaterAuthorityarea. Additionally,SIDmaintains29agriculturalwells.
SIDalsoprovidesdomestic-waterservicetoseveralareasoftheunincorporatedcounty,alongwiththe
citiesofVallejo,SuisunCity,andVacaville. TheDistrictprovidespotablewaterservicetoDixon-Solano
WaterAuthority,SuisunSolanoWaterAuthority,Elmira,QuailCanyon,BlueRidgeOaks,PeabodyRoad
commercialarea,GibsonCanyon,StockingRanch,and,PleasantHillsRanchEstates. Inaddition,
agriculturalwaterisprovidedtoElmira,VacaValley,PleasantsValley,SuisunValleyandtheDixonarea.
Non-potablewaterforutilizationinlandscapingisprovidedtoTolenas,GreenValley,andbusinesses
andindustrylocatedintheGreenValley,Fairfield,Cordelia,andVacavilleareas. Atpresent,two
capitalimprovementprojectsareplannedforpotablewatersystems.Thefirst,contingentuponthe
outcomeofProposition50grantfunding,isawatertreatmentplanttoprovidepotablewatertothe
PleasantHillsRanchEstatesdevelopment. Theotheristhereplacementofthemembranesatthe
GibsonCanyonWaterTreatmentPlant.
TheDistrictisalsooperatingunderacomplianceagreementwiththeCaliforniaDepartmentofPublic
Healthforvariousnon-publicwatersystemsscatteredthroughouttheDistrict.Approximately114of
thesetypesofcustomersexist.Thenon-publiccustomershaveanoldPointOfEntry(POE)treatment
devicesthat,priortothesurfacewatertreatmentrulechangesinthemid1990’s,sufficientlytreated
rawwaterforuseaspotablewater.Asaninterimmeasure,acomplianceagreementwasexecuted.The
ComplianceAgreementallowsforbottledwatertobeconsumedforcookinganddrinkinginsidethe
home,withnonewgrowthallowed.TheSIDcontinuestoinvestigateoptionstoprovidepotablewater
totheseusersthatarescatteredthroughouttheDistrictboundary.
Inadditiontoservingitsownservicearea,SIDhasvariouswatersupplyandexchangeagreementswith
otherSolanoCountyagencies.
Suisun-SolanoWaterAuthority
TheCityofSuisunandSIDenteredintoaJointPowersAuthority(JPA)Agreementin1988,referredtoas
theSuisun-SolanoWaterAuthority(SSWA),andfullyimplementedin1991. UndertheSSWA,SID
operatesawatertreatmentplanttotreatwateronSuisun’sbehalf. Thatwatertreatmentplanttreats
Suisun’s1,600AFYofcontractedSolanoProjectwatersanddeliversittotheserviceareafor
distribution.
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MunicipalServiceReview PresentandPlannedCapacity
MainePrairieWaterDistrictExchange
SIDhasashortterm(fiveyears)IrrigationTailWaterExchangeAgreementwithMainePrairieWater
District(MPWD),toexchangeandprovideSolanoProjectwaterbasedonseveraltiersofsupply.
VallejoExchange
SIDmaintainsaserviceexchangeagreementwiththeCityofVallejoinwhichVallejoprovidesrawwater
servicetoTolenas,withinSID’sservicearea,andinexchange,SIDdeliversanequalamountofrawwater
toVallejo’sGreenValleyTreatmentPlant.
Benicia,MPWDPurchases
SIDprovides2,000AFtotheCityofBeniciathroughapurchaseagreement.Previously,theCityof
BeniciahasnegotiatedinformalpurchaseswithSIDforSolanoProject(SP)watertoaugmentsupplies.
SuchpurchasesusuallyoccurredduringthewintermonthsorwhenwaterfromtheNorthBayAqueduct
wasunavailable.
FairfieldAgreements
AmendmentNo.2,executedin2002,toanagreementbetweenSIDandFairfieldenteredintoin1974
addsFairfield-SuisunSewerDistrict(FSSD)asapartyandre-titlestheagreementthe“SecondAmended
Agreement.” TheSecondAmendedAgreementprovidesFairfieldwithupto7,000AFYof“1974
commonboundarySPwater”deemednecessaryandsufficienttoservealllandsthatwereinthe1974
commonboundariesofSIDandFairfield(including,mostnotably,theAnheuser-Buschbrewery). This
amountrepresentsa1,000-AFYincreaseoverthe1974agreement. The1974agreementandSecond
AmendedAgreementalsoprovideFairfieldwithupto9,018AFof“pre-1974optionSPwater”annually,
basedonlandsthathadbeeninSIDpriorto1974buthaddetacheduponannexingtotheCity. Thetotal
amountofSPwateravailabletoFairfieldfromtheSecondAmendedAgreementis16,018AFY.
FairfieldandSIDenteredajointexerciseofpowersagreement(JPA)in1987thatestablishedabasisfor
SIDtoprovidethewatertoservelandswithinthecommonboundariesofthetwoagenciesnotcovered
underthe1974agreement(nowtheSecondAmendedAgreement). WaterserviceunderthisJPAis
typicallysuppliedbydualsystems,potablewaterfromFairfield,andnon-potablewaterfromSID. All
rawwaterissuppliedbySIDorreimbursedtoFairfield. Watersuppliesareprovidedunderseparate
“waterservicesub-agreements”pursuanttotheJPA. Since1987,thetwoagencieshaveenteredthree
waterservicesub-agreements. Thethreesub-agreementsprovideaminimumof1AFYofrawwaterper
acreoractualquantityreimbursementtoFairfieldfromSIDforpotablewaterservedtolandsspecified.
