Benicia Final MSR

City of Benicia Municipal Service Review Solano LAFCO Prepared By: Michelle McIntyre, Amy Million, and Suzanne Thorsen Acknowledgment: Renata Di Battista, Christina Ratcliffe, and Abigail Urrutia February 27, 2017 Solano LAFCO—Benicia MSR i February 27, 2017 Table of Contents Acronyms and Abbreviations ........................................................................................... 1-1 1.0: Introduction ................................................................................................................. 1-2 1.1 – Role and Responsibility of LAFCO ........................................................................... 1-2 1.2 – Purpose of this Municipal Service Review ................................................................ 1-2 1.3 – Uses of the Municipal Service Review ...................................................................... 1-3 1.4 – Sphere of Influence .................................................................................................. 1-3 1.5 – California Environmental Quality Act (CEQA) ........................................................... 1-4 2.0: Executive Summary .................................................................................................... 2-1 3.0: City Profile & History .................................................................................................. 3-1 4.0: Growth and Population Projections .......................................................................... 4-1 4.1 – Population................................................................................................................. 4-1 4.1.1 – Growth Trends ............................................................................................. 4-1 4.1.2 – Population Projections ................................................................................. 4-1 5.0: Disadvantaged Unincorporated Communities ......................................................... 5-1 6.0: Present and Planned Capacity of Public Facilities .................................................. 6-1 6.1 – Animal Control .......................................................................................................... 6-1 6.2 – Fire ........................................................................................................................... 6-1 6.3 – Law Enforcement ...................................................................................................... 6-2 6.4 – Parks and Recreation ............................................................................................... 6-4 6.4.1 – Types of Parks and Facilities ....................................................................... 6-4 6.4.2 – Current and Future Park Needs ................................................................... 6-5 6.4.3 – Proposed Park Facilities .............................................................................. 6-6 6.5 – Public Works ............................................................................................................. 6-9 6.5.1 – Transportation and Circulation ..................................................................... 6-9 6.5.2 – Transit Services ......................................................................................... 6-11 6.6 – Solid Waste ............................................................................................................ 6-11 6.7 – Stormwater ............................................................................................................. 6-12 6.7.1 – Benicia’s Stormwater Management Program ............................................. 6-14 6.8 – Wastewater ............................................................................................................. 6-15 6.9 – Water ...................................................................................................................... 6-16 6.9.1 – Historical Water Use .................................................................................. 6-16 6.9.2 – Projected Usage ........................................................................................ 6-19 7.0: Financial Ability to Provide Services ........................................................................ 7-1 7.1 – General Fund ............................................................................................................ 7-1 7.2 – Enterprise Funds ...................................................................................................... 7-4 7.2.1 – Wastewater Funds ....................................................................................... 7-4 7.2.2 – Water Funds ................................................................................................ 7-5 7.3 – Capital Improvements ............................................................................................... 7-6 7.3.1 – Assessment Districts ................................................................................... 7-7 7.3.2 – Benefit Districts ............................................................................................ 7-7 7.3.3 – Capital License Tax ..................................................................................... 7-7 Solano LAFCO—Benicia MSR ii February 14, 2017 7.3.4 – Development Agreement ............................................................................. 7-7 7.3.5 – General Obligation Bonds ............................................................................ 7-8 7.3.6 – Park Dedication/Quimby Act ........................................................................ 7-8 7.3.7 – School Impact Fees ..................................................................................... 7-8 7.3.8 – State and Federal Grants............................................................................. 7-8 7.3.9 – Traffic Mitigation Fee ................................................................................... 7-8 7.3.10 – Wastewater Capacity Fund ........................................................................ 7-9 7.3.11 – Water Capacity Fund ................................................................................. 7-9 8.0: Status and Opportunities for Shared Facilities ........................................................ 8-1 8.1 – Shared Facilities ....................................................................................................... 8-1 8.1.1 – Animal Services ........................................................................................... 8-1 8.1.2 – Fire .............................................................................................................. 8-1 8.2 – Open Space and Recreation Services ...................................................................... 8-1 8.3 – Police Department .................................................................................................... 8-2 8.4 – Solid Waste .............................................................................................................. 8-2 8.5 – Stormwater ............................................................................................................... 8-2 8.6 – Transportation Services ............................................................................................ 8-2 8.7 – Water & Wastewater ................................................................................................. 8-3 8.8 – Management Efficiencies ......................................................................................... 8-3 9.0: Government Structure and Accountability ............................................................... 9-1 9.1 – Government Structure .............................................................................................. 9-1 9.2 – Accountability ........................................................................................................... 9-1 10.0: LAFCO Policies Affecting Service Delivery .......................................................... 10-1 11.0: Summary of Findings & Determinations .............................................................. 11-1 12.0: References ............................................................................................................... 12-1 List of Tables Table 4-1: Population Growth in Benicia and Solano County Since 1970...................................... 4-1 Table 4-2: Solano Cities and County—Population Projections 2010–2040 ................................... 4-1 Table 5-1: Median Household Income by Census Track ...................................................................... 5-1 Table 6-1: Existing Park Land per Capita .................................................................................................... 6-6 Table 6-2: Existing and Future Parks and Recreation Facilities within City Limits ....................... 6-7 Table 6-3: Future Roadway Improvements ................................................................................................ 6-9 Table 6-4: Contracted Water Supply ......................................................................................................... 6-17 Table 6-5: Baseline Treated Water Demand Forecast by Category ............................................... 6-20 Table 6-6: Baseline Raw Water Demands ................................................................................................ 6-20 Table 6-7: Total Raw Water Demand Forecasts .................................................................................... 6-21 Table 7-1: Statement of Revenues for the Past Five Years and Current Year ............................... 7-1 Table 7-2: Statement of Expenditures for the Past Five Years and Current Year ........................ 7-2 Table 7-3: Sewer Rates from January 17, 2013–June 30, 2017 ........................................................... 7-4 Table 7-4: Water Service Rates to Residential Users .............................................................................. 7-5 Table 7-5: Additional Volume Charges to Residential Users ..............................................................7 -5 Solano LAFCO—Benicia MSR iii February 27, 2017 Table 7-6: Water Service Rates to Commercial and Industrial Users ...............................................7 -5 Table 7-7: Additional Volume Charges to Commercial and Industrial Users ............................... 7-6 List of Exhibits Exhibit 1: City of Benicia, City Boundary and Sphere of Influence 2016 ............................................. v Exhibit 2: General Fund Revenues and Expenditures ............................................................................. 7-3 List of Attachments Attachment 1: List of Parks and Facilities, Map of Parks in Benicia……………….…………………………1 Attachment 2: Citywide Organizational Chart……………………………………………….…………………………2 Solano LAFCO—Benicia MSR iv February 14, 2017 Exhibit 1: City of Benicia, City Boundary and Sphere of Influence 2016 .; .; .; .; .; .; .; .; .; .; .; .; .; .; .; .; .; .; .; / I I .. t . ' '\ ' t., ' ' l ' ' ' I ' ' ~egend -·-·-·· City of Benicia Eii City Boundary City Boundary and Sphere of Influence Water 2016 _ - _ -- __ - :.. Sphere of Influence Railroads 05 M1les Solano LAFCO—Benicia MSR v February 27, 2017 Introduction Acronyms and Abbreviations ABAG Association of Bay Area Governments BART Bay Area Rapid Transit BUSD Benicia Unified School District CAD Computer aided dispatch CEQA California Environmental Quality Act CIP Capital improvement program CKH Cortese-Knox-Hertzberg Local Government Reorganization Act of 2000 DUC Disadvantaged unincorporated community DWR California Department of Water Resources ELAP Environmental Laboratory Accreditation Program EPA United States Environmental Protection Agency ERP Enterprise Resource Planning System JPA Joint powers agreement LAFCO Local Agency Formation Commission SOI Sphere of influence Mgd million gallons per day MHI Median household income MOU Memorandum of understanding MS4 Municipal Separate Storm Sewer System MSR Municipal service review NBA North Bay Aquaduct NPDES National Pollution Discharge Elimination System PCI Pavement condition index SCWA Solano County Water Agency SID Solano Irrigation District SOI Sphere of influence SOLTrans Solano Transit STA Solano Transportation Authority SWMP Storm Water Management Plan SWP State Water Project SWRCB State Water Resources Control Board WTP Water Treatment Plant WWTP Wastewater Treatment Plant Solano LAFCO—Benicia MSR 1-1 February 27, 2017 Introduction 1.0: Introduction 1.1 – Role and Responsibility of LAFCO The fundamental role of a Local Agency Formation Commission (LAFCO) is to implement the Cortese-Knox-Hertzberg (CKH) Local Government Reorganization Act of 2000 (Government Code Section 56000, et seq.), providing for the logical, efficient, and most appropriate formation of local municipalities, service areas, and special districts. The CKH requires all LAFCOs, including Solano LAFCO, to conduct a Municipal Service Review (MSR) prior to updating the spheres of influence (SOI) of the various cities and special districts in Solano County (Government Code Section 56430). CKH requires an MSR and SOI update every 5 years. 1.2 – Purpose of this Municipal Service Review This MSR will provide Solano LAFCO with an informational document and make determinations for each of the seven elements prescribed by CKH. This MSR evaluates the structure and operation of the City and discusses possible areas for improvement, coordination, or changes to the SOI as appropriate. The purpose of the MSR is to collect data in order to provide a comprehensive analysis of service provision by the City of Benicia (City). The boundaries of the City and proposed SOI are shown in Exhibit 1. Key sources for this study included agency-specific information gathered by reviewing strategic plans, general plans, websites, financial reports, agency audits, research, personal communication, and the Municipal Service Review Guidelines published by the Governor’s Office of Planning and Research. The report contains one section for each of the following seven elements as prescribed by CKH: Growth and Population Projections for the Affected Area. This section reviews projected growth within the existing service boundaries of the City and analyzes the City’s plans to accommodate future growth. The location and characteristics of any disadvantaged unincorporated communities within or contiguous to the sphere of influence. A disadvantaged unincorporated community is defined as inhabited territory with a median household income of 80 percent or less of the statewide median income. Present and Planned Capacity of Public Facilities and Adequacy of Public Services Including Infrastructure Needs or Deficiencies. This section discusses the services provided including the quality and the ability of the City to provide those services, including a discussion of capital improvement projects currently underway and projects planned for the future where applicable. Financial Ability of Agencies to Provide Services. This section reviews the City’s fiscal data and rate structure to determine viability and ability to meet service demands. It also addresses funding for capital improvement projects. Solano LAFCO—Benicia MSR 1-2 February 14, 2017 Introduction Status of and Opportunities for Shared Facilities. This section examines efficiencies in service delivery that could include sharing facilities with other agencies to reduce costs by avoiding duplication. Accountability for Community Service Needs, including Government Structure and Operational Efficiencies. This section examines the City’s current government structure, and considers the overall managerial practices. It also examines how well each agency makes its processes transparent to the public and invites and encourages public participation. Matters Related to Effective or Efficient Service Delivery Required by Commission Policy. This section includes a discussion of any Solano LAFCO policies that may affect the ability of each agency to provide efficient services. 1.3 – Uses of the Municipal Service Review The MSR is used to examine the operations of a local agency, identify those agencies that may be unable to perform their mandated services, or identify ways to provide more effective and efficient services. Government Code Section 56375 allows LAFCO to take action on recommendations found in the MSR, such as initiating studies for changes of organization, updating the SOI, or initiating a change of organization. Studies in anticipation of a change of organization are useful to identify potential issues that may arise during the process. Issues can range from legal barriers to fiscal constraints to concerns of residents and landowners. A study would allow more focused analysis and the opportunity to resolve issues or options before beginning the process. The MSR also provides the necessary information to help LAFCO make decisions on a proposed SOI update. In evaluating the SOI, the MSR provides the information necessary to determine if the agency has the capability to serve a larger area. The MSR discusses the financial condition of the agency, source of revenues, and projected expenses. It also includes a discussion of the projected infrastructure needs that would allow for expansion of those services. The MSR, however, does not address the California Environmental Quality Act (CEQA), but it is one requirement for the SOI update. That requires a separate analysis. Alternatively, the MSR can recommend changes of organization such as consolidation, dissolution, merger, establishment of a subsidiary district, or the creation of a new agency that typically involves a consolidation of agencies. Those changes of organization may also require an environmental review, a property tax sharing agreement, and an election. 