Thecurrenttotalacreagespecifiedisapproximately450acres. Inaddition,SIDprovidesdirectirrigation
waterservicetoalimitednumberofpropertieswithintheFairfieldcitylimitsoutsideofanyagreements
betweenthetwoagencies. Inaddition,SIDprovideswaterdirectlytoasmallnumberofirrigation
customerswithintheFairfieldcitylimitsbasedonservicethatexistedpriortothepropertybeing
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SolanoIrrigationDistrict
MunicipalServiceReview PresentandPlannedCapacity
annexedintoFairfield(e.g.,VandenHighSchool,FairfieldHighSchool,BuschProperties)orunder
subsequentoutside-districtwaterserviceagreements(e.g.,B.GaleWilsonElementarySchool,historic
Watermanranch). Thesuppliesprovidedunderthe1987JPAaretechnicallytomeetSIDdemands.The
majorityofthiswaterisheldintrustfortheCityofFairfield.
VacavilleAgreement
The1995MasterWaterAgreementbetweenSIDandVacavilleprovidesSPwatertoVacavillefromSID.
Thedeliveryschedulestartedat1,000AFYin1995and,basedonthesecondamendmentexecutedin
2010,increasesincrementallytoamaximumof10,050AFin2040. Theagreementexpiresin2045.
Dixon-SolanoWater Authority
In1984,Dixon-SolanoMunicipalWaterService(DSMWS)wasestablishedthroughaJPAbetweenDixon
andSolanoIrrigationDistrict. In2010,DixonandSIDenteredintoaJointPowersAuthority(JPA)
Agreement,referredtoastheDixon-SolanoWaterAuthority(DSWA). DSWAcurrentlyserves
approximately1,800customersfromawellnetworkconsistingoffourwellsrangingfrom800to1,500
feetbelowthegroundsurface. TheDSWAserviceareaiswithinSID’sservicearea. TheCityofDixon
willbeterminatingtheJPAeffectiveinAugust2014atwhichtime,Dixonwilleitheroperateit
themselvesorhireafirmtooperatethecurrentDSWAwatersystem.
6.2Groundwater
SIDalsousesgroundwaterconjunctivelywithsurfacewatersupplies. SIDhasagroundwaterwell
networkconsistingof32wellsrangingfrom400to1,800feetbelowthegroundsurface. Groundwater
isprimarilyusedtosupplementirrigationdemandsinareasconstrainedbyconveyancecapacityfor
surfacewaterdeliveries. Thehistoricalyieldofthegroundwatersystemis14,000AFY.
6.3ComparisonofWaterSupply,DemandandRemainingSupplies
Table6.3summarizestheSIDwatersupplyandtheSIDwaterdemandspresentedinTable6.2,butalso
liststheWaterSuppliesRemainingforSIDunderthethreedifferentagriculturalwaterbalancescenarios
reviewedbySID. DuetohistoricvariationsintheSIDevapotranspirationofappliedwateroccurring
fromyeartoyear(seeTable6.1),Table6.3presentsRemainingSIDWaterSuppliesforayearwithan
estimatedMinimumagriculturalwaterdemand,ayearwithanestimatedaveragewaterdemand,anda
yearwhentheagriculturalandM&Idemandsareatthemaximumtheyhaveeverbeenorareprojected
tobeinthefuture(year2034).Thismaximumyearpresentsthemaximumnormalizedagricultural
waterdemandwhichoccurredin1997duringthe1991–2010studyperiod. Thisyearwasawetyear
and1995,and1996werealsowetyears. In1997LakeBerryessawasfullandwaterwasavailable.
Farmerswantingadoublecrophadtheopportunitytodoso,andin1997manyofthemdid,thus
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SolanoIrrigationDistrict
MunicipalServiceReview PresentandPlannedCapacity
maximizingSID’scroppedacreageandtheETAWwaterrequirements.Thelikelihoodofthisdemand
beingneededorrequiredinthefutureisalsolessbecauseofreductionsintheSIDagriculturalacreage.
Inyearswhendemandwillexceedsupply(andnocarryoverwaterisavailable),SIDhasthemeans
withinitsRulesandRegulationstoimplementanallocationpolicytolimittheamountofwatersupplied
(orallocated)toeachuser. Further,bymanagingitscarryoversuppliesinLakeBerryessa(SolanoProject
entitlementwatersthatarenotusedinoneyeararecarriedovertothenextandarecumulativeuntil
LakeBerryessaspills),SIDhastheabilitytomeetdemandsinyearsthedemandwillexceedsupply. SID
hasproventhisabilityoverthelast50+yearswithonlyoneyear(1991)whenSIDimplementedawater
shortageallocationprogramtoconservewaterandprovideasupplementalurbanwatersupplytohelp
SolanoProjecturbanwaterusersmeettheirdemandsduringawatershortage.Basedontheproposed
SphereofinfluenceandthedataprovidedinTable6.1,theaverageannualdemandresultsin
approximately3,500AF.Ofwhat?
TABLE 6.3
SIDWaterSupplies,WaterDemands&RemainingSupplies
AgWaterBalanceScenarioTypes 1
SIDWaterSupplies (QuantitiesinAF)
A B C
Minimum Average Maximum
EstimatedRangeTotalWaterSupply(AF) 143,300 146,000 155,000
SIDWaterDemands
EstimatedRangeTotalSIDWaterDemands(AF) (90,092) (120,152) (141,389)
SIDWATERSUPPLYCITYCOMMITMENTS
EstimatedRangeSIDWaterSupplyCityCommitments(AF) (8,820) (19,445) (30,711)
SIDRemainingWaterSupply (AF)
(=TotalWaterSupply-SIDDemands-CityCommitments) 44,388 6,403 -17,100
1TheWaterScenarioTypesweredevelopedbyDavidsEngineeringandSIDduringarecentDistrictWaterBalanceAnalysis. For
WaterSupplyand Demands,"Minimum"referstotheminimumsupplyordemandavailableduringtheperiodofrecord,the"Average"
referstotheaveragesupplyordemandovertheperiodofrecord,andthe"Maximum"representsthemaximumsupplyordemand
anticipatedinthefuturethrough2034.