1.4 – Sphere of Influence The SOI is defined as “a plan for the probable physical boundaries and service areas of a local agency” (Government Code Section 56076). The SOI represents one of the most important tools LAFCO uses to “carry out its purposes and responsibilities for planning and shaping the logical and orderly development and coordination of local government agencies” (Government Code Section 56425). Solano LAFCO—Benicia MSR 1-3 February 27, 2017 Introduction CKH requires LAFCO to adopt an SOI for each city and special district in the County. The SOI serves much the same function for LAFCO as general plans serve for cities and counties: it guides the Commission in its consideration of annexations and other forms of reorganizations. The sphere represents the logical extent of the agency’s boundary in the next 5 to 20 years. However, since LAFCO is required to update and review the sphere every 5 years, the sphere in all practicality has a 5-year planning horizon. When adopting the SOI, the Commission must make the following determinations: Present and planned land uses in the area. This consists of a review of current and planned land uses, including agricultural and open-space, based on planning documents. Present and probable need for public facilities and services. This includes a review of the services available in the area and the need for additional services. Present Capacity of Public Facilities. This section includes an analysis of the capacity of public facilities and the adequacy of public services that the agency provides or is authorized to provide. Social or economic communities of interest. This section discusses the existence of any social or economic communities of interest in the area if the Commission determines that they are relevant to the agency. These are areas that may be affected by current services provided by the Agency or areas that may receive services in the future. Present and probable need for services to disadvantaged communities. The Commission must also consider services to disadvantaged communities which are defined as inhabited areas within the SOI whose median household income is less than or equal to 80 percent of the statewide median income. An SOI may be amended or updated. An amendment is a relatively limited change to the SOI to accommodate a specific project. Amendments can add or remove territory, address a change in provision of services by an agency, or revise a plan for services when it becomes impractical. Solano LAFCO’s policy defines a SOI amendment as requests that are less than 40 acres in aggregate for the agency in the last 12 months. An update is a comprehensive review of the SOI that includes the map and relevant portions of one or more MSRs. The review allows for the identification of areas that are likely to receive services and to exclude those territories that are not or will not be served in the SOI. 1.5 – California Environmental Quality Act (CEQA) Public Resources Code Section 21000, et seq., also known as the California Environmental Quality Act (CEQA), requires public agencies to evaluate the potential environmental effects of their actions. This MSR is exempt from CEQA under Class 6 categorical exemption. CEQA Guidelines Section 15306 states that “Class 6 consists of basic data collection, research, experimental management, and resource evaluation activities that do not result in a serious or major disturbance to an environmental resource.” Solano LAFCO—Benicia MSR 1-4 February 14, 2017 Executive Summary 2.0: Executive Summary The City of Benicia is located in southern Solano County approximately 35 miles northeast of San Francisco and 57 miles southwest of Sacramento. The City is built on a peninsula of land that reaches south from the main body of Solano County and creates a prominent bend in the Carquinez Strait; Benicia lies on the north shore of the Carquinez Strait. From this peninsula, highway and railroad bridges span the Strait to connect Benicia with the Contra Costa County cities of Martinez and Concord. The City boundary and SOI area is made up primarily of rolling hills, rising to an elevation of 1,160 feet. On the southern boundary of the City, the land slopes down to the Carquinez Strait. The eastern city limits are bordered by the marshlands of Suisun Bay. The City of Vallejo is located generally west of Benicia. To the north, the City’s SOI extends to the Tri- City and County Open Space Area. Benicia was founded by Robert Semple in 1846 who named the City after General Vallejo’s wife, Francisca Benicia Carillo de Vallejo. In 1850 Benicia was incorporated, named the county seat for Solano County, became the state capital, and was established as a port of entry by the United States Congress. Benicia remained the state capital for only one year, and the county seat was moved to Fairfield nine years later in 1859. Section 4 of this report provides population data for the City. Benicia grew as an industrial center during the 1860s and experienced stable growth due to industrialization through the First World War. By the 1920s; however, the decline of local industries reduced the employment base and led to a population loss. During World War II, Benicia’s arsenal prominence and productivity increased and there was a surge in the City’s population. By the late 1960s, residential expansion was underway with the development of Southampton Subdivision. In 1970, Benicia’s population reached 8,783 and by 2010, Southhampton Subdivision was largely built out and the City’s population stood at 26,997. The Association of Bay Area Governments (ABAG) projects that between the year 2010 and 2040, Benicia’s population will increase by 16.3 percent or approximately 4,403 new residents to 31,400. Section 5 examines the possible locations of disadvantaged unincorporated communities. In reviewing the Census income data for Benicia’s city boundary as well as the SOI area, there are no disadvantaged unincorporated communities within or contiguous to the City’s boundary and SOI. Section 6 of the report covers an extensive discussion on the City’s public facilities. The City is responsible for myriad municipal services, including animal control, fire protection, law enforcement, parks and recreation, public works, solid waste, stormwater, wastewater, and water. Section 7 discusses the City’s financial ability to provide services. In addition to the five-year statement of revenues and expenditures, the section discusses Measure C, a 1-cent-on-the- dollar sales tax increase that went into effect on April 1, 2015. In addition to allocating sufficient revenue to sustain current service levels, the City Council dedicated more than half Solano LAFCO—Benicia MSR 2-1 February 27, 2017 Introduction the estimated revenue to be collected in the first two years ($4 million) to address infrastructure improvements. The section goes on to address enterprise funds as well as planned improvement projects that have been prioritized by the City. Section 8 discusses the status of and opportunities for shared facilities. An identification and examination of opportunities for shared facilities and resources may determine if public service costs can be reduced. The report identifies that the City works with other agencies to provide solid waste, transportation, animal services, fire suppression, law enforcement, and open space, however; the report notes that because of Benicia’s somewhat isolated location, it is not always feasible or cost-effective to share services with other agencies. The City also uses a competitive bidding process when obtaining outside services and capital improvement construction. The City’s budget and planned improvements are reviewed and adopted annually by the City Council through a project priority system as part of the public budget process. Section 9 reviews Benicia’s governmental structure and accountability. It notes that the City has a Council-Manager form of government with a separately elected Mayor and Council. The Council is responsible for governing as well as establishing the overall priorities and direction of the City’s municipal government. There are ample opportunities for public involvement and input; citizens are encouraged to attend regularly scheduled meetings and serve on boards, commissions, and committees. The City communicates to its citizens via its website, Twitter feed, Facebook page, Nextdoor, and in-person outreach. The City holds public meetings in compliance with the Brown Act. Finally, Section 10 discusses LAFCO policies that may affect the City’s service delivery and its future plan for providing service include the LAFCO’s Sphere of Influence Policy, the Commission’s adopted Standards, and the Out of Area Service Policy. Solano LAFCO—Benicia MSR 2-2 February 14, 2017 City Profile 3.0: City Profile & History The City of Benicia is a general law city and has a Council-Manager form of government with a separately elected Mayor and a four member city council, elected to four-year terms. The Council appoints the City Manager and Attorney and also confirms the Mayor’s appointments to all city boards, committees, and commissions. The City Clerk and Treasurer are elected. The City is staffed with eleven departments: City Manager, City Attorney, Economic Development, Administrative Services, Finance, Parks and Community Services, Library, Fire, Police, Community Development, and Public Works. Until the 1820s, the north shore of the Carquinez Strait was home to tribal Native Americans, including the Patwin, Karki, and Huichiun groups, who found the area suitable for settlement because of the presence of fresh water, areas of high ground, and abundant supply of shellfish, salmon, and meal. The first Europeans to visit the area arrived in 1772. By 1823, the lands along the north shore of the Carquinez Strait, including Benicia, were part of the San Francisco de Solano Mission. Following Mexico’s independence from Spain in 1821, Mexico took jurisdiction over the former Spanish territory in California. In 1844, Benicia was part of the 84,000-acre Rancho Suscol land grant owned by Mariano Guadalupe Vallejo, a Mexican military commander. During this period, Native American populations in the area diminished significantly and the land was put to use for cattle ranching and farming. Following the Bear Flag Revolt of 1846, Robert Baylor Semple obtained interest in a portion of Rancho Suscol and established a new town, Benicia, on the north shore of the Carquinez Strait. Jasper O’Farrell was hired to survey and prepare the first plat of Benicia, which was completed in July 1847. A five-mile stretch of shoreline was selected and a grid system of streets established. The City was oriented in a northeast-southwest line originating at First Street, with a succession of blocks on each side. Streets were assigned names in alphabetical order in the east-west direction and numerical order in the north-south direction. Settlement of Benicia in the following years was influenced not only by the O’Farrell plat, but also by the shoreline and extensive marshes that were interspersed through the eastern part of the community. A ferry service was developed and by November 1847, Benicia was settled with approximately 15 homes. Following discovery of gold at Sutter’s mill in 1848, Benicia became a waypoint for thousands of miners making their way to and from the Sierras. The City’s population grew and the downtown area along lower First Street developed with hotels, saloons, and gambling houses. In 1850, Benicia was one of the two first cities to be incorporated in the State of California, became the Solano County seat, and was designated by Congress as an official port of entry. The same year, the Pacific Mail Steamship Company, the first major industrial works constructed in California, set up operations in Benicia. Solano LAFCO—Benicia MSR 3-1 February 27, 2017 Introduction In 1849, approximately 345 acres were deeded to the Federal Government for the purpose of establishing a military post, the Benicia Arsenal. It was designated as one of five major U.S. arsenals in 1852 and remained in operation through the 1960s. Educational institutions were established in Benicia as well: the Young Ladies Seminar and Blake’s School for Boys were founded in 1852; St. Catherine’s Academy was founded in 1854; and the College of St. Augustine opened in 1867. None of these institutions remain in operation today though some buildings remain and have been converted to other uses. In 1852, Benicia constructed a government building that was designated the new state capital in 1853. Additional development of the downtown in support of the legislature followed; however, because of the lack of facilities the capital was moved to Sacramento in 1854. The City grew as an industrial center during the 1860s, with the opening of several businesses such as the Benicia Flouring Mill, Benicia Cement Works, and four tanneries. By the end of the 1880s, Benicia was the tanning capital of the west and home to the Matthew Turner Shipyard and Benicia Agricultural Works. Because of its location along the Carquinez Strait, Benicia became a transportation center at the beginning of the Gold Rush era, providing ferry service to transport passengers and goods between San Francisco and interior areas such as Sacramento and the Sierras. The completion of the Central Pacific Railroad, which traversed the waterfront and Benicia Arsenal and terminated at the Carquinez Strait, greatly increased commercial transport and expanded industrial opportunities for the City. Benicia experienced stable growth that was due to industrialization through the First World War. By the 1920s however, the decline of local industries reduced the employment base and led to population loss; Benicia’s total population diminished by approximately 30 percent in the period from 1920 to 1936. The establishment of new train routes and advent of the automobile changed the City’s role as a transportation center as automobile ferries were established to serve those commuting to employment on the other side of the Carquinez Strait. World War II saw an increase in the Benicia Arsenal’s prominence and productivity, as well as a surge in the City’s population. By 1944, Benicia’s population swelled to 8,300. The Arsenal was re-activated during the Korean War. While military operations scaled back during peacetime, Benicia experienced population growth during the baby boom period following World War II, resulting in the expansion of residential areas and the construction of educational and civic facilities. The 1960s brought further changes. Construction of the Martinez Bridge—along with I-680 and I-780, which traversed the City in both the east-west and north-south directions— changed travel patterns and led to suburbanization of the hills above Benicia. Commercial centers shifted north to Military Highway, where they were accessible by vehicle and provided convenient off-street parking. The Benicia Arsenal was closed in 1961 and the City Solano LAFCO—Benicia MSR 3-2 February 14, 2017 City Profile of Benicia subsequently annexed the land, which would later become the Benicia Industrial Park. In 1966, Humble Oil Company began construction on an oil refinery on 400 acres in the northern portion of the Arsenal, today known as the Valero Refinery. Submerged lands were transferred to the California Land Commission with an agreement for Benicia to operate a deep-water port, now AMPORTS, which was leased to Benicia Industries in 1966. Residential expansion was underway as well and in 1964, plans were announced for development of the Southampton Subdivision. Since the 1960s, Benicia’s growth has continued largely in accord with the land use framework set forth for the Benicia Industrial Park and Southampton Subdivision. By 2010, Southampton Subdivision was largely built out and the City’s population stood at 26,997. The downtown has retained much of its historic character, though industrial sites have been replaced by parks, natural areas, and new housing. Historic preservation efforts for downtown Benicia began in the early 1970s, culminating in the adoption of the Downtown Historic Conservation Plan (1990) and the Arsenal Historic Conservation Plan (1993). Following a period of substantial population growth, the City of Benicia established a 20- year growth boundary in 2003 to limit development north of Lake Herman Road. Today, the Benicia Industrial Park is the economic engine of the community, while the historic downtown and waterfront parks represent the local identity and host community gatherings. The City has a 20-year urban growth boundary, established by voter initiative (Measure K) in 2003 which will sunset at the end of 2023. Solano LAFCO—Benicia MSR 3-3 February 27, 2017 Growth and Population Projections 4.0: Growth and Population Projections 4.1 – Population 4.1.1 – Growth Trends The City’s population grew significantly from a population of 8,783 in 1970 to a population of 24,437 in 1990. The population boom increased the City’s population by approximately 782 new residents per year. Since the 1990s, the City’s percent change in population has slowed down significantly. Between 1990 and 2000, the City’s population grew by 2,428 new residents or an average of 243 persons per year. Between 2000 and 2010, the City’s population grew by just 132 new residents; an average of 13 persons per year. Table 4-1: Population Growth in Benicia and Solano County Since 1970 BENICIA1 SOLANO COUNTY2 YEAR Population Percent Change Population Percent Change 1970 8,783 — 169,941 — 1980 15,376 75% 235,203 38% 1990 24,437 59% 340,421 45% 2000 26,865 10% 394,542 16% 2010 26,997 0.5% 413,344 4.8% Sources: 1 http://www.bayareacensus.ca.gov/cities/Benicia.htm accessed 12-21-2015. 2 http://www.bayareacensus.ca.gov/counties/SolanoCounty.htm accessed 11-2-2015. 4.1.2 – Population Projections ABAG prepares population projections for the nine Bay Area counties and their jurisdictions. ABAG projects that between the year 2010 and 2040, Benicia’s population will increase by 16.3 percent from 26,997 to 31,400 or approximately 4,403 new residents. This equates to adding, on average, approximately 147 new residents per year for the next 30-year time frame. In comparison, Solano County as a whole is expected to grow by nearly 24 percent in the same time frame. Table 4-2: Solano Cities and County—Population Projections 2010–2040 Percent Change between Community 2010 2015 2020 2025 2030 2040 2010 & 2040 Benicia 26,997 27,600 28,300 29,000 29,700 31,400 16.3% Dixon 18,351 18,700 19,000 19,400 19,800 20,700 12.8% Fairfield 105,321 111,500 117,900 124,400 131,400 146,500 39.1% Rio Vista 7,360 7,500 7,900 8,300 8,400 8,800 19.6% Solano LAFCO—Benicia MSR 4-1 February 27, 2017 Growth and Population Projections Percent Change between Community 2010 2015 2020 2025 2030 2040 2010 & 2040 Suisun City 28,111 28,900 29,800 30,700 31,600 33,700 19.9% Vacaville 92,428 95,300 98,200 101,700 105,500 109,700 23.3% Vallejo 115,942 118,100 121,000 124,200 126,200 128,600 13.7% Unincorporated 18,834 19,700 20,600 21,500 22,600 23,700 31.1% Solano County 413,344 427,300 442,700 459,200 475,200 511,600 23.8% Source: ABAG Population Projections 2013. Findings & Determinations 4.1 Benicia had a population of 26,997 in 2010 with only a 0.5% increase from 2000. 