Source:SummersEngineering2014
24
SolanoIrrigationDistrict
MunicipalServiceReview PresentandPlannedCapacity
TheDistrict,inconjunctionwiththeotherwateragenciesaspartoftheSolanoProjectagreement,hasa
droughtplaninplacecalledtheSolanoProject(SP)DroughtMeasuresAgreement. Indroughtyears,SID
andMPWDwillsharewaterallotmentswiththecitiescoveredbytheSPagreement. Theallotmentfor
eachagencyisreducedasshowninTable6-4.
Table6-4:SolanoProjectDroughtMeasuresAgreement
SPStorage(acre-feet) Date Action
800,000orless December1 DevelopDroughtContingencyPlan
1.1million April1 Dropplan
550,000to800,000 April1 Partiesforgoatleast5%ofentitlement
450,000to550,000 April1 Partiesforgoatleast10%ofentitlement
Source:SP1999
DETERMINATIONS:
6.1 TheDistricthasthecapacitytoprovidewatertocurrentcustomers.
6.2 TheDistricthasanaverageannualexcesscapacityof6,400AFanditislikelytheDistricthas
sufficientcapacitytoservethoseareasintheproposedSphereofInfluence.
25
SolanoIrrigationDistrict
MunicipalServiceReview FinancialAbilitytoProvideServices
7: FINANCIAL ABILITY TO PROVIDE SERVICES
TheSIDfiscalyearbeginsonJanuary1andendsonDecember31. InDecember2012SIDadoptedan
operatingbudgetof$6.67millionforfiscalyear2013. Salesofagriculturalwateraccountedfor39%of
therevenuesandstandbycharges14%. Othermajorsourcesofoperatingrevenuescamefromcity
watertransfers10%,propertytax9%,thepowerplant,municipalandindustrial,andotherassessments
with7%each,andFairfieldWaterwith6%. Inadditiontooperatingrevenuestheyalsoreceivenon-
operatingrevenuesprimarilyfromagreementswithotherentitiessuchasSuisun-SolanoWater
AuthorityandDixon-SolanoWaterAuthority,thepowerplantatMonticelloReservoir.
Table7.1summarizesrevenuesandexpensesforthefiveyearperiod2008-2012. TheTableshows,
whenincludingjointventureoperations(SSWA,DSWA,etc.)thattotalrevenuesaregenerallyinthe
$14-16millionrange. Themajordifferencesoccurredin2009and2011.
Table7-1:SolanoIrrigationDistrictRevenuesandExpenses2008-2012
Year Operating Non- Total Operating Non- Total Net
Revenues Operating Revenues Expenses Operating Expenses
Revenues Expenses
2008 $4,808,992 $13,040,584 $17,849,576 $16,382,297 $983,427 $17,365,724 $483,852
2009 $14,849,935 $13,301,800 $28,151,735 $15,834,781 $980,815 $16,815,596 $11,336,139
2010 $5,338,294 $11,439,654 $16,777,948 $15,287,619 $1,301,470 $16,589,089 $188,859
2011 $5,634,641 $8,658,118 $14,292,759 $16,047,668 $2,499,055 $18,546,723 $-4,253,964
2012 $5,362,987 $11,496,296 $16,859,283 $13,843,347 $844,849 $14,688,196 $2,171,087
Source:Maze&Associates2010,2012,2013.
In2009,revenuesincludedaonetimereceiptof$10.0millionassociatedwiththeexecutionofan
agreementtosupply4,000acrefeetofwatertothecitiesofFairfieldandBenicia. The$10.0millionwas
used,inpart,tofacilitatethepurchaseofthenewofficespace,thewarehouse,andtheassociated
vacantland.
In2011powerplantrevenuesdecreasedby$2.8millionduetothetimingofthereceiptofcashfrom
PG&EtomaketheJanuaryprincipalpaymentontheMonticelloPlantProject2006and1986Refunding
Hydroelectricbonds.In2010thefundswerereceivedandrecordedasrevenueinDecember2010;
whereas;in2011thefundswerereceivedandrecordedasrevenueinJanuary2012.
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SolanoIrrigationDistrict
MunicipalServiceReview FinancialAbilitytoProvideServices
ForfiscalyearendingDecember31,2012,thelastauditedfinancialstatements,theDistricthasatotal
debtofapproximately$19.3million. TheDistrictgenerallyincurslong-termdebttofinanceprojectsor
purchaseassets. ThemajorityoftheDistrict’sdebt,approximately$16.8million,canbeattributedto
theMonticelloPowerProject1986RefundingHydroelectricRevenueBonds.SIDalsohasImprovement
Districtswhichaccountforapproximately$3.8millionoftheirlongtermdebtobligations. The
ImprovementDistrictsarehighlightedinTable7-2below. Theremaininglongtermdebtsinclude
EconomicDevelopmentAdministration,forwhichthefundsareusedfortheacquisition,construction,
andcompletionofimprovementstotheDistrict’swatersystem. Additionally,theDistricthasacopier
capitalleasecontractthatisdueinJanuary2014.
Table7-2:SolanoIrrigationDistrictImprovementDistrictsDebtService
Improvement DateEntered OriginalIssueAmount DueDate BalanceasofDec31,2012
District IntoContract
ElmiraID Jan2004 $416,325 4-1-2014 $38,380
GibsonCanyonID June2000 $2,127,300 1-1-2024 $1,390,274
BlueRidgeID January2004 $866,000 2025 $646,801
PeabodyID January2004 $386,000 2025 $270,774
Source:Maze&Associates2013.