4.2 ABAG projects that by 2040, Benicia’s population will increase by 4,403 residents to 31,400. That averages to about 0.5% annually, which is consistent with recent growth. Solano LAFCO—Benicia MSR 4-2 February 14, 2017 Disadvantaged Unincorporated Communities 5.0: Disadvantaged Unincorporated Communities The Commission is required to provide written determinations with respect to the location and characteristics of any disadvantaged unincorporated communities within or contiguous to the SOI. The California Government Code Section 56033.5 defines a disadvantaged unincorporated community as an inhabited territory (12 or more registered voters) with an annual median household income that is less than 80 percent of the statewide annual median household income (MHI). According to the Census, the MHI for the State in 2013 dollars was $61,094. The Census also provides MHI data at the County and census tract levels. There are several census tract areas within the city limits as well as the areas adjacent to the City of Benicia. As indicated in Table 5-1, there are no census tract areas with income less than 80 percent of the State’s MHI within or surrounding the city. Therefore, there are no disadvantaged unincorporated communities within or contiguous to the boundaries or SOI of Benicia. Table 5-1: Median Household Income by Census Track Percentage of State Census Track MHI MHI 2505.02 $72,692 119% 2506.04 $95,761 157% 2506.05 $99,722 163% 2520.00 $63,729 104% 2521.02 $72,981 119% 2521.03 $63,315 104% 2521.04 $145,625 238% 2521.05 $97,536 160% 2521.06 $82,500 135% 2521.07 $88,617 145% 2521.08 $79,375 130% Source: http://www.census.gov/censusexplorer/censusexplorer.html accessed 4-26-2016. Findings & Determinations 5.1 There are no disadvantaged unincorporated communities within or contiguous to Benicia’s SOI. Solano LAFCO—Benicia MSR 5-1 February 27, 2017 Present and Planned Capacity of Public Facilities 6.0: Present and Planned Capacity of Public Facilities 6.1 – Animal Control The City’s Police Department is responsible for animal control within the City of Benicia. The Police Department staffs one full-time animal control officer. Animal shelter facilities are located at the City’s Corporation Yard on East Second Street. In 2014, 1,027 calls were received for animal control services. Additional after-hour services are provided through an agreement with the Solano County Sheriff’s Office. In addition, a Memorandum of Understanding (MOU) with Solano County has been established for the animal shelter services. Finding/Determination 6.1.1 The Benicia Police Department is responsible for animal control. The City has an after hour services agreement with the Solano County Sheriff’s office for animal control and the City has a MOU with Solano County for animal shelter services. Animal Control services are adequate 6.2 – Fire Services provided by the City Fire Department include fire suppression, fire prevention, basic and advanced life support medical services, technical rescue services, disaster preparedness, code enforcement, and weed abatement services. Fire suppression and emergency medical services are provided by the City Fire Department from two fire stations. Fire Station #11 is located near the Downtown at 150 Military West and Station #12 is located in Southampton at 601 Hastings. Standard response times are dependent on the nature of the emergency services and the established agreements or requirements. Response standards to emergency medical calls are set through a Joint Powers Agreement (JPA) with the Solano County Emergency Services Cooperative. The standard is to arrive on-scene of a medical emergency within 7 minutes of the time of the dispatch at least 90 percent of the time. Response standards to fire suppression calls are established through the National Fire Protection Association and are based upon a number of factors. Historical data on these responses show an average response time of 5 to 7 minutes. The response time standards for both EMS and Fire Suppression calls comply with the standards. The average Fire Department daily staffing level is eight firefighters per day plus a Chief Officer. This staffing level is established in a MOU between the City and the Benicia Firefighter’s Association, Local 1186. The Department’s staffing allows engine companies three staff members, including a captain, engineer, and paramedic firefighter; and it allows rescue companies two staff members, including an engineer and paramedic firefighter or firefighter. The department is an “all-risk” fire department and provides a variety of emergency and non-emergency services to the community. The total request for service (call) for fiscal year Solano LAFCO—Benicia MSR 6-1 February 27, 2017 Present and Planned Capacity of Public Facilities 2015-2016 was 2,465. The breakdown of those calls for the same fiscal year was 61.22 percent medical, 5.80 percent rescue, and 32.98 percent other types of calls. To provide for future buildout of the Benicia Industrial Park, located within the city limits south of Lake Herman Road on the vacant, 527-acre “Northern Gateway” property, an additional fire station may be needed. A proposed fire station and training facility may be built and staffed as the industrial park develops to meet response and service standards. The timing of a new fire station will be based on when, where, and how the Northern Gateway site develops in the future. Future funding for development and staffing of the station are not yet determined but may be established through development agreements, fees, and/or assessments. Findings & Determinations 6.2.1 Services provided by the Benicia Fire Department include fire suppression, fire prevention, basic and advanced life support medical services, technical rescue services, disaster preparedness, code enforcement, and vegetation management services. 6.2.2 Fire suppression and emergency medical services are provided by the City Fire Department from two fire stations. 6.2.3 The average Fire Department daily staffing level is eight firefighters per day plus a Chief Officer. The Department’s staffing allows engine companies three staff members, including a captain, engineer, and paramedic firefighter; and it allows rescue companies two staff members, including an engineer and paramedic firefighter or firefighter. 6.2.4 The total request for service (call) for fiscal year 2015-2016 was 2,465. The breakdown of those calls for the same fiscal year was 61.22 percent medical, 5.80 percent rescue, and 32.98 percent other types of calls. 6.2.5 To provide for future buildout of the Benicia Industrial Park located on the vacant, 527-acre Northern Gateway property, an additional fire station and additional staffing may be needed to meet response and service standards. 6.3 – Law Enforcement Police protection services are provided by the Benicia Police Department located adjacent to the City Hall on East L Street. The department currently divides the City into four designated beats or areas of patrol assignment. Determinations of these beats are based on geographical boundaries. Although Benicia’s residential areas are largely built out, future development of the Northern Gateway site, which is the last remaining large development site, could have a significant impact on the current beat structure. Currently, average emergency response times are tracked and available through the department’s automated computer aided dispatch (CAD) system. The program was last updated during the budget cycle 2013–2015 to include a new auditing process for police Solano LAFCO—Benicia MSR 6-2 February 14, 2017 Present and Planned Capacity of Public Facilities reports and to streamline state reporting requirements. The information is monitored by the department. Based on crime rate, citizen complaints, and citizen polls, the level of service and response times are adequate and meet the needs of the community. For in-progress or life-threatening emergency calls (Priority 1) the average response time from 2013 to 2014 was 6 minutes and 21 seconds. The Benicia Police Department currently has 51 full- and part-time staff members. Thirty-two staff members are sworn officers. The current ratio is about 1.18 sworn officers per 1,000 population. This ratio compares with other cities similar in size and staffing: Dixon 1.36, Pinole 1.41, and Hercules at 0.96. The need for additional officers and equipment is based on the City’s planned growth and projected land use. To staff one additional beat 24 hours per day, 7 days per week, the department would need to hire five patrol officers (to cover days off, training, vacations, and sick leave) and one non-sworn person. The non-sworn position would be support personnel to facilitate the projected increase in calls for service and comprehensive reporting. The addition of personnel would not occur all at once but would gradually increase, commensurate with the demand created by new development. A commensurate number of police vehicles will also be needed to keep pace with the anticipated hiring of the additional officers. Other costs such as fuel and police officer training would also increase with demand created by new development. The additional officers, vehicles, and equipment are not currently budgeted but would be included in the appropriate two-year budget cycle when the need dictates. Currently, the police station is located in a former school building built in 1942 and remodeled in 1962 to house the police. The police station is inadequate both in size and in modern police function. Police operations are located in two separate buildings, including a temporary building used for investigations. The temporary building is out of compliance with the City of Benicia’s building codes. At this time, funding is not available to construct a new police station. Findings & Determinations 6.3.1 Average emergency response times are tracked and available through the department’s automated computer aided dispatch (CAD) system. The program was last updated during the budget cycle 2013-2015 to include a new auditing process for police reports and to streamline state reporting requirements. 6.3.2 For in-progress or life-threatening emergency calls (Priority 1) the average response time from 2013-2014 was 6 minutes and 21 seconds. 6.3.3 The Benicia Police Department currently has 51 full- and part-time staff members. Thirty-two staff members are sworn officers. The current ratio is about 1.18 sworn officers per one-thousand population, and is consistent with nearby cities of similar size. 6.3.4 The police station is inadequate both in size and in modern police function. Police operations are located in two separate buildings, including a temporary building used for investigations. The temporary building is out of compliance with the City of Solano LAFCO—Benicia MSR 6-3 February 27, 2017 Present and Planned Capacity of Public Facilities Benicia’s building codes. At this time, funding is not available to construct a new police station. 6.4 – Parks and Recreation The City of Benicia Parks & Community Services Department is responsible for providing park and community services programs for the citizens of Benicia. The General Plan contains planning policies concerning the financing and construction of park facilities. The plan includes a quantitative and qualitative inventory of existing park and outdoor recreation facilities, identification of potential open space areas, and an inventory of existing outdoor recreation facilities. Within the city limits are 48 parks, facilities, and public access areas totaling 1,248 acres. These include state facilities, a regional park, community parks, neighborhood parks, and other outdoor recreation improvements. Table 6-1 lists existing and future parks and recreation facilities within the city limits. 6.4.1 – Types of Parks and Facilities Regional Parks. A regional park (250–1,000 acres) generally serves one or more communities and accommodates a variety of activities designed to enhance the use and experience of the natural environment. Uses may include open space areas, trails, nature centers, and camping. The General Plan established a standard of 10-acres per 1,000 people for regional parks. Benicia has one regional park (Lake Herman), but there are also two state- owned parks that serve as regional facilities: Benicia State Recreation Area (State Park Road) and the State Capitol Historic Park (115 West G Street). Community Parks. Community parks are typically large-scale (30–100 acres) and are intended to serve users within walking and driving distance. Their amenities are oriented to both adults and children, often providing specialized facilities such as swimming pools, tennis courts, community centers, and sports fields. Community parks in Benicia are the primary resource for activities sponsored by the Parks and Community Services Department. The General Plan established a standard of 2.5 acres per 1,000 people for community parks. Facilities in this category include the Community Park (540 Rose Drive) and the West 9th Street Park and Launch Ramp (southwest corner of West 9th Street and West 10th Street). Public Special Use Facilities. Special use facilities are generally single purpose in nature, having a unique or important indoor or outdoor recreational purpose. Examples in Benicia include the Senior Center (187 East L Street), James Lemos Swim Center (181 East J Street), Community Center (370 East L Street), and the City Cemetery (Riverhill Drive). Neighborhood Parks. Neighborhood parks are small-scale parks (2–15 acres), which ideally serve a neighborhood within a radius of approximately one-half mile. They usually emphasize child-oriented facilities, providing a variety of play spaces and associated amenities. The General Plan established a one-half mile-radius standard for neighborhood parks and a population ratio of 3.5 acres per 1,000 people. Examples of neighborhood parks in Benicia include Southampton Park (southeast corner of Panorama Drive and Chelsea Hills Drive) and Willow Glen Park (600 Block of West K Street). Solano LAFCO—Benicia MSR 6-4 February 14, 2017 Present and Planned Capacity of Public Facilities Waterfront Park. A waterfront park serves the entire community and accommodates activities appropriate to the characteristics of the site such as low impact outdoor recreational activities, community events and festivals, and enjoyment of the surrounding natural environment. The waterfront parks designation does not include permanent sports fields, courts, equipment, or buildings, except for a public restroom and similar amenities. Walkways, benches, drinking fountains, and trash receptacles are permitted. This park designation was established in November 2004 by an advisory vote of the citizens of Benicia. A byproduct of this initiative created the Benicia Urban Waterfront Enhancement and Master Plan, adopted by City Council in October 2014. The initiative established a 16-acre project site located to the west of First Street, south of B Street, with the Marina channel to the east and the Carquinez Strait to the south, encompassing the First Street Green. The First Street Green will preserve the marshlands within its boundaries, thereby protecting the wildlife that relies on this ecologically sensitive habitat. Open Space Areas. An open space area is typically a large undeveloped area, preserved in its natural state, to serve as a greenbelt divider or environmental resource, to promote public health and safety, and to provide those types of outdoor recreation that do not substantially alter or destroy the natural environment. Low-intensity outdoor recreational uses such as hiking and picnicking are often compatible with open space areas. These facilities are attractive to local and region-wide visitors. Examples of open space areas in Benicia include the Southampton Open Space and the Benicia/Vallejo Buffer Zone. Pocket Parks. Pocket parks are small green islands, landscaped with park amenities, such as a drinking fountains, benches, and play equipment. These parks are typically remainder parcels of subdivisions. Examples of pocket parks in Benicia include Arneson Park (Southwest corner of West 4th Street and West I Street) and Gull Point (Gull Point Court). Linear Parks and Trails. A linear park is a strip of land established for purposes of walking, hiking, bicycling, horseback riding, and boating and often includes a natural or man-made linear resource such as a stream drainage, bluff line, ridge, utility and creek rights-of-ways, or service road. A system of off-road bikeways and pedestrian paths at both the neighborhood and community-wide scale often provide safe and pleasant transportation connections, as well as opportunities for outdoor recreation. Segments of the Bay Area Ridge Trail, Bay Trail, and Great Delta Trail have been designated linear parks and trails in Benicia. 6.4.2 – Current and Future Park Needs The City Parks, Trails & Open Space Master Plan (adopted in July 1997) compared acreages of existing and planned parkland in relation to both the existing and projected population of the City. Using the standard ratios shown in Table 6-1, the City has more than adequate regional parkland but is deficient in community and neighborhood parks. The Parks, Trails & Open Space Master Plan identified a shortfall of 35 acres of neighborhood parks and 18 acres of community parks. Solano LAFCO—Benicia MSR 6-5 February 27, 2017 Present and Planned Capacity of Public Facilities Table 6-1: Existing Park Land per Capita Standard Park Type Acres Acres/1,000 people (Acres/1,000 people) Regional Park 577 21.0 10.0 Community Park 50 1.8 2.5 Neighborhood Parks 79 2.9 3.5 Recreational Facilities 10 0.4 — TOTAL 716 26.1 — Source: Table 2-14 of the 1999 Benicia General Plan Since the adoption of the Parks, Trails & Open Space Master Plan two neighborhood parks have been completed. St. Catherine’s Wood Neighborhood Park is approximately 0.5 acre and is located north of the Solano Square Shopping Center. The park includes a playground, entry plaza, and seating area. Water’s End, formerly referred to as Park D-7 prior to construction, was the second neighborhood park completed. Located in the northeastern portion of the Southampton development, this park is 3.5 acres in size. The park includes a playground, a basketball court, and seating areas. The table with details of all parks and facilities and a map of the locations is included as Attachment 1. 6.4.3 – Proposed Park Facilities The following list of park sites was obtained from the 1997 Parks, Trails & Open Space Master Plan, which recommends the development of new park and outdoor recreation facilities to keep pace with the growth of the City, including the proposed parks listed below. Bottle Hill Park. This 0.5-acre neighborhood park, in the southeastern portion of the downtown area, will provide panoramic views of the Carquinez Strait, and sheltered areas for a tot lot and picnic facilities. Hastings Drive Neighborhood Park. This proposed 10-acre park is located in the Southampton open space in the central western portion of the Southampton development. The site contains a small drainage channel and is surrounded by existing homes. The Braito Pathway runs through the proposed park site within a trail easement linking the Rose Drive and Hastings Drive bikeways. The topography in the area would require terracing for additional facilities. The park will include a multi-purpose playing field, tennis court, basketball courts, playground, grass play area, picnic area, path, and benches. Perth Way Neighborhood Park. This is a proposed 8-acre neighborhood park located in the open space in the eastern portion of the Southampton development. The site is relatively flat but high in elevation, providing views toward Suisun Bay. Planned facilities include a multi-purpose playing field, tennis court, basketball court, playground, grass play area, picnic area, path, and benches. Solano LAFCO—Benicia MSR 6-6 February 14, 2017 Present and Planned Capacity of Public Facilities Table 6-2: Existing and Future Parks and Recreation Facilities within City Limits Category Name Acreage Regional Parks Lake Herman 577.0 Waterfront Parks Waterfront Park (First Street Green*) 16.0 Community Parks and Benicia Community Park 50.0 Facilities Benicia Middle School 8.0 City Cemetery 24.0 City Gym 0.5 City Park 4.5 Clock Tower 0.5 Community Center 3.5 First Street Peninsula Pier 2.0 Fitzgerald Field 4.0 Jack London Park 7.7 James Lemos Swim Center 1.0 Little League Field 4.0 West 9th Street Park 6.0 Neighborhood Parks Bottle Hill Park (future) 0.5 Bridgeview Park 4.5 Channing Circle Park 2.5 Civic Center Park (East K Street) 3.5 Duncan Graham Park 2.0 Ethelree Saraiva Park 0.5 Francesca Terrace Park 5.0 Gateway Park 0.5 Hastings Drive Neighborhood Park (future) 10.0 Matthew Turner Park 2.5 Overlook Park 3.5 Perth Way Neighborhood Park (future) 8.0 St. Catherine’s Wood Neighborhood Park 0.5 Skillman Park 3.0 Solano Park 2.0 Southampton Park 6.0 Willow Glen Park 4.5 Solano LAFCO—Benicia MSR 6-7 February 27, 2017 Present and Planned Capacity of Public Facilities Table 6-2: Existing and Future Parks and Recreation Facilities within City Limits Category Name Acreage Waters End Park 3.5 Small Scale Public Access Arneson Park 0.5 Areas Bardoni Public Access 0.5 Benicia Views II 0.5 Gull Point 0.5 John’s Place Public Access & Median 0.5 Kevin McCall Public Access 0.5 Turnbull Park 0.5 West 8th Street Public Access 0.5 West 11th Street Public Access 0.5 West 13th Street Public Access 0.5 West C Street Public Access 0.5 West E Street 0.5 West F Street. 0.5 SUBTOTAL 777.7 State Parks and Facilities Benicia State Capitol Historic Park 1.5 Benicia State Recreation Area 469.0 TOTAL 1,248.2 Note: * First Street Green (3.0 acres) is included in the total acreage of the of the Waterfront Park created by Measure C. Determinations 6.4.1 Within the city limits are 48 parks, facilities, and public access areas totaling 1,248 acres. These include state facilities, a regional park, community parks, neighborhood parks, and other outdoor recreation improvements. 6.4.2 The City has more than adequate regional parkland but is deficient in community and neighborhood parks. The Parks, Trails & Open Space Master Plan identified a shortfall of 35 acres of neighborhood parks and 18 acres of community parks and since the Parks, Trails & Open Space Master Plan, two neighborhood parks have been added with facilities appropriate to the size of the parks. 6.4.3 The City’s 1997 Parks, Trails & Open Space Master Plan recommends the development of new park and outdoor recreation facilities keep pace with the growth of the City. Solano LAFCO—Benicia MSR 6-8 February 14, 2017 Present and Planned Capacity of Public Facilities 6.5 – Public Works The City’s Public Works Department is responsible for the operation, maintenance, design, construction, and repair of the City’s public infrastructure. The Public Works Department is subdivided into five areas: administration, engineering, water treatment operations, wastewater treatment operations, and maintenance. 6.5.1 – Transportation and Circulation The City of Benicia contains two interstate freeways (Interstate 780 and Interstate 680), ten major arterial streets, and many collector and local streets. Caltrans is responsible for the maintenance of Interstates 780 and 680. A major segment of the transcontinental railroad system is along the easterly border of the City and is owned and operated by the Union Pacific Railroad. The City’s objectives for roadway performance are stated in General Plan Policy 2.20.1 of the Circulation Element: • Policy 2.20.1: Maintain at least Level of Service “D” on all city roads, street segments, and intersections. Level of Service D is intended to have functioning intersections, but short queues develop and cars may have to wait through one cycle during short peaks. Improvements to the local street network are included in the City’s Traffic Impact Fee Program where future development pays its fair share of costs to address the future capacity needs of development. The need to improve roadway and parking facilities is carefully balanced with the need to control traffic congestion in Benicia and the goal of maintaining a walkable community. Continued enhancement of the City’s small-town atmosphere of pedestrian-friendly streets and neighborhoods depends on favorable traffic conditions that can only be maintained through a balanced transportation system. The Pavement Condition Index (PCI) is a measure of the condition of the city’s roadways. On a scale of 0 to 100 with 100 being the best. The value is calculated from a visual survey of pavement distress. Various distress combinations result in points deducted from the starting value of 100. The current PCI is 58. The goal of the Public Works Department to increase the average PCI to 63 in five years. Roadway improvements to adequately serve the City’s needs over the next 20-years are listed in the following section. Other transportation projects, such as freeway mainline improvements, park & ride lots, and major transit improvements, are included in the long- range plans of the Solano Transportation Authority. These projects are dependent on cooperation with outside agencies and shared funding sources. Table 6-3: Future Roadway Improvements Streets Interchanges Widen/extend Industrial Way from I-680 to Lake Improve Lake Herman/I-680 interchange with Solano LAFCO—Benicia MSR 6-9 February 27, 2017 Present and Planned Capacity of Public Facilities Table 6-3: Future Roadway Improvements Streets Interchanges Herman Rd new signals, bridge widening and possible ramp modifications Extend Bayshore Road from Park Rd to Improve Bayshore/Industrial/I-680 split Industrial Way interchange with new frontage road connection. Widen East 2nd St from Industrial Way to Lake Install I-780 auxiliary lanes between E 2nd & E Herman Rd 5th. Widen Columbus Pkwy from Benicia Rd to I-780 Install I-780 auxiliary lanes between Military West & Columbus Pkwy Widen State Park Rd overcrossing at I-780 Improve/widen I-780 ramps at Southampton Road Widen East 2nd St. from I-780 to Military East Improve/widen I-780 ramps at East 2nd St. Widen East 5th St. from I-780 to Military East Install traffic signals at remaining freeway ramps with stop controls. Widen Park Rd between Bayshore and Industrial Construct improvements identified by the Way Solano Transportation Authority as required. Widen Park Rd between Adams and new connector road Construct connector road between E 2nd St and Park Rd New traffic signal and intersection improvements citywide Enhance First St. corridor Convert Bayshore Road from private to public ownership Note: Some of these improvements are located within Caltrans jurisdiction and require coordination to be fully implemented. In addition to those projects above, the City of Benicia has proposed the Industrial Park Transportation and Employment Center Plan. The Benicia Industrial Park is a significant employment center in Solano County. Home to over 600 firms employing more than 5,000 workers, which comprises over a third of the total jobs in Benicia, the Industrial Park serves as the economic engine for the city, contributing approximately two-thirds of the city’s sales tax revenue. The Park is strategically located, served by I-680, a private deep water port, and Union Pacific Railroad mainline and spurs. In addition, SolTrans local buses and FAST intercity express buses both service the Park, and a bus transit hub is currently under construction. The Benicia Industrial Park has been recognized as a Priority Development Area (PDA) by the Solano LAFCO—Benicia MSR 6-10 February 14, 2017 Present and Planned Capacity of Public Facilities Association of Bay Area Governments (ABAG). PDAs are places that local jurisdictions have identified within their communities where new development will support the day-to-day needs of residents and workers in a pedestrian-friendly environment served by transit. While the addition of residential uses is not anticipated as part of the Industrial Park’s PDA designation, as an employment-based PDA, the Industrial Park has the added goal of advancing employment growth by attracting new business and providing for the renovation of established areas. 6.5.2 – Transit Services As of December 2010, the City of Benicia ceased independent operation of a public transit system. Through a joint powers agreement between the City of Benicia, the City of Vallejo, and the Solano Transportation Authority, Solano County Transit (SolTrans) was created to build a unified public transit system in southern Solano County. SolTrans provides a fixed route between Benicia and Vallejo as well as express bus service to Walnut Creek and El Cerrito North del Norte regional BART stations. General transit within Benicia is provided through a SolTrans branded dial-a-ride service. In addition, SolTrans provides paratransit bus service, and administers local and intercity Taxi Scrip Programs with direct service between cities in Solano County for ambulatory ADA paratransit qualified individuals. Regional transit services are coordinated through the Solano Transportation Authority, which includes the Capital Corridor train service, regional bus service, and other local agency services. Findings & Determinations 6.5.1 The City’s Public Works Department is responsible for the operation, maintenance, design, construction, and repair of the City’s public infrastructure. 6.5.2 Improvements to the local street network are included in the City’s Traffic Impact Fee Program where future development pays its fair share of costs to address the future capacity needs of development. Measure C revenues will assist with some long term maintenance and replacement costs. 6.5.3 Other transportation projects, such as freeway mainline improvements, park & ride lots, and major transit improvements are included in the long-range plans of the Solano Transportation Authority. 6.5.4 Through a joint powers agreement between the cities of Benicia and Vallejo, and the Solano Transportation Authority, Solano County Transit (SolTrans) was created to build a unified public transit system in southern Solano County. 6.6 – Solid Waste The Public Works Department and the City Manager’s Office each share a role in managing solid waste within the City. The City Manager’s Office is responsible for managing curbside Solano LAFCO—Benicia MSR 6-11 February 27, 2017 Present and Planned Capacity of Public Facilities garbage collection through a contract with a local franchised hauler, Republic Services. The Public Works Department is responsible for street sweeping services. Solid waste is taken to Keller Canyon Landfill in Pittsburg, California. The landfill accepted 46,244 tons of waste from Benicia in 2014. The facility has a permitted fill area of 244 acres with a remaining capacity of 58.6 million cubic yards as of March 2012. It is projected that the landfill will reach capacity in 2078. The remaining permitted disposal capacity at the landfill is adequate to handle the projected waste generation through buildout of the General Plan, particularly in light of the State’s waste diversion requirements. The City’s Franchise Agreement guarantees continued waste disposal capacity for the existing and future community. Determinations 6.6.1 The City has a contract with Republic Services, a local franchised hauler, for curbside garbage collection. 6.6.2 Solid waste is taken to Keller Canyon Landfill in Pittsburg, California. It is projected that the landfill will reach capacity in 2078. 6.6.3 The remaining permitted disposal capacity at the landfill is adequate to handle the projected waste generation through buildout of the General Plan. 6.7 – Stormwater The Benicia Public Works Department is responsible for the design, construction, operation, and maintenance of storm drain facilities within the city limits. The facilities include drainage inlets, manhole structures, culverts, open ditches, pump stations, and portions of Sulphur Springs Creek, a large drainage channel. Concurrent with development, these facilities are installed, upgraded, or replaced as needed. The City of Benicia is along the north shore of the Carquinez Strait, where the combined flows of the Sacramento and San Joaquin rivers have cut a deep gorge through the Coast Range. The Strait is a crucial link in northern California’s inland waterway, connecting San Pablo Bay and San Francisco Bay to the west with the Sacramento and San Joaquin River deltas to the east. Through the Strait, ocean-going ships can reach the Port of Benicia or continue on to the Central Valley ports of Sacramento and Stockton. All the City’s stormwater is conveyed both by natural and man-made channels, and by drainage culverts to the Carquinez Strait. The boundaries of the drainage watershed located within the City of Benicia are the Carquinez Strait (southerly), the Lake Herman/Sky Valley/Paddy Creek areas (northerly), the City of Vallejo (westerly), and Suisun Bay (easterly). The watershed includes the following sub-basins: • Goodyear Slough/Industrial Park (northeasterly section) • Benicia Urban Areas • Sulphur Springs Creek/Lake Herman Solano LAFCO—Benicia MSR 6-12 February 14, 2017 Present and Planned Capacity of Public Facilities All the sub-basins are served by natural or constructed drainage systems, such as creeks, ditches, and storm drain culverts. The terrain within the sub basins is quite diverse. There are steep hills north of Military and Interstate 780. Flat and rolling terrain extends to the south and east including most of the industrial park. The climate in Benicia is similar to that experienced countywide—typically dry in the summer with mostly seasonal rainfall between October and April. The ten-year average annual precipitation over the basin is 19.01 inches. General area-wide storms of two or three days in duration are typical. The Goodyear Slough/Industrial Park sub-basin is a flat area directly connected with the westerly boundary of Suisun Bay. The Benicia Urban Area sub-basin consists of numerous small drainage areas that drain portions of the Southampton area, the Arsenal area, and the areas south of the I-780 freeway, including Downtown. The most intensively developed areas within the Benicia city limits include the downtown area with a central commercial district and the area along Southampton Road, with medium- to high-density residential land uses and a commercial shopping center. The total land area is approximately 13 square miles. The Sulphur Springs Creek/Lake Herman sub-basin consists of the area upstream of Lake Herman between the cities of Vallejo and Benicia, the Paddy Creek area, and the major portions of the Benicia Industrial Park. The area upstream of Lake Herman consists of the Sky Valley area with portions in the City of Vallejo, Solano County, and a portion within the City of Benicia’s SOI. Lake Herman is the major body of water in the drainage basin and is located on Sulphur Springs Creek about two miles north of downtown Benicia. Sulphur Springs Creek is the main channel traversing the basin with the area north of Lake Herman called Sky Valley. The watershed includes Sulphur Springs Mountain range to the west as well as lesser ridges to the north, east, and south. Sulphur Springs Mountain has a peak elevation of 1,000 feet. The Lake Herman sub-basin covers an area approximately 10 square miles. The primary land use in the Sulphur Springs Creek/Lake Herman sub-basin north of Lake Herman is agricultural; there are several beef cattle ranches, a small dairy, and an abandoned walnut orchard. Syar Industries, an aggregate mining firm, has facilities near the western end of the watershed. The majority of its operations lie outside the watershed; however, in December of 2014, the Solano County Planning Commission approved a use permit and reclamation plan to expand the quarry pit to 211 acres from 113 acres and double the extraction rate to 4 million tons annually. The City provided comments on the project during the Environmental Impact Report process. The mitigation measures identified for the project reduced the impacts to a less-than-significant level. The primary land use south of Lake Herman is industrial located within the Benicia Industrial Park. The final phases of the Southampton residential development also drain into Sulphur Springs Creek south of Lake Herman with storm flows regulated by two detention basins. In addition to several ranch homes, there are several residences within the watershed located on Lake Herman Road west of the lake. The Hiddenbrooke residential subdivision, located in the City of Vallejo, was constructed in Upper Sky Valley with a golf course that has been Solano LAFCO—Benicia MSR 6-13 February 27, 2017 Present and Planned Capacity of Public Facilities operating since 1991. This entire area drains into a retention basin and ultimately into Lake Herman. 6.7.1 – Benicia’s Stormwater Management Program The City of Benicia is required by the United States Environmental Protection Agency (EPA) under the provisions of the National Pollution Discharge Elimination System (NPDES) Phase II regulations and the State Water Resources Control Board (SWRCB) Phase II General Permit requirements to develop and implement a Stormwater Management Plan (SWMP). The SWMP is intended to reduce pollutants that may be present in stormwater runoff from streets and property within the city limits. The City intends to control and manage its stormwater in compliance with the provisions of the State General Stormwater Permit by applying for coverage under the Phase II General Permit as regulated by the SWRCB San Francisco Bay Region 2. The City of Benicia has adopted a Stormwater Management and Discharge Control Ordinance, Chapter 15.64 of the Benicia Municipal Code, to address stormwater control within the City. Several key components of the Program include the following: • Public Education and Outreach • Public Participation/Involvement • Illicit Discharge Detection and Elimination • Construction Site Storm water Runoff Control • Post-Construction Storm water Management • Pollution Prevention for Municipal Operations The City provides a detailed annual report on the progress and effectiveness of the Program and identifies necessary changes to the Program based on performance. In addition, the State General Permit requires development of a guidance document and implementation of tasks annually. The City has implemented a number of the elements, including recycling programs, educational documents, storm drain mapping, street sweeping, drainage inlet cleaning, storm drain stenciling, and annual outfall monitoring. Determinations 6.7.1 The Benicia Public Works Department is responsible for the design, construction, operation, and maintenance of storm drain facilities within the city limits. 