In2012theDistrictinitiatedaratestudytoevaluatetheDistrict’sfinancialneedsandtrends. Someof
theneedsweredeterminedbytheDistrict’sfinancialplanassumptions. Theyinclude2.6%inflation,a
50%reservein3years,negligibleinterestincome,thepresentcustomerbaseanddemandas
representativeofthefuture,thesaleofexcessproperty,andfundingforpost-employmentretirement
benefits.Otherkeyfactorswerelossofrevenue,limitsonuseofrevenues,fundingsources,and
controllablerevenue. Consideringallthesefactors,thestudyrecommendedaminimumannual
increaseof9-10%startingin2013andcontinuingeveryyearuntil2021. OnFebruary19,2013the
District’sBoardapproveda9%increasetotheirwaterratecharges. Table7-3showstheratesfor2013
and2014.
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SolanoIrrigationDistrict
MunicipalServiceReview FinancialAbilitytoProvideServices
Table7-3WaterRatesEffective2013
AccountType 2013Rates 2014Rates
Agricultural($/AF)
AgWater–Gravity $23.34 $25.44
AgWater–Lifted $38.90 $42.40
Deepwell $58.53 $63.80
Stockwater(to30head)($/yr) $46.68 $50.89
Stockwater(>30head)($/yr) $58.36 $63.61
RotationalDelivery-Gravity($/acre) $74.71 $81.43
RotationalDelivery-Lifted($/acre) $124.49 $135.69
M&INonPotable($/CCF)
Raw $0.38 $0.42
Filtered $0.39 $0.43
Filtered&Chlorinated $0.46 $0.50
PublicAgencies $0.55 $0.59
M&IPotable/PublicWaterSystems
($/CCF)
StockingRanch $10.37 $11.30
BlueRidgeOaks $8.21 $8.95
Peabody $7.41 $8.08
QuailCanyon $1.46 $1.59
GibsonCanyon $1.42 $1.54
Elmira $1.31 $1.43
Tolenas $0.52 $0.57
Source:SID2013b
DETERMINATIONS:
7.1 SIDhasanoperatingbudgetofapproximately$7million. Alongwithjointventureoperations
thebudgetisgenerallyinthe$14-16millionrange.
7.2 Between2008and2012SIDhasshownasurplusinfourofthefiveyears. In2009thesurplus
wasduetothesaleofwaterrightstotheCitiesofFairfieldandBenicia. In2011therewasa
28
SolanoIrrigationDistrict
MunicipalServiceReview FinancialAbilitytoProvideServices
shortfallof$4millionduetoalatepaymentbyPGEandthecosttodemolishtheElmira
headquartersbuilding.
7.3 SIDprovidespotablewatertoseveralcommunitiesandcreatesanimprovementdistricttoset
ratesspecifictothoseareas. Theratesallowfortherepaymentofdebtincurredtoprovidethat
service.
7.4 In2013SIDapprovedarateincreasetocoveranticipatedcostsduetoinflation,replenishan
operatingreserve,andbegintosavetowardthecostsofpost-retirementbenefits. Thenew
ratesallowSIDtoimplementitsfinancialplansoSIDwillhavethefinancialsufficientresources
toprovideservices.
29
SolanoIrrigationDistrict
MunicipalServiceReview StatusandOpportunitiesforSharedFacilities
8: STATUS AND OPPORTUNITIES FOR SHARED FACILITIES
Managementandoperationalefficienciesareprovidedbycooperativearrangementwithother
agencies.Thesearrangementsareprovidedbythefollowing:
(cid:120) SolanoWaterAuthority(forwhichanSIDrepresentativeservesasSecretaryandTreasurer)
(cid:120) SolanoProjectTaskForce
(cid:120) NoonanReservoirTaskForce
(cid:120) ImportedWaterSupplyTaskForce
(cid:120) CoordinatedGroundwaterDataAnalysisTaskForce
AdditionallySIDtakespartinseveralothercommitteesandagreementsincluding:
(cid:120) SolanoCountyAgriculturalWaterManagementCommittee
(cid:120) SolanoWaterEducationCommittee
(cid:120) SID/FairfieldWaterServicesAgreement
(cid:120) SID/VacavilleMasterWaterAgreement
(cid:120) SID/VallejoAgreement(exchangeofwater)
(cid:120) SID/MainePrairieWaterDistrictAgreement(forcoordinatingLakeBerryessawatersupplies)
(cid:120) SID/CountyAgriculturalCommissionerAgreement(forsharingshopspaceatSIDyard)
(cid:120) DSWA JointWaterServiceinDixon
(cid:120) SSWAJointWaterServiceinSuisunCity
(cid:120) SID/RCDAgreementregardingdrainagemanagement
(cid:120) SCWA/SIDAgreementforoperationandmaintenanceoftheSolanoProject(LAFCOPartII)
TheSIDalsopartnerswiththeCityofDixonandSuisunCityforwaterdeliverythroughajointpowers
agreement.TheSIDalsoparticipatesinpurchasingagreementswithotherlocalwatertreatmentplants
inordertoobtainbestpricingonchemicalpurchases,anditisinaninsurancepoolwiththeAssociation
ofCaliforniaWaterAgenciesJointPowersInsuranceAuthority.However,theCityofDixon,inAugust
2012,votedtodissolvetheDSWAJPA.ThisdissolutionwillbecomeeffectiveinAugust2014.
DETERMINATIONS:
8.1 TheDistrictworkscooperativelywithothermunicipalagenciesandsharesfacilitieswitha
numberoflocalagencies.
30
SolanoIrrigationDistrict
MunicipalServiceReview GovernmentStructureandAccountability
9: GOVERNMENT STRUCTURE AND ACCOUNTABILITY
TheSIDhasfiveelectedmembersonitsBoardofDirectors.TheDistrictisdividedintofivedivisions,
andeachboardmemberiselectedbydivisiontoa4-yearterm.BoardmeetingstakeplaceattheSID
BoardRoomlocatedat810VacaValleyParkwayinVacavilleonthethirdTuesdayofeverymonthat7
p.m.BoardMeetingsarenoticedinthreelocalnewspapersandpostedattheSIDBoardRoom.The
districtmaintainsawebsitelocatedathttp://www.sidwater.org.ThewebsiteallowstheDistrictto
communicatewithitsresidents.Itincludesmeetingagendas,informationonwaterquality,irrigation,
reports,andkeylinks.