6.7.2 All the City’s stormwater is conveyed both by natural and man-made channels, and by drainage culverts to the Carquinez Strait. 6.7.3 All the sub-basins are served by natural or constructed drainage systems, such as creeks, ditches, and storm drain culverts. 6.7.4 The City of Benicia has adopted a Stormwater Management and Discharge Control Ordinance to address stormwater control within the City. Solano LAFCO—Benicia MSR 6-14 February 14, 2017 Present and Planned Capacity of Public Facilities 6.7.5 The State General Permit requires development of a guidance document and implementation of tasks annually. The City has implemented a number of the elements including recycling programs, educational documents, storm drain mapping, street sweeping, drainage inlet cleaning, storm drain stenciling, and annual outfall monitoring. 6.7.6 Measure C revenues will assist with some long term maintenance and replacement costs. 6.8 – Wastewater The City of Benicia owns and operates the facilities providing wastewater collection, treatment, and discharge for its service area, which is coterminous with the city limits. The City’s wastewater system currently serves approximately 8,900 residential (single- and multi- unit dwellings) and 609 commercial/industrial connections. The system includes the treatment plant, approximately 150 miles of pipeline, 23 pumping stations, and a 1,300-foot- long deep-water outfall to the Carquinez Strait. The Wastewater Treatment Plant (WWTP) is located on seven and a half acres of land in the southeast section of the City at 614 East Fifth Street. Discharges from the plant are regulated by the California Regional Water Quality Control Board, San Francisco Bay Region, through a NPDES permit. The plant was originally built in 1958, and provided primary level (removal of grit and solids) treatment only. It was upgraded to include secondary (biological removal of most of the remaining pollutants) treatment in 1978. In 1998, the plant was again upgraded to address reliable capacity, odors, and noise. The most recent project (2003 Infiltration and Inflow Improvements Project) included installing a three-mile-long, main trunk relief sewer pipeline to convey intercepted wet weather flows from the far western side of the City to the plant. In addition, modifications were made to the WWTP to accommodate peak wet weather flows, including new screening structures, upgraded disinfection/dechlorination facilities, and larger effluent pumps. The main objective of this project was to minimize sanitary sewer overflow within the lower portions of the City. Repair and replacement of old sewer pipelines will continue to be scheduled on an annual basis to reduce infiltration and inflow from the system over time. The plant treats an average dry weather flow capacity of 4.5 million gallons per day (mgd) and has a sustained wet weather secondary treatment capacity of 11 mgd. Currently, the plant discharges an average dry weather flow of approximately 2.0 mgd (2015 data). Plant capacity is a function of both flow (volume of water) and loading (pollutant concentration). Capacity of the plant is adequate to handle wastewater generated by both existing and projected uses within the city limits, as defined by the 1999 General Plan for the 2020 planning horizon, including Pine Lake area. Wastewater is transported to the plant via two main interceptors. A 36-inch interceptor enters the plant from the west. The land use in this area is primarily residential with both single- and multiple-family dwellings, and some light commercial. The area is near buildout Solano LAFCO—Benicia MSR 6-15 February 27, 2017 Present and Planned Capacity of Public Facilities with only small infill parcels remaining. A 24-inch interceptor enters the plant from the east serving primarily commercial and industrial uses, including the Benicia Industrial Park, and Pine Lake area. The City’s sanitary sewer pipelines have adequate capacity to convey wastewater collected from existing customers discharging to the system and for limited degrees of rainfall-dependent infiltration and inflow. Future large-scale development, including Northern Gateway property, will require additional analysis of the collection system to determine capacity constraints and identify needed improvements to accommodate the increase in wastewater to be conveyed. Findings & Determinations 6.8.1 The City of Benicia owns and operates the facilities providing wastewater collection, treatment, and discharge within the city limits. 6.8.2 The plant treats an average dry weather flow capacity of 4.5 million gallons per day (mgd) and has a sustained wet weather secondary treatment capacity of 11 mgd. Currently, the plant discharges an average dry weather flow of approximately 2.0 mgd (2015 data). 6.8.3 Capacity of the plant is adequate to handle wastewater generated by both existing and projected uses within the city limits. 6.8.4 Future development of the Northern Gateway property will require additional analysis of the collection system to determine capacity constraints and identify needed improvements to accommodate the increase in wastewater to be conveyed. 6.9 – Water The City of Benicia owns and operates the facilities providing potable water to users within its service area, which is coterminous with the city limits. The treatment facility is located off Lake Herman Road. Water is pumped to the treatment plant through the Transmission Main that runs along I-680 from Cordelia to the treatment plant. At the Water Treatment Plant (WTP), the raw water is distributed through the Diversion Structure for treatment or by gravity flow to Lake Herman. The treatment plant operates under regulatory oversight of the State Water Resources Control Board—Division of Drinking Water and has a rated hydraulic capacity of 12 million gallons per day. The raw water transmission system consists of two pumps stations and approximately 18 miles of pipeline. The treated water distribution system consists of three pump stations, five reservoirs, nine pressure-reducing stations, and approximately 160 miles of pipelines. The City maintains emergency storage at Lake Herman with a capacity of 1,390 acre-feet at full pool. Lake Herman has an average yield of 500 to 1,000 acre-feet annually with no yield during dry years. The lake also provides storage for excess water delivered through the North Bay Aqueduct (NBA). 6.9.1 – Historical Water Use The City contracts to receive Delta water via the NBA through agreements with the Solano County Water Agency (SCWA) for State Water Project (SWP) water and with the California Department of Water Resources (DWR) for Settlement Water. The City also receives Lake Solano LAFCO—Benicia MSR 6-16 February 14, 2017 Present and Planned Capacity of Public Facilities Berryessa water from the SWP through agreements with the City of Vallejo and the Solano Irrigation District (SID). Approximately half the City’s raw water demand is sold to and used by the Valero Benicia Refinery for industrial cooling and boiler use. The remaining raw water is treated at the City’s WTP for its municipal demand. Water stored in Lake Herman is captured through stormwater runoff or impounded from excess raw water diversion from the WTP. Table 6-4: Contracted Water Supply Source Contract Amount (AFY) State Water Project 16,075 Settlement Water 10,500 Vallejo Agreement 1,100 Solano Irrigation District Agreement 2,000 Lake Herman 500* Total 30,175 Note: * Based upon historical observation) State Water Project (SWP): The City receives SWP water through an agreement with SCWA. SCWA is a State Water Contractor and maintains an agreement with the DWR for the SWP water (called Table A water), and in turn contracts with cities in Solano County to provide this supply. The water supply for the SWP comes from Lake Oroville in Butte County and water rights for flows in the Sacramento and San Joaquin River systems. The SWP contract runs to year 2035 and is renewable. The City’s current SWP contract amount is 17,200 acre- feet per year (AFY), with 16,075 AFY guaranteed after the cities of Rio Vista or Dixon connect to the NBA. Water Rights Settlement: The City of Benicia, along with the cities of Fairfield and Vacaville, asserted a priority right with the State of California for water from the Sacramento-San Joaquin Delta pursuant to the Watershed-of-Origin Statute. DWR diverts water under an appropriative right that allows diversion of water that is not needed to meet in-Delta needs or outflow needs. The City is able to pump Settlement Water whenever the water restriction Term 91 is lifted, normally during the winter months. In California, courts have held that appropriative water rights may be limited under the Public Trust Doctrine. Vallejo Agreement: The City currently has an active water purchase agreement with the City of Vallejo. The agreement was executed in 1962 and has been amended twice. The second amendment extended the expiration date of the agreement to February 28, 2025. The City anticipates this agreement will be renewed at its expiration. Solano LAFCO—Benicia MSR 6-17 February 27, 2017 Present and Planned Capacity of Public Facilities In the agreement, the City will purchase 1,100 AFY of Vallejo’s Solano Project “call” water from Lake Berryessa. The agreement also provides that the City can receive up to 3 million gallons per day (mgd) of the water as treated water, in lieu of raw water, by means of an interconnection between the Benicia and Vallejo treated water systems, which does not currently exist. Currently, the City can only receive raw water from Vallejo by means of the Cordelia Pump Station and Cordelia Transmission Main. In order to receive treated water, a new interconnection would be required. The agreement provides that shortages (reductions) experienced by Vallejo may be passed on to Benicia. Solano Irrigation District (SID): SID is the holder of a contractual right to receive entitlements from the Solano Project as a Participating Agency of the SCWA under the terms of a Participating Agency Contract providing for the delivery of and allotment of 141,000 AFY from the Solano Project to SID. In March 2009, the City entered into a purchase agreement with the SID to provide 2,000 AFY of “carry-over.” Water will be provided through water deliveries from Lake Berryessa and the Putah South Canal of the Solano Project. There is no specified date of termination of the agreement as long as SID maintains the adequate water rights from SCWA, and payments to SID are met. The agreement is subject to a reduction in supply based on drought conditions. The SID water was purchased as an alternative raw water supply and to improve drinking water quality when the water drawn from the Delta through the North Bay Aquaduct (NBA) is high in total organic carbon. This water source can be counted towards the total water available, but was not intended to increase availability for future growth. Any new water use of any significance would have to be analyzed in this context. Lake Herman: Lake Herman is located in the hills between the cities of Benicia and Vallejo and has an approximate storage capacity of 1,400 acre-feet. The dam that created Lake Herman was constructed in 1905 and raised in 1943 to its current height of 116 feet above sea level. Lake Herman is part of the Sulphur Spring Creek watershed. The average yield of its watershed is 500 AFY to 1,000 AFY, with no yield in dry years. The lake serves as terminal storage for excess supply delivered to the City through the NBA. Pumped raw water from the NBA or Putah South Canal is delivered to the City’s treatment facility at a diversion structure. Since the pump stations operate at a fixed speed, surplus flow not needed at the plant is diverted by gravity to Lake Herman through a 24-inch- diameter pipeline. The City has the ability to pump water from Lake Herman back to the treatment facility through the Lake Herman Pump Station. This is typically done during emergencies when supply from the NBA or Putah South Canal is not available. The pump station has a total pumping capacity of 9.6 mgd. Water Reuse Project (Proposed): The City of Benicia is has proposed a Water Reuse Project which would allow the City to produce about 2,000 acre feet per year (AFY), or 650 million gallons, of recycled water at the Benicia Wastewater Treatment Plant. By sending all or most of that water to one of the City’s largest water users, the Refinery, the City is able to accomplish a number of objectives: Solano LAFCO—Benicia MSR 6-18 February 14, 2017 Present and Planned Capacity of Public Facilities Increases annual potable water supply available to residents and businesses by 2,000 acre feet, which represents 20 to 25 percent of the City’s overall water needs. During periods when SWP supply is not limited, this water can be banked in Lake Berryessa for use during times of shortages, thus reducing the need to purchase imported water at premium rates. The highly-treated recycled water produced would meet State of California rules for unrestricted non-potable use for industrial, irrigation, dust control, and residential use. Recycled water will be available to citizens, construction contractors and for irrigation of parks and other locations near the pipeline A year-round, high-demand water reuse customer allows cost-effective production of recycled water, because of lower pipeline construction costs and economies of scale. It has an additional benefit of reducing discharge to the San Francisco Bay and the activities associated with complying with current and future discharge regulations. Flexibility can be built into the recycled water project to serve smaller, seasonal, irrigation or industrial customers now and in the future. Because a lower level of treatment meets Valero’s needs, this recycled water project is less expensive than one studied in 2008. In 2008, the need for higher recycled water quality was driven by using recycled water in Valero’s boiler feed water system, which required highly treated recycled water using reverse osmosis. The current study targets recycled water use in the Refinery’s cooling tower system only, and water quality that can be achieved with less- expensive treatment. The tertiary treated water produced at the treatment plant will assist the City in complying with potential nutrient regulations for continued discharge to the San Francisco Bay. The project implements the goals and policies of the City’s General Plan and Strategic Plan in relation to achieving sustainability, ensuring an adequate water supply and promoting water conservation. 6.9.2 – Projected Usage The City of Benicia’s 2012 Water Systems Master Plan developed a baseline forecast for treated water demands assuming that no additional conservation from 2009–11 levels would occur in the future. Baseline water demand forecasts presented in the 2010 Urban Water Management Plan were used for the water demand. Forecast consumption for the various land use categories were summarized to provide the baseline treated production projection shown in Table 6-5. Solano LAFCO—Benicia MSR 6-19 February 27, 2017 Present and Planned Capacity of Public Facilities Table 6-5: Baseline Treated Water Demand Forecast by Category Water Consumption (AFY) Water Use Category 2010 2015 2020 2025 2030 2035 Single-Family Residential 2,701 2,743 2,786 2,830 2,876 2,909 Multi-Family Residential 467 474 482 489 497 503 Commercial/Institutional 381 387 393 399 406 410 Industrial 89 90 92 93 95 96 Irrigation 536 544 553 562 571 577 Other 9 9 9 9 10 10 Total 4,183 4,247 4,315 4,382 4,455 4,505 The total amount of raw water supply the City is projected to need, based on treated water demands and raw water projections at the baseline level, and is shown in Table 6-6. Raw water projections include raw water for the Valero refinery and operations raw water used for treatment processes at the water and surplus raw water supply that bypasses the treatment plant and is stored in Lake Herman for future emergency use. The projected total raw water demands are expected to increase from approximately 10,863 AFY in 2010 to 11,940 AFY in 2035, an increase of over 1,077 AFY. Table 6-6: Baseline Raw Water Demands Raw Water Demands (AFY) Type 2010 2015 2020 2025 2030 2035 Treated Water 4,183 4,247 4,315 4,382 4,455 4,505 Valero Raw Water 4,792 5,296 5,800 5,800 5,800 5,800 Operations and Emergency 441 441 441 441 441 441 Raw Water Unaccounted For Water 1,447 1,109 1,173 1,180 1,188 1,194 Total Raw Water Demand 10,863 11,093 11,729 11,803 11,884 11,940 High, baseline, and low raw water demand projections were developed to examine the City’s supply needs for water (Table 6-7). These projections include both production demands and Valero’s raw water demands. The high demand assumes industrial treated water use is twice that in baseline conditions, no significant savings from conservation programs occur, and the projected Valero raw water demand is 10 percent over baseline values shown in Table 6-5. The baseline case is based on historical data regarding Valero’s raw water demand and assuming current levels of conservation and 100 percent planned buildout as phased; with Valero’s raw water demand curve remaining relatively flat at levels extrapolated from Solano LAFCO—Benicia MSR 6-20 February 14, 2017 Present and Planned Capacity of Public Facilities historical use data. The low demand assumes that additional conservation activities cause a decrease from the baseline demands by 10 percent and that buildout for treated water supply is 80 percent of baseline construction; which is equivalent to a total of 18 percent reduction in treated water demand, and a 10-percent reduction in non-potable demands. Table 6-7: Total Raw Water Demand Forecasts Annual Demand (AFY) Scenarios 2010 2015 2020 2025 2030 2035 Baseline Scenario Treated Water Demand 4,183 4,247 4,315 4,382 4,455 4,505 Valero Raw Water Demand 4,792 5,296 5,800 5,800 5,800 5,800 Operations & Emergency 441 441 441 441 441 441 Demand Unaccounted For Water 1,447 1,109 1,173 1,180 1,188 1,194 Total Demand 10,863 11,093 11,729 11,803 11,884 11,940 High Demand Scenario Treated Water Demand 4,272 4,337 4,407 4,475 4,550 4,601 Valero Raw Water Demand 5,271 5,826 6,380 6,380 6,380 6,380 Operations & Emergency 441 441 441 441 441 441 Demand Unaccounted For Water 1,447 1,109 1,173 1,180 1,188 1,194 Total Demand 11,431 11,713 12,401 12,476 12,559 12,616 Low Demand Scenario Treated Water Demand 3,012 3,058 3,107 3,155 3,208 3,244 Valero Raw Water Demand 4,313 4,766 5,220 5,220 5,220 5,220 Operations & Emergency 441 441 441 441 441 441 Demand Unaccounted For Water 1,302 998 1,056 1,062 1,069 1,075 Total Demand 9,024 9,219 9,779 9,834 9,894 9,935 Findings & Determinations 6.9.1 Benicia owns and operates the facilities providing potable water to users within the city limits. 6.9.2 The City contracts to receive Delta water via the NBA through agreements with the Solano County Water Agency for State Water Project (SWP) water and with the California Department of Water Resources for Settlement Water. The City also Solano LAFCO—Benicia MSR 6-21 February 27, 2017 Present and Planned Capacity of Public Facilities receives Lake Berryessa water from the SWP through agreements with the City of Vallejo and the Solano Irrigation District. 6.9.3 The City maintains emergency storage at Lake Herman with a capacity of 1,390 acre- feet at full pool. Lake Herman has an average yield of 500 to 1,000 acre-feet annually with no yield during dry years. 6.9.4 Approximately half the City’s raw water demand is sold to and used by the Valero Benicia Refinery. 6.9.5 The City’s total water supply (contracted and by right)is 30,175 AFY. 6.9.6 The projected total raw water demands are expected to increase from approximately 10,863 AFY in 2010 to 11,940 AFY in 2035. Even with the additional demand the city has adequate supply from a diversity of sources to meet those demands. Solano LAFCO—Benicia MSR 6-22 February 14, 2017 Financial Ability to Provide Services 7.0: Financial Ability to Provide Services The City of Benicia offers a full range of services to its residents and businesses. This includes police, fire, street and facilities maintenance, library, parks and community services, as well as general administration. Although primarily funded out of the General Fund, some additional department support comes from Special Revenues, such as Gas Tax and Traffic Mitigation, which support street resurfacing and traffic calming measures. In addition, Benicia has always been active in seeking grants and state entitlement funds. These funds help the departments maintain the City’s quality of life. The City’s remaining vacant land is close to existing services, including the 527-acre Northern Gateway property west of I-680. 7.1 – General Fund The General Fund is the primary operating fund of the City. The fund accounts for all revenues, expenditures, transfers, and other activity not accounted for in other city funds. The City continues to experience flattening or declining revenues coupled with rising employee retirement benefit and workers’ compensation costs. In the past, these challenges were met through employee contract negotiations, cost containment measures, inter fund loans, and drawdowns of reserve balances. Despite these measures, without additional ‐ ‐ action, budgeted General Fund reserves will fall below the key levels set in the City’s Reserve Policy in future budgets. Per the General Fund’s 10-year forecast, the City reserve levels will remain at or close to the 20 percent reserve policy for the next five years. Beyond the next five years, as expenditures continue to outpace revenues, the City will need to address this structural deficit by reducing expenditures and/or seeing increased revenues. City management will work with the Council to discuss long term budget stabilization measures to restore fund reserves, eliminate operating deficits, and deliver services efficiently and ‐ effectively to the citizens of Benicia in a sustainable manner. The City adopts a two year budget to allow for better fiscal planning. The current budget is the 2015-17 budget. Table 7-1 and Table 7-2 outline the City’s revenues and expenditures, broken down by major categories, over the past five fiscal years starting in FY2010–11 and continuing through to the most recent budgeted year, FY2015–16. Note that FY 2015-16 actuals are draft amounts, as these are unaudited as of November 10, 2016. Table 7-1: Statement of Revenues for the Past Five Years and Current Year FY10-11 to FY15–16 Revenues FY15–16 FY15-16 Revenue Source Budget Actuals* FY14–15 FY13–14 FY12–13 FY11–12 FY10–11 Taxes Property 15,678,000 15,580,028 15,152,388 14,291,376 11,835,074 12,659,984 12,162,807 Sales 7,932,600 8,992,100 5,892,568 6,371,951 7,085,187 6,217,952 6,150,614 Solano LAFCO—Benicia MSR 7-1 February 27, 2017 Financial Ability to Provide Services Table 7-1: Statement of Revenues for the Past Five Years and Current Year FY10-11 to FY15–16 Revenues FY15–16 FY15-16 Revenue Source Budget Actuals* FY14–15 FY13–14 FY12–13 FY11–12 FY10–11 Utility users 6,308,850 4,594,385 4,318,066 4,739,792 4,825,055 5,087,381 5,027,163 Franchise tax 2,233,600 2,079,543 2,200,664 1,859,241 1,637,825 1,598,207 1,570,184 Other 905,000 1,106,213 1,070,045 965,749 931,059 839,480 844,334 Licenses and 370,500 480,554 539,451 391,987 331,830 277,267 315,208 permits Fines and 79,500 102,280 82,198 92,633 125,016 184,084 99,898 forfeitures Use of money 34,745 801,087 490,006 437,227 311,010 437,602 570,763 and property Revenue from 30,000 258,354 382,439 382,457 2,050,280 2,229,811 2,240,416 other agencies Current service 2,132,000 2,197,690 1,761,507 1,712,085 1,423,705 1,308,688 1,222,815 charges Community — 44,736 37,721 38,197 — — — donations Other 103,435 140,528 86,189 179,912 507,168 161,397 471,900 Note: * For FY 2015–16 actual revenues are draft amounts, as the audit has not been finalized as of Nov. 10, 2016. Table 7-2 outlines the City’s annual expenditures, by department, from the 2010–2011 fiscal year through the current year. Table 7-2: Statement of Expenditures for the Past Five Years and Current Year FY15–16 FY15–16 EXPENDITURES Budget Actuals** FY14-15 FY13–14 FY12–13 FY11–12 FY10–11 Current Administration 4,620,620 $4,212,645 $3,930,343 $3,074,350 2,943,896 2,957,695 3,101,146 Public safety––police 8,952,310 8,545,510 8,257,338 8,231,407 8,078,683 7,874,874 8,252,596 Public safety–fire 7,344,790 7,482,751 6,870,350 6,449,095 6,490,519 6,193,078 6,555,355 Parks and community 5,282,390 5,005,501 4,985,127 4,839,940 4,619,097 4,561,963 4,807,911 services Community 1,394,355 1,342,025 1,079,054 931,502 1,010,550 —* —* Development Public Works 2,298,975 2,133,662 1,786,668 1,177,976 1,160,546 2,009,147* 2,469,041* Library 1,361,905 1,264,161 1,238,938 1,196,032 1,204,180 1,165,025 1,211,576 Economic 679,035 744,461 572,719 537,493 599,745 443,384 458,470 Solano LAFCO—Benicia MSR 7-2 February 14, 2017 Financial Ability to Provide Services Table 7-2: Statement of Expenditures for the Past Five Years and Current Year FY15–16 FY15–16 EXPENDITURES Budget Actuals** FY14-15 FY13–14 FY12–13 FY11–12 FY10–11 Development General 1,010,205 528,614 722,030 2,899,981 2,821,213 2,863,369 2,606,994 Capital outlay 2,760,000 415,396 214,588 406,691 248,754 207,940 198,058 Debt Service Principal 390,990 341,761 326,668 312,139 — — — Interest and fiscal — 49,229 69,736 86,945 11,749 18,312 91,960 charges Note: * For FY 2010–11 & FY 2011–12, Public Works and Community Development were combined as one department ** For FY 2015-16 Actuals, amounts are drafts, as the audit has not been finalized as of Nov. 10, 2016. It should be emphasized that despite the anticipated long-term structural deficit, balancing measures utilized thus far have achieved notable results. The most recent proposed General Fund budget for FY2016–17 will allow the City to continue providing existing services and is the first budget since the 2008 recession that departments were not recommending reductions in order to maintain the City’s General Fund reserve policy of 20 percent over the course of the two-year budget cycle. Exhibit 2 compares the revenues and expenditures from FY2010–11 to the most recent budgeted year, FY2015–16. As shown, following the period of the recession, the City’s general fund remained relatively stagnant but in FY2015– 16 the expenditures and revenues increased. Exhibit 2: General Fund Revenues and Expenditures Exhibit 1: General Fund Revenues and Expenditures 40,000,000 35,000,000 30,000,000 25,000,000 20,000,000 15,000,000 10,000,000 5,000,000 0 Budgeted FY2010-11 FY2011-12 FY2012-13 FY2013-14 FY2014-15 FY2015-16 Revenues 30,676,102 31,001,853 31,063,209 31,462,607 32,013,242 35,808,230 Expenditures 29,753,107 28,294,787 29,188,932 30,143,551 30,053,559 36,095,575 Revenues Expenditures Solano LAFCO—Benicia MSR 7-3 February 27, 2017 Financial Ability to Provide Services The effect of the recession was more than a temporary period of economic contraction as it reshaped Benicia’s fiscal landscape. Projects that are funded through the General Fund have faced serious cutbacks or funding deferral over the past decade. In response to the City’s financial situation and its citizens’ desire to maintain their quality of life, in 2014 the City Council placed Measure C on the ballot. Measure C is a 1-cent-on-the-dollar sales tax increase that goes directly to the City of Benicia and cannot be appropriated by county or state government. Measure C went into effect on April 1, 2015 and was projected to generate $3.7 million annually. For the 2015/2016 fiscal year, the projected impacts are slightly higher at $4.4 million. The City Council adopted an allocation plan for Measure C to provide assurance that the revenue would be used as intended. In addition to allocating sufficient revenue to sustain current service levels, the City Council dedicated more than half the estimated revenue to be collected in the first two years ($4 million) to address badly needed infrastructure improvements such as playground equipment replacement, road maintenance (including pothole repair) sidewalk repair, equipment for fire and police operations, and pool repairs. An updated General Fund 10-year forecast presented February 2015, showed the positive impact Measure C revenues had on reversing the budget deficit. In addition, the Measure C Sales Tax added capital funding for the General Fund. Furthermore, with the addition of Measure C revenues, the City will be able to initiate a limited number of key projects during the next two budget cycles. 7.2 – Enterprise Funds By definition, an enterprise activity charges direct fees for services. Customers that consume goods or services such as drinking or irrigation water, waste disposal, or electricity, pay a fee. Rates are set by a governing board and there is a nexus between the costs of providing services and the rates customers pay. 7.2.1 – Wastewater Funds The Wastewater Funds account for the operating revenues, expenses, debt service, and capital improvement costs related to providing the safe and reliable removal of wastewater generated within the City. Wastewater rates also pay for some non point source pollution prevention and other federal and state environmental programs related to water discharge ‐ treatment systems. Consistent with Benicia Municipal Code 13.52.040, the current monthly sewer rates for each equivalent dwelling unit are shown in Table 7-3. Table 7-3: Sewer Rates from January 17, 2013–June 30, 2017 Year Rate January 17, 2013–June 30, 2013 $45.88 July 1, 2013–June 30, 2014 $50.01 July 1, 2014–June 30, 2015 $53.26 Solano LAFCO—Benicia MSR 7-4 February 14, 2017 Financial Ability to Provide Services Year Rate July 1, 2015–June 30, 2016 $55.39 July 1, 2016–June 30, 2017 $56.49 7.2.2 – Water Funds The Water Funds account for the operating revenues, expenses, debt service, and capital improvement costs related to the utility. Operating activity includes costs for water supply contracts, storage, and the negotiation and management of untreated water supply to Valero Refining Company, costs related to Federal and State water quality, and environmental mandates. For fiscal year ending June 30, 2015, the City’s water utility fund collected $9.0 million in user fees to sustain the system. The system has $34.9 million in capital assets, net of accumulated depreciation, financed with $11.0 million of long-term debt. The fund made $1.7 million in debt service payments for the year. The net position decreased by $.3 million due to increased operating costs and the added costs of purchasing additional water as a result of the drought experienced throughout the state. Consistent with Benicia Municipal Code 13.12.010, the current water rates are shown in Table 7-4 through Table 7-7. Table 7-4: Water Service Rates to Residential Users Service Charge 01/17/13– July 1, 2013– 07/01/14– 07/01/15– 07/01/16– (per unit, per month) 06/30/13 06/30/14 06/30/15 06/30/16 06/30/17 Single-family dwelling $14.77 $16.68 $18.60 $19.86 $20.56 Multifamily dwelling $11.09 $12.52 $13.96 $14.91 $15.43 Table 7-5: Additional Volume Charges to Residential Users Volume Charge 01/17/13– July 1, 2013– 07/01/14– 07/01/15– 07/01/16– (per unit, per month) 06/30/13 06/30/14 06/30/15 06/30/16 06/30/17 0–8 hundred cubic feet $1.46 $1.65 $1.84 $1.97 $2.04 8–30 hundred cubic feet $2.30 $2.60 $2.90 $3.10 $3.21 Over 30 hundred cubic feet $2.46 $2.78 $3.10 $3.31 $3.43 Table 7-6: Water Service Rates to Commercial and Industrial Users Monthly Service Charge 01/17/13– July 1, 2013– 07/01/14– 07/01/15– 07/01/16– (per meter) 06/30/13 06/30/14 06/30/15 06/30/16 06/30/17 5/8- or ¾-inch $19.08 $21.54 $24.02 $25.65 $26.55 1-inch $33.90 $38.27 $42.67 $45.57 $47.16 Solano LAFCO—Benicia MSR 7-5 February 27, 2017 Financial Ability to Provide Services Monthly Service Charge 01/17/13– July 1, 2013– 07/01/14– 07/01/15– 07/01/16– (per meter) 06/30/13 06/30/14 06/30/15 06/30/16 06/30/17 1½-inch $76.24 $86.07 $95.97 $102.50 $106.09 2-inch $135.50 $152.98 $170.57 $182.17 $188.55 3-inch $304.85 $344.18 $383.76 $409.86 $424.21 4-inch $541.93 $611.84 $682.20 $728.59 $754.09 6-inch $1,219.32 $1,376.61 $1,534.92 $1,639.29 $1,696.67 Table 7-7: Additional Volume Charges to Commercial and Industrial Users Volume Charge 01/17/13– July 1, 2013– 07/01/14– 07/01/15– 07/01/16– (per unit, per month) 06/30/13 06/30/14 06/30/15 06/30/16 06/30/17 0–30 hundred cubic feet $1.99 $2.25 $2.51 $2.68 $2.77 Over 30 hundred cubic feet $2.33 $2.63 $2.93 $3.13 $3.24 7.3 – Capital Improvements The last Capital Improvement Program (CIP) was created in 2009 and covered projects from 2009–2014. Currently, the City does not have a CIP. The most recently adopted City budget, FY2015–17, prioritizes improvement projects, and categorizes them into four levels. Level 1 is designated for projects that are a high priority and are recommended to be funded with one-time revenues from the General Fund. There are three projects that fall under Level 1: the Enterprise Resource Planning System (ERP), the Arsenal, and St. Augustine repairs. The appropriations for these projects are anticipated to be $1.35 million. The items in Level 2 were recommended for funding and reviewed as part of the budget process. These items are included in the adopted FY2015 17 budget. Generally, items in Level 2 are those that staff have already received Council’s direction to proceed and/or they – are mandated by an outside authority; the project can be completed with existing staffing and resource levels; and/or because it is a notable project that represents a core department function that will be completed during the next budget cycle. The City’s 13 departments have outlined 38 projects that fall into the Level 2 category. The appropriations for these projects are anticipated to be $14.42 million during the FY2015–17. A quarter of these funds go into the Water Meter Replacement Program, which is one of the 38 projects. This project is sponsored by the Public Works Department and will be funded by the Water Fund. Examples of other projects included in this level are the Fire and Community Development departments’ update of the Uniform Codes every three years and the Library’s update of its cataloging system. While not routine, day to day endeavors, these projects are representative of the department’s core functions. ‐ ‐ Solano LAFCO—Benicia MSR 7-6 February 14, 2017 Financial Ability to Provide Services Level 3 projects are those that were not proposed to be in the most recent annual budget. They were included in the project list because staff acknowledges that they are high-priority projects; however, staff also recognizes that the City lacks sufficient resources to complete these projects at this time. Five projects on this list are considered top priorities in this level, should funding become available during the biennial funding. Finally, Level 4 are items that the City currently does not have the financial resources, staff or time available to undertake. They remain on the list as projects for consideration in future budget cycles. 7.3.1 – Assessment Districts Assessment districts may be established by the City Council to finance needed public improvements. Establishment of assessment districts requires the approval of two-thirds of all property owners in the proposed district. With this approval, an assessment district issues bonds to pay for the improvements and assesses the property owners for the annual debt service of the bonds. Examples of projects financed this way include: storm drainage facilities, street improvements (curb, gutter, sidewalk, pavement), and water and sewer mains. 7.3.2 – Benefit Districts Properties within a benefit district contribute funds as development occurs. When sufficient funds accumulate, improvements are built (typically, after a majority of the properties develop, the remaining area is converted to an assessment district to fund the balance of the total costs so that the improvements can be completed before complete buildout of the district). Examples of improvements funded with this method in Benicia are street paving and widening. 7.3.3 – Capital License Tax The City collects a construction license tax at the time of issuance of building permits for residential structures and commercial facilities. Revenues from this tax are used solely for public facilities and buildings. Examples of public projects funded through the Capital License Tax program are Citywide ADA improvements to City—owned facilities. 