Exhibit2showstheagency’sorganizationalchart. SIDhas78employeesofwhichsixareexecutivesor
management. MostemployeesareundertheWaterandPowerOperationsManagerintheWaterand
PowerDivision.StaffingisallocatedaccordingtotheDistrictfunctionswhichincludepotablewater,
irrigationwater,andtheSolanoProject.Theexhibitalsoshowsthereare15vacantpositions.
DETERMINATIONS:
9.1 SIDisgovernedbyafivememberboardelectedbydivisiontofouryearstaggeredterms.
9.2 TheBoardofDirectorsmeetsregularlyonthethirdTuesdayofthemonth. Meetingsare
noticedinthreelocalnewspapersandpostedontheDistrictwebsite. TheDistrictusesits
websitetocommunicatewithratepayers.
9.3 SIDhas78employeesand15vacanciesforatotalstaffof93. Staffingisallocatedaccording
Districtfunctions.
31
SolanoIrrigationDistrict
MunicipalServiceReview GovernmentStructureandAccountability
Exhibit2:SIDOrganizationalChart
32
SolanoIrrigationDistrict
MunicipalServiceReview SummaryofDeterminations
10: LAFCO POLICIES AFFECTING SERVICE DELIVERY
SeveralofLAFCO’spoliciesmayaffecttheoperationoftheDistrict. AstheDistrictupdatesandamends
itssphereofinfluencetherevisedLAFCOspherepolicywillguidetheprocess. Thenewspherepolicy
allowsforneartermandlongtermspheres,wheretheneartermsphereincludesterritorythatwillbe
proposedforannexationinthenextfiveyears. Thelongtermsphereisdesignedtoincludeterritory
thatwillbeservedinthenext5to20years.
InthepastSIDhasreceivedmanyrequestsforoutofareaservices. GovernmentCodeSection56133in
CKHdescribestheconditionsthatLAFCOmayallowoutofareaservices. Generallyoutofareaservices
arepermittedifthesubjectterritoryiswithinthesphereandannexationisimminent. Anexceptionis
forhealthandsafetyissues. LAFCOpoliciesidentifyconditionsunderwhichqualifyasahealthand
safetyissue. Forexampleacontaminatedwatersourceorawellthatdoesnotproduceadequatewater
supplywouldmeettherequirements. AsapurveyorofwaterSIDisoftenrequestedtoprovideoutof
areaservicesonjustsuchoccasions.
OftenwhenanareaisdevelopeditisdetachedfromSIDsincetheDistrictwasonlyprovidingirrigation
water. LAFCOhaspermittedSIDtoadoptadetachmentfeeschedulewhichcanbeimposedasa
conditionofannexation. ThedetachmentfeeisintendedtocompensateSIDforrevenuelosses. The
feewasestablishedin1985andshouldbereviewed.
Determination:
10.1 SeveralofLAFCO’spoliciescanaffectSID’sservicedelivery. Theyincludethespherepolicy
whichisappliedtoareasthattheDistrictwouldliketoserveintheneartermandlongterm.
10.2 SIDisoftenrequestedtoprovideservicesoutsideitsboundarysoLAFCO’soutofareaservice
policyapplies.
10.3 LAFCOpolicyallowingdetachmentfeesintendedto compensateSIDforlossofrevenuesand
increasesinexpenseswhenanareaisdetachedandannexedtoacity.Thefeewasestablished
in1985andshouldbereviewed.
33
SolanoIrrigationDistrict
MunicipalServiceReview SummaryofDeterminations
11: SUMMARY OF DETERMINATIONS
4.1 WhilethepopulationthatbenefitsfromservicesprovidedbytheDistrictapproachesthree
quartersofthepopulationofSolanoCountyonlyapproximately37,000peopleresidewithinthe
Districtboundariesandanestimated10residentsliveintheproposedSOI.
4.2 ThepopulationinSolanoCountyisexpectedtoincreaseby5%overthenextfiveyears. Since
mostoftheSIDterritoryisoutsidethecitiestheanticipatedCountygrowthratecanbeusedto
estimategrowthintheDistrictandproposedSOI. At5%growththeDistrictandproposed
spherewouldhaveapproximately38,900residentsby2020.
5.1 TherearenodisadvantagedunincorporatedcommunitiesadjacenttotheboundariesofSIDor
intheproposedSOI.
6.1 TheDistricthasthecapacitytoprovidewatertocurrentcustomers.
6.2 TheDistricthasanaverageannualexcesscapacityof6,400AFanditislikelytheDistricthas
sufficientcapacitytoservethoseareasintheproposedSphereofInfluence.
7.1 SIDhasanoperatingbudgetofapproximately$7million. Alongwithjointventureoperationsthebudget
isgenerallyinthe$14-16millionrange.
7.2 Between2008and2012SIDhasshownasurplusinfourofthefiveyears. In2009thesurplus
wasduetothesaleofwaterrightstotheCitiesofFairfieldandBenicia. In2011therewasa
shortfallof$4millionduetoalatepaymentbyPGEandthecosttodemolishtheElmira
headquartersbuilding.
7.3 SIDprovidespotablewatertoseveralcommunitiesandsetsratesspecifictothoseareas. SID
providespotablewatertoseveralcommunitiesandcreatesanimprovementdistricttosetrates
specifictothoseareas. Theratesallowfortherepaymentofdebtincurredtoprovidethat
service.
7.4 In2013SIDapprovedarateincreasetocoveranticipatedcostsduetoinflation,establishan
operatingreserve,andthecostsofpost-retirementbenefits. ThenewratesallowSIDto
implementitsfinancialplansoSIDwillhavesufficientfinancialresourcestoprovideservices.