7.3.4 – Development Agreement A development agreement between the City and a developer specifies the standards and conditions that will apply for the life of a development project. A development agreement may allow, for example, a developer to increase density on his or her property in exchange for the provision of additional parkland or funding for park development. Development agreements will continue to provide a portion of park acquisition and development funding. Examples of parkland acquired through development agreements are the Benicia Community Park, Waters End Park, and Skillman Park. Other public facilities provided through a development agreement include trails, water-sewer extensions, paving, and street widening. Solano LAFCO—Benicia MSR 7-7 February 27, 2017 Financial Ability to Provide Services 7.3.5 – General Obligation Bonds General Obligation Bonds are issued by the City to finance the acquisition and construction of public capital facilities and real property. General Obligation Bond measures must be passed by a two-thirds majority of the voters within the municipality. General Obligation Bond funding is derived from increased local property taxes. The City has funded wastewater treatment plant improvements facilities through General Obligation Bonds. 7.3.6 – Park Dedication/Quimby Act The City’s Park Land Dedication Ordinance, which incorporates provisions of the Quimby Act requires, as a condition of approval of a tentative map, the dedication of land or payment of an in lieu fee to be used for the purposes of acquiring and developing parkland. The amount of dedicated parkland required is equivalent to 5 acres for every 1,000 persons in the development. Because of the requirements of the Park Dedication Ordinance, all new developments will continue to contribute a portion of the parkland necessary to serve that development. In Benicia, several parks were developed under the requirements of the City’s Park Dedication Ordinance including Bridgeview, Southampton Park, Benicia Community Park, Gateway Park, Skillman Park, Solano Park, and Jack London Park. 7.3.7 – School Impact Fees The City collects a school impact fee on all new residential and commercial development in the City. This fee is a pass—through to the school district and is authorized per state law (Proposition 1A, 1998). No school impact fee revenues accrue to the city 7.3.8 – State and Federal Grants The City actively pursues state and federal grants for public infrastructure and facilities such as parks. A recent example is the procurement of State funding for improvements to the City’s First Street Pier for parking and pedestrian improvements. The City seeks grants to implement Climate Action Plan strategies and projects that reduce greenhouse gas emissions and prepare the City for climate change. These include but are not limited to the following: electric vehicle infrastructure planning and installation, sea level rise assessments and adaptation planning, active transportation, renewable energy, and energy efficiency projects. The City has received grant funds from the California Energy Commission, the State Coastal Conservancy, and other state and federal agencies. The City also receives monies for transportation improvements from the State Gas Tax, Assembly Bill 2928, and the Transportation Development Act. 7.3.9 – Traffic Mitigation Fee The City collects traffic impact fees for all new residential, commercial, and industrial uses in accordance with the Citywide Traffic Impact Fee Program. The fee program identifies the intersection and roadway improvements citywide necessary to mitigate the impacts from development buildout in accordance with the General Plan. Each new development is charged its fair share of costs based upon the incremental increase in traffic generated from that development. Only capital improvement projects identified in the fee program can use this revenue source. Solano LAFCO—Benicia MSR 7-8 February 14, 2017 Financial Ability to Provide Services 7.3.10 – Wastewater Capacity Fund The Wastewater Capacity Fund is used to increase the capacity needs of the City utilities as defined by demand growth from development. The fee is expected to pay for all or a portion of the costs of providing public services to the new development. The City has had very little new development in the last decade, especially since the 2008 Recession. The majority of the working capital reserves are from earlier developments. The balances in these funds are finite as the City is essentially built out. 7.3.11 – Water Capacity Fund The Water Capacity fund is used to increase the capacity needs of the city utilities as defined by demand growth from development. The fee is expected to pay for all or a portion of the costs of providing public services to the new development. Findings & Determinations 7.1 Between FY 2010–11 and FY 2014–15, the City’s general fund remained relatively stagnant but in FY 2015–16, the expenditures and revenues increased. Revenues kept pace with expenses. 7.2 In 2014, Measure C was approved by the voters. Measure C is a 1 cent-on-the-dollar sales tax increase that goes directly to the City of Benicia. Measure C went into effect ‐ on April 1, 2015 and was projected to generate $3.7 million annually. 7.3 The City Council has allocated half the revenue for the first two years of Measure C to needed infrastructure improvements such as playground equipment replacement, road maintenance (including pothole repair) sidewalk repair, equipment for fire and police operations, and pool repairs. 7.4 The City’s Park Land Dedication Ordinance, which incorporates provisions of the Quimby Act requires, as a condition of approval of a tentative map, the dedication of land or payment of an in lieu fee to be used for the purposes of acquiring and developing parkland. The amount of dedicated parkland required is equivalent to 5 acres for every 1,000 persons in the development. 7.5 The last Capital Improvement Program (CIP) was created in 2009 and covered projects from 2009–2014. At this point in time the City does not have a CIP, but prioritizes improvement projects biennially as part of the comprehensive budget planning process. 7.6 The most recently adopted two-year City budget, FY2015–17, prioritizes improvement projects and categorizes them into four levels. 7.7 The city collects a number of fees that go directly to maintaining and upgrading infrastructure to keep pace with the needs of development. The City has received grant funds from the California Energy Commission, the State Coastal Conservancy, and other state and federal agencies. The City also receives monies for transportation Solano LAFCO—Benicia MSR 7-9 February 27, 2017 Financial Ability to Provide Services improvements from the State Gas Tax, Assembly Bill 2928, and the Transportation Development Act. 7.8 General Obligation Bonds are issued by the City to finance the acquisition and construction of public capital facilities and real property. The City has funded wastewater treatment plant improvements facilities through General Obligation Bonds. Solano LAFCO—Benicia MSR 7-10 February 14, 2017 Status and Opportunities for Shared Facilities 8.0: Status and Opportunities for Shared Facilities 8.1 – Shared Facilities Identification and examination of opportunities for shared facilities and resources may determine if public service costs can be reduced. The benefits of sharing costs for facilities can be numerous, including pooling of funds for economies of scale; reduced service duplications and costs; diversion of administrative functions of some facilities; and providing better overall service. Maximizing the opportunities to share facilities allows for a level of service that may not otherwise be possible under normal funding constraints. Examples of the City and other agencies benefiting from sharing costs of a municipal service include: 8.1.1 – Animal Services The Police Department employs one full-time Animal Control Officer who provides animal control services to the community. The City of Benicia has a financial agreement with Solano County in which Solano County provides after-hours animal control services and animal sheltering. 8.1.2 – Fire The Benicia Fire Department is an “all risk agency” providing services in the areas of fire prevention and suppression, emergency medical services, technical rescue, and hazardous materials incident response. These services are provided by a dedicated staff operating from two fire stations within the community. The Fire Department enhances services to Benicia by responding to requests for aid from other agencies through mutual aid agreements. In return, resources are provided to Benicia when needed. Mutual Aid is requested through dispatch as the need is recognized. The Fire Department also manages automatic response agreements with neighboring agencies. Adjacent fire jurisdictions respond simultaneously to areas of Benicia that are close to their fire station. Each jurisdiction is automatically dispatched upon receiving the initial 911 call. 8.2 – Open Space and Recreation Services The City of Benicia has a Joint Use Agreement with Benicia Unified School District (BUSD), which allows for city recreation programming at Benicia Middle School, and BUSD use of city recreation facilities. The City of Benicia worked with the City of Vallejo to establish the Vallejo-Benicia Open Space Buffer, a permanent open space buffer between the two cities that also houses a Bay Area Ridge Trail segment. The Solano Open Space Committee (previously Tri-City and County Cooperative Planning Group) JPA was entered into and became effective in 1995 by the Cities of Benicia, Fairfield, Vallejo and the County of Solano. The JPA plans for 10,000 acres of open space land between the three cities, with the shared goal to plan for, manage, and maintain the land for open space preservation, conservation and enhancement uses, agricultural production, and Solano LAFCO—Benicia MSR 8-1 February 27, 2017 Status and Opportunities for Shared Facilities regional parkland and recreation. Solano Land Trust has partnered with the JPA to acquire, manage, and develop trailheads and trails in some of the associated acreage. The City also has cooperative relationship with State Parks, which has two parks wholly or partially within the City’s boundaries, including an ongoing landscape maintenance agreement for a portion of the Benicia Capitol State Historic Park. The City contracts special event and Farmers’ Market management through Benicia Main Street. 8.3 – Police Department The Police Department provides police services to the City of Benicia and currently sees no viable option to contract out any police-related service. However, the Police Department does have agreements with surrounding law enforcement agencies to provide mutual aid. In addition, the police department participates in a regional SWAT team and narcotic task force, which provide additional resources to the community. 8.4 – Solid Waste The City contracts with Republic Services to provide street sweeping, collection of residential recyclables, yard waste, garbage, hazardous waste, and commercial refuse in the City of Benicia. Solid waste is deposited to the Potrero Hills Landfill. The Potrero Hills Landfill receives waste from Sierra foothill counties and Alameda, Contra Costa, Marin, Mendocino, Napa, Sacramento, Santa Clara, San Mateo, Solano, and Yolo Counties. The City anticipates that there will be continued shared use of the Potrero Hills Landfill by these cities. 8.5 – Stormwater City policies require private developers to pay impact fees and install infrastructure necessary to mitigate storm drainage impacts from new developments. Storm drainage discharge occurs in locations managed by different public agencies, e.g., the U.S. Army Corps of Engineers. These trends will continue as new development occurs in the City. The City is part of a Municipal Separate Storm Sewer System (MS4) and has a Phase II small NPDES permit. 8.6 – Transportation Services Solano County Transit (Soltrans) operates the local transit services for cities of Benicia and Vallejo. Solano Transportation Authority (STA) manages the SolanoExpress Bus service and coordinates with local transit agencies to plan, fund and improve intra-county transit connections. The California Department of Transportation (Caltrans) governs the freeways that connect the municipalities and the associated off-ramps. Communication and assistance between Benicia and Caltrans is necessary and frequent. All projects impacting state facilities are accomplished under a state encroachment permit or project approval process with review and approval by Caltrans. No additional opportunities for shared services have been identified. Solano LAFCO—Benicia MSR 8-2 February 14, 2017 Status and Opportunities for Shared Facilities 8.7 – Water & Wastewater Water and wastewater services are provided to Benicia residents and businesses by the City of Benicia. The City provides water service within city limits. The City of Benicia is separated from nearby cities and there are no feasible or cost-effective opportunities for sharing water and wastewater treatment facilities. The City operates an Environmental Laboratory Accreditation Program (ELAP)-certified lab. 8.8 – Management Efficiencies The City uses a budget procedure and competitive bidding process to ensure avoidance of unnecessary costs associated with obtaining outside services and capital improvements construction. The City’s budget and capital improvements program are reviewed and adopted annually as part of a public process that involves hearings before the City Council. One measure of management efficiency is whether the city does long range planning. It completed an urban water management plan in 2015, a stormwater management plan, and sewer system management plan in 2009. The City reviews its strategic plan during every budget cycle. During the FY 2015-2017 the City council agreed to extend the FY 2013-2015 Strategic Plan through FY 2015-17. The management structure of the City providing services to its lands and residents is efficient and effective, providing ongoing oversight and administration of essential government services. No opportunities for changes in management structures or organization have been identified that would result in additional efficiencies. Findings & Determinations 8.1 The City collaborates with a number of other agencies in the areas of animal services, fire suppression, open space and recreation services, police, solid waste, stormwater, transportation, water, and wastewater. Cooperative agreements are in place to reduce costs and to provide enhanced services for major service responsibilities of the city. 8.2 The current management structure provides effective oversight and administration of essential government services. No opportunities for changes in management structures or organization have been identified that would result in additional efficiencies. 8.3 While the City does not have a Capital improvement Plan, the City is dedicated to long range planning. The City adopts a two year budget in odd numbered years, including the most recent fiscal plan for FY 2015-2017. In addition the City has adopted an Urban Water Management Plan, a stormwater management plan, and a sewer system management plan. Extensive planning is an important indicator of management efficiency. Solano LAFCO—Benicia MSR 8-3 February 27, 2017 Government Structure and Accountability 9.0: Government Structure and Accountability 9.1 – Government Structure The City of Benicia is a general law city and has a Council-Manager form of government with a separately elected Mayor and a four member city council. The Mayor is elected to a four- year term, and, separately, the remaining four members of the City Council are elected at large for alternating four-year terms. The Council appoints the City Manager and Attorney and also confirms the Mayor’s appointments to all city boards, committees, and commissions. The City Clerk and Treasurer are separately elected. The 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 adoption of city ordinances and policies; establishing short- and long-term goals for the City; and adoption of the City’s budget, including approval of programs, projects, contracts, agreements, and services. Actions of the Council are regulated in accordance with applicable statutes and city procedures. The City is staffed with eleven departments: City Manager, City Attorney, Economic Development, Administrative Services, Finance, Parks and Community Services, Library, Fire, Police, Community Development, and Public Works. City Hall, the primary location for City administrative functions, is located at 250 East L Street and is open from 9:00 a.m. to 4:00 p.m., Monday through Friday. 9.2 – Accountability Council meetings are held on the first and third Tuesday of each month at 7:00 p.m. at City Hall. There are ample opportunities for public involvement and input at regularly scheduled meetings. The agenda and packets are posted on the City’s website and available for public review. Public notices are published in accordance with the Brown Act, other applicable statutes and regulations, and city procedures. Council meetings along with many boards, committees, and commission meetings can be viewed via Comcast Channel 27, AT&T U-Verse Channel 99, or via the City’s streaming video on its website. Benicia has adopted City’s Open Government Ordinance, Title 4, of the Benicia Municipal Code which states it is the goal of the City to, “make it easier for people to access city government so that they may be more informed about what their city is doing and so that they may be involved in a more meaningful and knowledgeable way. Open meetings, easier access to public records, ethical guidelines and a watchdog commission will help increase the public trust and confidence in the city government and will increase the public awareness and knowledge about their government. A well-educated public and ethical officials are essential to good government.” The City provides information to the citizens via its website, Twitter feed, Facebook page, and Nextdoor—a free social networking service for neighborhoods. In addition to its online presence, the City also provides in-person outreach. For example, recently, the City had a Solano LAFCO—Benicia MSR 9-1 February 27, 2017 Government Structure and Accountability staffed booth at the local farmers market to answer any questions citizens may have with regard to proposed water-rate changes. There are myriad boards, commissions, and committees that provide abundant opportunities for citizen participation and involvement in their governmental affairs. The City’s website has a list of the boards and commissions, including those listed below, as well as a posting of open seats for those who want to serve. Applications are available online. Council/Commission/Board Meetings Time Arts and Culture Commission 2nd Thursday 7:00 p.m. Benicia Zoning Administrator Meet as necessary Hearing 1st, 3rd & 4th Tuesdays City Council 7:00 p.m. (Click for Calendar) City Council/School Board Quarterly 8:30 a.m. Liaison 3rd Tuesday of October Civil Service Commission 2009, January 2010, April 6:30 p.m. 2010, and July 2010 Community Sustainability 3rd Monday 6:00 p.m. Commission Design Review see Historic Preservation Economic Development Board 4th Wednesday 5:30 p.m. Finance Committee 4th Thursday 9:00 a.m. Historic Preservation see Historic Preservation Historic Preservation Review 4th Thursday 6:30 p.m. Housing Authority Board 4th Wednesday 6:00 p.m. Human Services Board 2nd Monday 7:15 p.m. Board of Library Trustees 2nd Tuesday 6:30 p.m. Open Government Quarterly 5:00 p.m. Commission Parks, Recreation& Cemetery 2nd Wednesday 6:30 p.m. Planning Commission 2nd Thursday 7:00 p.m. Sky Valley Open Space Quarterly 7:00 p.m. Committee Solano LAFCO—Benicia MSR 9-2 February 14, 2017 Government Structure and Accountability Traffic, Pedestrian & Bicycle Quarterly 7:00 p.m. Safety Youth Action Coalition 4th Wednesday 3:30 p.m. Youth Commission Bi Weekly Wednesday 5:00 p.m. Youth Master Plan Steering 1st Wednesday 4:00 p.m. Committee Findings & Determinations 9.1 The City of Benicia is a general law city and has a Council-Manager form of government with a separately elected Mayor and four council members. 9.2 The Council is responsible for governing as well as establishing the overall priorities and direction for the City’s municipal government. 9.3 The City is staffed by eleven departments, including City Manager, City Attorney, Economic Development, Administrative Services, Finance, Parks and Community Services, Library, Fire, Police, Community Development, and Public Works. 9.4 Council meetings along with many boards, committees, and commission meetings can be viewed via Comcast Channel 27, AT&T U-Verse Channel 99 or via the City’s streaming video on its website. 9.5 Public notices are published in accordance with the Brown Act, other applicable statutes and regulations, and City procedures. 9.6 The City provides information to the citizens via its website, Twitter feed, Facebook page, Nextdoor, and in-person outreach. Transparency and outreach enhance accessibility and accountability of city governance. Solano LAFCO—Benicia MSR 9-3 February 27, 2017 LAFCO Policies Affecting Service Delivery 10.0: LAFCO Policies Affecting Service Delivery In the future, as the City elects to extend its service boundary area, some of LAFCO’s policies should be considered. These policies include the Sphere of Influence (SOI) policy, the Commission’s adopted Standards, and the Out of Area Service Agreement Policy. LAFCO staff should be consulted early in the process to ensure policy specific requirements are met. The Commission’s SOI policy requires that the City update or amend its sphere every five years or as necessary. Additionally, the City may designate areas in its SOI as near-term or long-term. Near-term SOI areas are those the City intends to annex in 0 to 5 years, while long-term SOI areas are those the City intends to annex in the next 5 to 20 years. The Commission has adopted eleven Standards in conjunction with the factors enumerated in GC §56668 to act as a guideline to measure the appropriateness and correctness of a proposal. Some Standards are quantitative in that specific information and minimum submittal requirements are stipulated. Other standards are qualitative and require specific documentation by the applicant. In deciding change of organization proposals, the Commission needs to make determinations on the degree of compliance or non-compliance for each Standard citing fact to support each determination. In addition, the Commission has determined that six of the Standards (numbers 1–6) are mandatory; LAFCO must make determinations of full compliance with the mandatory Standards to approve a proposal. The other five Standards (numbers 7–11) are discretionary; LAFCO may make determinations of less than full compliance with one or more of the discretionary standards and still have the discretion to approve or deny a proposal. There are instances when a city may desire to extend services outside its jurisdictional boundaries for a specified service(s). GC §56133 describes the conditions that authorize LAFCO to approve out-of-area service extensions. Generally, out-of-area service requests within an agency’s SOI are permissible so long as it is an anticipation of a later change of organization. For areas outside of an agency’s SOI, the Commission must make a finding that there is an existing or impending threat to the health or safety of the public or the residents of the affected territory. Findings & Determinations 10.1 LAFCO’s Sphere of Influence, adopted Standards and Out of Area Service Agreement are policies the City will have to consider if they propose to extend services to future service delivery areas. Solano LAFCO—Benicia MSR 10-1 February 27, 2017 Summary of Determinations 11.0: Summary of Findings & Determinations 4.1 Benicia had a population of 26,997 in 2010. 4.2 ABAG projects that by 2040, Benicia’s population will increase by 4,403 residents to 31,400. That averages to about 0.5% annually, which is consistent with recent growth. 5.1 There are no disadvantaged unincorporated communities within or contiguous to Benicia’s SOI. 6.1.1 The Benicia Police Department is responsible for animal control. The City has an after hour services agreement with the Solano County Sheriff’s office for animal control and the City has a MOU with Solano County for animal shelter services. Animal Control services are adequate 6.2.1 Services provided by the Benicia Fire Department include fire suppression, fire prevention, basic and advanced life support medical services, technical rescue services, disaster preparedness, code enforcement, and vegetation management services. 6.2.2 Fire suppression and emergency medical services are provided by the City Fire Department from two fire stations. 6.2.3 The average Fire Department daily staffing level is eight firefighters per day plus a Chief Officer. The Department’s staffing allows engine companies three staff members, including a captain, engineer, and paramedic firefighter; and it allows rescue companies two staff members, including an engineer and paramedic firefighter or firefighter. 6.2.4 The total request for service (call) for fiscal year 2015-2016 was 2,465. The breakdown of those calls for the same fiscal year was 61.22 percent medical, 5.80 percent rescue, and 32.98 percent other types of calls. 6.2.5 To provide for future buildout of the Benicia Industrial Park located on the vacant, 527-acre Northern Gateway property, an additional fire station and additional staffing may be needed to meet response and service standards. 6.3.1 Average emergency response times are tracked and available through the department’s automated computer aided dispatch (CAD) system. The program was last updated during the budget cycle 2013-2015 to include a new auditing process for police reports and to streamline state reporting requirements. 6.3.2 For in-progress or life-threatening emergency calls (Priority 1) the average response time from 2013-2014 was 6 minutes and 21 seconds. Solano LAFCO—Benicia MSR 11-1 February 27, 2017 Summary of Determinations 6.3.3 The Benicia Police Department currently has 51 full- and part-time staff members. Thirty-two staff members are sworn officers. The current ratio is about 1.18 sworn officers per one-thousand population, and is consistent with nearby cities of similar size. 6.3.4 The police station is inadequate both in size and in modern police function. Police operations are located in two separate buildings, including a temporary building used for investigations. The temporary building is out of compliance with the City of Benicia’s building codes. At this time, funding is not available to construct a new police station. 6.4.1 Within the city limits are 48 parks, facilities, and public access areas totaling 1,248 acres. These include state facilities, a regional park, community parks, neighborhood parks, and other outdoor recreation improvements. 6.4.2 The City has more than adequate regional parkland but is deficient in community and neighborhood parks. The Parks, Trails & Open Space Master Plan identified a shortfall of 35 acres of neighborhood parks and 18 acres of community parks and since the Parks, Trails & Open Space Master Plan, two neighborhood parks have been added with facilities appropriate to the size of the parks. 6.4.3 The City’s 1997 Parks, Trails & Open Space Master Plan recommends the development of new park and outdoor recreation facilities keep pace with the growth of the City. 6.5.1 The City’s Public Works Department is responsible for the operation, maintenance, design, construction, and repair of the City’s public infrastructure. 6.5.2 Improvements to the local street network are included in the City’s Traffic Impact Fee Program where future development pays its fair share of costs to address the future capacity needs of development. Measure C revenues will assist with some long term maintenance and replacement costs. 6.5.3 Other transportation projects, such as freeway mainline improvements, park & ride lots, and major transit improvements are included in the long-range plans of the Solano Transportation Authority. 6.5.4 Through a joint powers agreement between the cities of Benicia and Vallejo, and the Solano Transportation Authority, Solano County Transit (SolTrans) was created to build a unified public transit system in southern Solano County. 6.6.1 The City has a contract with Republic Services, a local franchised hauler, for curbside garbage collection. 6.6.2 Solid waste is taken to Keller Canyon Landfill in Pittsburg, California. It is projected that the landfill will reach capacity in 2078. Solano LAFCO—Benicia MSR 11-2 February 14, 2017 Summary of Determinations 6.6.3 The remaining permitted disposal capacity at the landfill is adequate to handle the projected waste generation through buildout of the General Plan. 6.7.1 The Benicia Public Works Department is responsible for the design, construction, operation, and maintenance of storm drain facilities within the city limits. 6.7.2 All the City’s stormwater is conveyed both by natural and man-made channels, and by drainage culverts to the Carquinez Strait. 6.7.3 All the sub-basins are served by natural or constructed drainage systems, such as creeks, ditches, and storm drain culverts. 6.7.4 The City of Benicia has adopted a Stormwater Management and Discharge Control Ordinance to address stormwater control within the City. 6.7.5 The State General Permit requires development of a guidance document and implementation of tasks annually. The City has implemented a number of the elements including recycling programs, educational documents, storm drain mapping, street sweeping, drainage inlet cleaning, storm drain stenciling, and annual outfall monitoring. 6.7.6 Measure C revenues will assist with some long term maintenance and replacement costs. 6.8.1 The City of Benicia owns and operates the facilities providing wastewater collection, treatment, and discharge within the city limits. 6.8.2 The plant treats an average dry weather flow capacity of 4.5 million gallons per day (mgd) and has a sustained wet weather secondary treatment capacity of 11 mgd. Currently, the plant discharges an average dry weather flow of approximately 2.0 mgd (2015 data). 6.8.3 Capacity of the plant is adequate to handle wastewater generated by both existing and projected uses within the city limits. 6.8.4 Future development of the Northern Gateway property will require additional analysis of the collection system to determine capacity constraints and identify needed improvements to accommodate the increase in wastewater to be conveyed. 6.9.1 Benicia owns and operates the facilities providing potable water to users within the city limits. 6.9.2 The City contracts to receive Delta water via the NBA through agreements with the Solano County Water Agency for State Water Project (SWP) water and with the California Department of Water Resources for Settlement Water. The City also receives Lake Berryessa water from the SWP through agreements with the City of Vallejo and the Solano Irrigation District. Solano LAFCO—Benicia MSR 11-3 February 27, 2017 Summary of Determinations 6.9.3 The City maintains emergency storage at Lake Herman with a capacity of 1,390 acre- feet at full pool. Lake Herman has an average yield of 500 to 1,000 acre-feet annually with no yield during dry years. 6.9.4 Approximately half the City’s raw water demand is sold to and used by the Valero Benicia Refinery. 6.9.5 The City’s total water supply (contracted and by right)is 30,175 AFY. 6.9.6 The projected total raw water demands are expected to increase from approximately 10,863 AFY in 2010 to 11,940 AFY in 2035. Even with the additional demand the city has adequate supply from a diversity of sources to meet those demands. 7.1 Between FY 2010–11 and FY 2014–15, the City’s general fund remained relatively stagnant but in FY 2015–16, the expenditures and revenues increased. Revenues kept pace with expenses. 7.2 In 2014, Measure C was approved by the voters. Measure C is a 1 cent-on-the-dollar sales tax increase that goes directly to the City of Benicia. Measure C went into effect ‐ on April 1, 2015 and was projected to generate $3.7 million annually. 7.3 The City Council has allocated half the revenue for the first two years of Measure C to needed infrastructure improvements such as playground equipment replacement, road maintenance (including pothole repair) sidewalk repair, equipment for fire and police operations, and pool repairs. 7.4 The City’s Park Land Dedication Ordinance, which incorporates provisions of the Quimby Act requires, as a condition of approval of a tentative map, the dedication of land or payment of an in lieu fee to be used for the purposes of acquiring and developing parkland. The amount of dedicated parkland required is equivalent to 5 acres for every 1,000 persons in the development. 7.5 The last Capital Improvement Program (CIP) was created in 2009 and covered projects from 2009–2014. At this point in time the City does not have a CIP, but prioritizes improvement projects biennially as part of the comprehensive budget planning process. 7.6 The most recently adopted two-year City budget, FY2015–17, prioritizes improvement projects and categorizes them into four levels. 7.7 The city collects a number of fees that go directly to maintaining and upgrading infrastructure to keep pace with the needs of development. The City has received grant funds from the California Energy Commission, the State Coastal Conservancy, and other state and federal agencies. The City also receives monies for transportation improvements from the State Gas Tax, Assembly Bill 2928, and the Transportation Development Act. Solano LAFCO—Benicia MSR 11-4 February 14, 2017 Summary of Determinations 7.8 General Obligation Bonds are issued by the City to finance the acquisition and construction of public capital facilities and real property. The City has funded wastewater treatment plant improvements facilities through General Obligation Bonds. 8.1 The City collaborates with a number of other agencies in the areas of animal services, fire suppression, open space and recreation services, police, solid waste, stormwater, transportation, water, and wastewater. Cooperative agreements are in place to reduce costs and to provide enhanced services for major service responsibilities of the city. 8.2 The current management structure provides effective oversight and administration of essential government services. No opportunities for changes in management structures or organization have been identified that would result in additional efficiencies. 8.3 While the City does not have a Capital improvement Plan, the City is dedicated to long range planning. The City adopts a two year budget in odd numbered years, including the most recent fiscal plan for FY 2015-2017. In addition the City has adopted an Urban Water Management Plan, a stormwater management plan, and a sewer system management plan. Extensive planning is an important indicator of management efficiency. 9.1 The City of Benicia is a general law city and has a Council-Manager form of government with a separately elected Mayor and four council members. 9.2 The Council is responsible for governing as well as establishing the overall priorities and direction for the City’s municipal government. 9.3 The City is staffed by eleven departments, including City Manager, City Attorney, Economic Development, Administrative Services, Finance, Parks and Community Services, Library, Fire, Police, Community Development, and Public Works. 9.4 Council meetings along with many boards, committees, and commission meetings can be viewed via Comcast Channel 27, AT&T U-Verse Channel 99 or via the City’s streaming video on its website. 9.5 Public notices are published in accordance with the Brown Act, other applicable statutes and regulations, and City procedures. 9.6 The City provides information to the citizens via its website, Twitter feed, Facebook page, Nextdoor, and in-person outreach. Transparency and outreach enhance accessibility and accountability of city governance. 10.1 LAFCO’s Sphere of Influence, adopted Standards and Out of Area Service Agreement are policies the City will have to consider if they propose to extend services to future service delivery areas. Solano LAFCO—Benicia MSR 11-5 February 27, 2017 References 12.0: References Document Citations Annual Solid Waste Disposal Capacity Report for the City of Benicia. City of Benicia, 2013. Benicia General Plan. City of Benicia, 1999. Benicia Parks, Trails and Open Space Master Plan. Prepared by EDAW, Inc., 1997. Benicia Police Department Annual Report. City of Benicia, 2014. Benicia: Portrait of an Early California Town. Robert Brueggemann, 1980. City of Benicia Historic Context Statement. City of Benicia, 2011. City of Benicia Public Works FY2015-2017 Adopted Budget. City of Benicia 2015. City of Benicia Water System Master Plan. Prepared by NV5, Inc., 2012. Practical Guide for Quality Management of Pavement Condition Data Collection. Linda Pierce, Ginger McGovern and Kathryn Zimmerman. February 2013. Personal Communications Eleccion, Gina. Management Analyst. City of Benicia Police and Fire Departments. Giuliani, Mario. Economic Development Manager. City of Benicia Economic Development Division. Gregory, Jeff. Waste Water Treatment Plant Superintendent. City of Benicia Public Works Department. Porteshawver, Alex. Climate Action Plan Coordinator. Community Development Department. Rahill, Timothy. Chief Business Official. Benicia Unified School District. Randall, Victor. Management Analyst. City of Benicia Parks and Community Services. Riley, Jason. Principal Civil Engineer. City of Benicia Public Works Department. Rovanpera, Scott. Water Treatment Plant Superintendent. City of Benicia Public Works Department. Urrutia, Abigail. Assistant Finance Director. City of Benicia Finance Department. Williams, Sharon. Interim Management Analyst. City of Benicia Public Works Department. Solano LAFCO—Benicia MSR 12-1 February 27, 2017