8.1 TheDistrictworkscooperativelywithothermunicipalagenciesandsharesfacilitieswitha
numberoflocalagencies.
9.1 SIDisgovernedbyafivememberboardelectedbydivisiontofouryearstaggeredterms.
34
SolanoIrrigationDistrict
MunicipalServiceReview SummaryofDeterminations
9.2 TheBoardofDirectorsmeetsregularlyonthethirdTuesdayofthemonth. Meetingsare
noticedinthreelocalnewspapersandpostedontheDistrictwebsite. TheDistrictusesits
websitetocommunicatewithratepayers.
9.3 SIDhas78employeesand15vacanciesforatotalstaffof93. Staffingisallocatedaccording
Districtfunctions.
10.1 SeveralofLAFCO’spoliciescanaffectSID’sservicedelivery. Theyincludethespherepolicy
whichisappliedtoareasthattheDistrictwouldliketoserveintheneartermandlongterm.
10.2 SIDisoftenrequestedtoprovideservicesoutsideitsboundarysoLAFCO’soutofareaservice
policyapplies.
10.3 LAFCOpolicyallowingdetachmentfeesintendedto compensateSIDforlossofrevenuesand
increasesinexpenseswhenanareaisdetachedandannexedtoacity.Thefeewasestablished
in1985andshouldbereviewed.
35
SolanoIrrigationDistrict
MunicipalServiceReview References
12: REFERENCES
CDOF.2013a.2008-2012AmericanCommunitySurvey(5yearestimate)TotalPopulationandMedian
AgeCalifornia,Counties,IncorporatedCities,andCensusDesignatedPlaces. Website:
http://www.dof.ca.gov/research/demographic/state_census_data_center/census_2010/#SF2.
AccessedDecember30,2013.
CDOF.2013b.ReportP-1(County):StateandCountyTotalPopulationProjections,2010-2060(5-year
increments). Website:http://www.dof.ca.gov/research/demographic/reports/projections/p-1/.
AccessedDecember31,2013.
CDOF.2013c.2008-2012AmericanCommunitySurvey(5-yearestimates)SelectedDataforCalifornia,
Counties,IncorporatedCitiesandCensusDesignatedPlacesIncome,Poverty,andEmploymentStatus.
Website:
http://www.dof.ca.gov/research/demographic/state_census_data_center/american_community_surve
y/.AccessedDecember30,2013.
CaliforniaSpecialDistrictAssociation.2012.ComprehensiveOverviewofTypesofSpecialDistricts.
February1.
DavidsEngineering.2014.TechnicalMemorandum:SummaryofSolanoIrrigationDistrictAgricultural
WaterDemandAnalysis.March11.
Governor’sOfficeofPlanningandResearch.2003.LocalAgencyFormationCommissionMunicipal
ServiceReviewGuidelinesVolume1andVolume2.August.
Maze&Associates.2010.SolanoIrrigationDistrictBasicFinancialStatementsfortheYearsEnded
December31,2009and2008.April8.
Maze&Associates.2012.SolanoIrrigationDistrictBasicFinancialStatementsfortheYearsEnded
December31,2011and2010.May11.
Maze&Associates.2013.SolanoIrrigationDistrictBasicFinancialStatementsfortheYearsEnded
December31,2012and2011.May10.
NBS.2012.FinalWaterRateStudyFindings,RecommendationsandProposedRates.March22.
SP.1999.SolanoProjectMembers’AgreementastoDroughtMeasuresandWaterAllocation.March1.
SID.2012.AdoptedOperatingBudgetFY13/14.December18.
SID.2013a.FactSheetRegardingSolanoIrrigationDistrict’sFinancialPlanandProposed9%WaterRate
Increase.January4.
SID.2013b.WaterRatesimplementedResolutionNo.13-06February19.
SID2013c.Websitehttp://sidwater.orgaccessed12/17/13.
36
SolanoIrrigationDistrict
MunicipalServiceReview References
SummersEngineering.2014.WaterSupplyAssessmentfortheMiddleGreenValleySpecificPlanProject.
April.
TheReedGroup,Inc.2012.SolanoIrrigationDistrictFinancialPlanandWaterRateUpdate.November27.
37
SolanoIrrigationDistrict
MunicipalServiceReview AppendixA-Comments
Appendix A: Comments Received
SolanoIrrigationDistrict
MunicipalServiceReview AppendixA-Comments
Pleasant Hills Ranch Estates (PHRE) Potable Water System
History, Health and Financial Concerns, Proposals, Involved Parties
JM Report dated 2/27/2014
This report was prepared by James May, P.E. and PHRE Property Owner and was sent to all
listed parties. Comments are requested from all: Phone 970-240-1155, Email
JimMxx1@gmail.com
Chronological Description of Events
(cid:120) In 1976, 38 years ago, the Solano Irrigation District (SID) constructed a water
system for the PHRE community, The land owners connected the untreated SID
water to their Point-Of-Entry (POE) treatment devices to obtain potable water.
This system now has acknowledged health risks under current laws. This
system exists today in its original form.
(cid:120) In 1989, the Surface Water Treatment Rule of the Safe Drinking Water Act
provided stringent regulations for Public Water Systems.
(cid:120) In 1998, the CA Dept of Public Health (CDPH) declared that the SID supplied
water system was a Public Potable Water System.
(cid:120) In 2004 CDPH/EPA identified the health risks and issued Compliance Order #02-
04-03CO-001. California Health & Safety Code and Title 22 of the California
Code of Regulations provide the legal requirements for potable water systems.
These laws include the requirement that a system with more than 15
connections, must comply with the state and federal potable water quality
standards.
(cid:120) Since 2004, the Compliance Order has forced SID to investigate various plans,
project possibilities, and funding options.
(cid:120) As a temporary measure:
o SID must supply bottled potable water to the 22 existing PHRE homeowners.
o SID must notify the PHRE home owners that they, in party with SID, violate
Title 22 of the California Code of Regulations.
o New homes must be build with water wells and their SID supplied water is to
be used only for irrigation purposes.
(cid:120) In June 2005, CDPH required SID to publish the above agreement by way of
Solano County Resolution #05-16. Subsequently, Solano County required that
new building permits not be issued without CDPH approvals for potable water.
(cid:120) In August/October 2007, 2 SID reports were prepared:
o SID reported that the bottled water method is not cost effective.
o SID investigated an option for a water treatment plant.
(cid:120) In October 2007, Summers Engineering, commissioned by SID, published a
Grant Funding Application Technical Report
(cid:120) In 2008, SID received a $2M Proposition 50 grant commitment for the
construction of a water treatment plant, but this commitment was frozen due to
CA budgetary issues.
(cid:120) On December 21, 2010, the SID board passed Resolution #10-66 to retain the
grant funding eligibility and to give them time to formulate a conformance plan:
SolanoIrrigationDistrict
MunicipalServiceReview AppendixA-Comments
o SID requested a CA State Revolving Fund (SRF) low interest loan for the
construction of a treatment plant, but the loan was denied because of high
treatment plant O&M.
(cid:120) In July 2011, SID sent CDPH a letter describing a treatment plant project that
SID could deliver using the $2M grant.
(cid:120) In November 2013, CDPH notified SID that to receive the $2M grant, a funding
agreement must be in place by June 2014.
(cid:120) In January 2014, the local CDPH office approved the SID treatment plant
project.
(cid:120) The recent 2/18/2014 SID Board Meeting notes describe much of the above
history and current situation. In addition, SID notified PHRE residents that the
SID proposed plan includes:
o A $2M treatment plant, with its design and construction to be paid from the
Safe Drinking Water State Revolving Fund.
o All on-going expenses to be paid by the PHRE community users. SID
estimated O&M expenses at $7000/month, and this does not include the
following:
On-going filter replacements and other O&M expenses.
Capital recovery for the treatment plant costs above the $2M estimate.
Future treatment plant rehabilitation.
Water usage charges
http://ca-sid.civicplus.com/AgendaCenter/ViewFile/Agenda/02182014-95
(cid:120) By sometime in March 2014, CDPH expects to complete their review of CEQA
compliance and financial aspects of the proposed project.
(cid:120) By April 2014, CDPH expects the SID board to sign the funding agreement and
approve the treatment plant project. SID would then have 3 years to complete
the water treatment plant project.
Health and Financial Concerns
Open-Ended Non-Compliance Health Situation
The current SID proposal includes an option to withdraw their proposal if they
decides, after bids are received, that its costs are too high. SID indicated that there
is no time limit for conformance, and only that due diligence is required. Now after
10 years of non-compliance, due diligence seems to suggest that mandatory
compliance steps should be put in place. Otherwise the existing health issues might
persist for many more years. CDPH with EPA assistance are hereby requested to
put mandatory compliance steps in place.
Proposed Water Rates - Negative Financial Impact
Currently there are 22 homes that the proposed treatment plant might serve.
This SID proposal details a water rate structure to PHRE homeowners:
(cid:120) $321 per month per homeowner for operation and maintenance of a small
treatment plant (SID estimate).
(cid:120) Future treatment plant rehabilitation expenses
SolanoIrrigationDistrict
MunicipalServiceReview AppendixA-Comments
(cid:120) Labor costs
(cid:120) Water usage
(cid:120) Other expenses not yet identified
This proposed water rate structure translates to an estimated $400 per month to
each existing homeowner. This can be compare to about $100 per month that other
homeowners in the same Vacaville community are charged for their water. Such a
large cost differential would encourage existing homeowners to leave PHRE, and
would discourage new home seekers from coming to PHRE. This SID proposed
project would create a negative impact on PHRE property values.
This SID proposal, if acted upon, could be interpreted as a terrible disservice to
PHRE residents. Such action can be viewed as a fleece to the community by
imposing unreasonably high water rates compared to what other Vacaville residents
enjoy.
Treatment Plant Investment Risk
The health situation and the large financial burden that the SID proposal puts on
residents has already encouraged 2 residents to install their own water wells which
have estimated costs of $20,000 each. Residents that have their own water wells
can then disconnect from the SID system. Eventually, the proposed $2M treatment
plant might be abandoned.
Reasonable Proposals
SID is hereby requested to detail to the PHRE land owners, Net Present Worth
economic comparisons, including its calculations for the following:
1. Current proposal for a treatment plant
2. City of Vacaville water main extension
3. Common Water well to serve the community
The comparisons of the 3 proposals, probably with a 30 year life cycle, should
include:
1. Capital costs
2. Operation and maintenance (O&M) costs
3. Rehabilitation costs
4. Labor costs
Capacity for future population growth and subsequent water demand, as well as
treatment plant and pipeline limitations, and the water rate structures should also
be included in the comparisons.
The current treatment plant proposal as presented, apparently includes very little
financial cost or risk to SID. The plant would be built with a $2M Proposition 50
grant commitment and all future expenses would be passed on to the property
owners connected to the system. The estimated SID monthly water charge per
PHRE resident is $400.
The City of Vacaville proposal would include a water main extension of
approximately 2½ miles. Many water utilities have distribution systems that reach
out 50 miles or more to serve their communities. The $2M grant money could be
SolanoIrrigationDistrict
MunicipalServiceReview AppendixA-Comments
directed to fund the pipeline cost. The City of Vacaville could recover their expenses
thru their rate structure to PHRE residents. The estimated Vacaville monthly water
charge per PHRE resident is $100.
Economic data for a water well proposal to serve PHRE is unknown.
In general, water utilities with large distribution systems have more cost effective
operations than those utilities with small distribution systems. This is demonstrated
by the lower rate structures that the larger utilities provide. Water authorities here
in California, including SID, justify constructing and operating a lot of small
systems. SID provides potable water to Dixon-Solano Municipal Water Service,
Suisun Solano Water Authority, Elmira, Quail Canyon, Blue Ridge Oaks, Peabody
Road commercial area, Gibson Canyon, and Stocking Ranch. This adds up to 8
small systems, and SID now proposes still another small system.
While water demands in rural areas justify smaller systems, PHRE is not in a rural
area. It is only 2½ miles from the Vacaville system.
As can be easily examined thru data available on the Internet, California has very
high water rates when compared to other areas in the United States. Compared to
Chicago rates, California rates are 500% higher in some areas. Perhaps better long
term planning and implementation with a different mindset could otherwise provide
much more cost effective water systems for our California residents.
This is a very large and serious concern.
SolanoIrrigationDistrict
MunicipalServiceReview AppendixA-Comments
Involved Parties
The Code of Civil Procedures, under California State Law, allows every person or
class, the right to file a lawsuit and to hold responsible parties liable for all costs,
damages, and expenses.
Solano Irrigation District (SID)
(cid:120) 2/24/2014 conversation with Paul Fuchslin, SID Engineering Manager, 707-455-
4020. General Info (707) 448-6847. According to Paul, there is no stated or
required time frame for SID to be in compliance with the Compliance Order
issued about 10 years ago in 2004. I requested:
1) 1976 PHRE agreement with SID
2) 2004 CDPH/EPA Compliance Order #02-04-03CO-001
3) I gave Paul my email address
(cid:120) 2/26/2014 phone con with Paul Fuchslin
I also requested a copy of all economic comparisons SID completed in the past.
I obtained Paul's email address: PFuchslin@SIDWater.org
SID Board of Directors
This SID board self-regulates its water rate schedules. The board is requested to
review the special potable water rate structure proposed with for PHRE by SID.
Glen Grant is the board chairman. A 2/27/2014 message was left with SID
for Glen to call me.
California Department of Public Health - CDPH
(cid:120) 2/26 Phone con with Alla Lilichenko, Phone 510-620-3601.
1) We discussed the situation regarding Compliance Order No. 02-04-03CO-001
issued in 2004, and the current SID proposal.
2) I requested a copy of the current compliance order for my review. Alla will
also sent me, a revised compliance order next week that is presently being
completed.
3) I will send Alla a copy of my report: Alla.Lilichenko@cdph.ca.gov and give
her my contact information.
4) I neglected to point out to Alla, 2 PHRE line items in CDPH's October 2013
SDWSRF Final Project Priority List for the system. One item is for a
$2,000,000 treatment plant and the other for $463,000 for POE's. I would
like an explanation for the $463,000.
EPA Region IX Water Division
(cid:120) 2/24/2014 call to Jane Diamond, Director, Ph 415-972-3275
(cid:120) 2/25/2014 Mike Montgomery 415-972-3438 returned my call. Mike will get back
to me with further advise about who is a more appropriate EPA contact.
SolanoIrrigationDistrict
MunicipalServiceReview AppendixA-Comments
Solano County LAFCO
A copy of this report was sent to EMulberg@SolanoLAFCO.com, (Elliot) Phone 707-
439-3897
Governor's Office of Planning and Research
A copy of this report was sent to Debbie.Davis@opr.ca.gov 916-322-0553
This office is directed by statute to prepare Guidelines that assist LAFCos in
complying with the new requirements for municipal service reviews. For the subject
project, SID is part of the Solano County LAFCO. Hopefully the OPR office can and
will utilize the MSR process with regards to the health and financial concerns
described in this report. Also, the OPR office may be able to provide specific
recommendations to Solano County LAFCO in order to meet the subject CDPH and
EPA compliance order.
The Municipal Service Review (MSR) Process provides comprehensive assessments
of the ability of government agencies to ensure that high quality public services are
provided to all Californians in the most efficient and effective manner.
LAFCos are the state-mandated quasi-judicial countywide Commissions whose
purview is to oversee boundary changes of cities and special districts, the formation
of new agencies, including the incorporation of new cities and districts, and the
consolidation or reorganization of special districts and or cities.
SolanoIrrigationDistrict
MunicipalServiceReview AppendixA-Comments
Emails
6:38AMFeb20,2014
Re:SIDMSR
FROMGordonStankowskiTOYou+1More
SID has a water quality problem with 70 or so customers in Pleasants Valley, I
don't see that addressed.
-------------------------------------------------------------------------------------------
TFeFeb27,2014at2:17PM
PleasantHillsRanchEstates(PHRE)PotableWaterSystem1
FromJim
To PFuchslin@SIDWater.org Alla.Lilichenko@cdph.ca.gov EMulberg@SolanoLAFCO.com
AttachedisareportIcompletedandwhichisaboutthehealthandfinancialconcernsthatthecurrent SIDproposal
raises.ThisSIDproposalisalsodescribedintheSIDBoardminutesofFebruary18th:
http://ca-sid.civicplus.com/AgendaCenter/ViewFile/Agenda/02182014-95
Wewillappreciatereceivingcommentsfromandtoobserveproductiveinteractionsbetweenthepartiesinvolved.
HopefullythereisabettersolutionthanwhatSIDiscurrentlyproposing.Wearehopefulforasolutionthatdoesnot
includeapotentiallybadcapitalinvestmentinatreatmentplantandthatwillnotraisewaterratesanestimated
400%whencomparedtowhatotherVacavilleresidentspay.Isense,especiallyforthelongterm,thatmorecost
effectivewaterservicescanbeprovidedtoususers.
Thankyouforyourconsiderations,
JimMay
SolanoIrrigationDistrict
MunicipalServiceReview AppendixB-Maps
Appendix B: Maps