LAFCO
MSR G1 1 Visalia Jan06
Read the report at Local Agency Formation Commissions ↗
CHAPTER 1 – CITY OF VISALIA MUNICIPAL SERVICE REVIEW
EXECUTIVE SUMMARY
This section provides an overview of the written determinations findings of the Visalia Municipal Service
Review. As part of its review of municipal services, LAFCO is required to prepare a written statement of
its determination with respect to each of the following: 1) Growth and population projections for the
affected area; 2) Infrastructure needs and deficiencies; 3) Financing constraints and opportunities; 4) Cost
avoidance opportunities; 5) Opportunities for rate restructuring; 6) Opportunities for shared facilities; 7)
Government structure options; 8) Evaluation of management efficiencies; and 9) Local accountability and
governance. These requirements are established by the AB 2838, the Cortese-Knox-Hertzberg Local
Government Reorganization Act of 2000. The Visalia MSR identifies the following written
determinations.
Written Determinations
1) Growth and Population
Population
1. Based upon Census 2000 data, the City of Visalia had an incorporated land area of
approximately 28 square miles, approximately 32,650 housing units, and a total population of
91,565.
2. Based upon population projections available from the California Department of Finance, the
City had a population of approximately 107,550 as of January 2005.
3. Available data indicates that the City experienced an average annual population growth rate
of approximately 1.9% between 1990 and 2000, and 3.3% between 2000 and 2005.
Assuming the City’s population will continue to grow at an average annual growth rate of
approximately 3.0%, the City can expect a year 2025 population of approximately 194,250.
4. Using an annual average growth rate of 3.0% results in a year 2020 population of 167,559
and a 2025 population of 194,247, compared to the year 2020 General Plan Land Use
Element estimate of 165,000. Based upon these comparisons, it is concluded that the General
Plan Land Use Element provides reasonable estimates of the City’s population at General
Plan build-out, projected to occur by year 2020.
Planning Boundaries
1. Visalia’s General Plan Land Use Element establishes planning boundaries including a UAB,
UGB, and UDB’s to help establish a timeline for establishing urban development areas.
2. While the City’s General Plan Land Use Element associates the SOI with the UAB, this is
not consistent with a SOI as defined by Tulare County LAFCO. As defined by LAFCO, a
SOI would be more representative of Visalia’s definition of a UGB. A City’s SOI should
generally extend beyond or be coterminous with a City’s UGB, and inside a City’s UAB,
which is not currently the case with the City of Visalia.
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Land Use Findings
1. The City’s General Plan Land Use Element, in addition to the preparation of Specific Plans
provides for the logical and reasonable growth and development for the City of Visalia.
2. The City plans future development through the preparation, adoption, and implementation of
Specific Plans. Specific Plans address the distribution of land uses, the location and sizing of
supporting infrastructure, methods of financing public improvements, and standards of
development for a specific planning area boundary. To date, the City of Visalia has adopted
eight Specific Plans. The City requires specific plans to be approved for community centers
prior to development.
3. There is adequate land zoned for residential development within the City’s current UGB to
accommodate residential growth through the year 2020.
4. In December 2005, the City adopted a comprehensive update to their General Plan Housing
Element which was previously updated in 1993. Regular updates to the General Plan
Housing Element assist in maintaining consistency between the General Plan Housing
Element and changing economic conditions that affect housing supply and/or needs.
5. The City’s General Plan Land Use Element provides for adequate land zoned for retail
commercial and office within the City’s UGB.
6. The Visalia Industrial Park Implementation Plan establishes a study area which lies totally
within Visalia’s UAB, but portions of which are outside the City’s UDB, UGB, SOI, and City
Limits. The boundaries of the study area were designed to make sure jurisdictional issues
between the City and County were addressed. The City will need additional land zoned for
industrial uses to accommodate future expansions of the industrial park area.
7. The Visalia Industrial Park Implementation Plan provides for Master Planned growth within
the northwest industrial area, including land use, public utilities, traffic and circulation,
economic analysis, financial planning, and environmental documentation.
Annexations
1. Since 1996, Visalia has successfully annexed over 3,000 acres of land into the City.
2. There are almost 20 “islands” (developed and undeveloped) within the City Limits, in which
services are currently provided by Tulare County. Visalia has some infrastructure in place in
many of the developed islands, anticipating ultimate connection to their services.
3. California SB 1266, effective January 1, 2005, amended AB 1555 by expanding the
maximum area for island annexations from 75 to 150 acres. All other provisions of the
current law will remain unchanged.
4. The Visalia Industrial Park Implementation Plan concluded that there is an immediate need
to annex between 25 and 225 acres of land (for industrial development), and that priority be
given to annexation of unincorporated areas south of Goshen Avenue, land which is currently
within Visalia’s SOI.
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Potential SOI Updates
1. The City’s SOI should generally extend beyond or be coterminous with the City’s UGB, and
inside the City’s UAB, which is not currently the case with the City of Visalia. At a
minimum, the City’s SOI should be updated to encompass land within the City’s UGB.
2. The ultimate development potential of Visalia’s industrial park would require the expansion
of the current SOI to include the area generally bounded by Shirk Road, Road 68, Avenue
312, and Avenue 320.
2) Infrastructure Needs & Deficiencies
Water
1. The City of Visalia contracts with California Water Service (Cal Water), a private water
service provider, to serve the City with potable water and fire protection use. The Cal Water
Visalia District primarily serves the City of Visalia, the community of Goshen to the west,
and several unincorporated areas adjacent to the City of Visalia. It should be noted that Cal
water is not subject to a SOI determination, and therefore has been identified as being exempt
from the municipal service review requirement.
2. Based upon data available from the California Department of Water Resources, Cal Water
has not complied with the Urban Water Management Planning Act for the 2000 requirement.
Cal Water has until December 2005 to comply with the 2005 requirement. The Cal Water
Visalia District Manager indicated that an Urban Water Management Plan was submitted to
the California Department of Water Resources, and was adopted in June 2004. It is
recommended that Cal Water work to comply with the requirements of the Urban Water
Management Planning Act.
3. The Cal Water Visalia District completed a comprehensive Water Supply and Facilities
Master Plan (Boyle Engineering) in February 2005. The master plan program is intended to
proactively address the service needs of the existing customers in light of potential water
quality and quantity issues as well as address expansion to the system to meet projected
future growth. The master plan has a study area consistent with the City’s UGB.
4. The City is in a watershed where the groundwater supplies (from the Tulare Lake Basin) are
over-drafted, which means more water is being withdrawn from the ground for use than is
being replenished. The City has been actively involved in seeking and implementing ways to
mitigate the impacts of groundwater overdraft.
5. In August 2005, the City adopted a groundwater overdraft mitigation ordinance which
assesses impact fees upon new development and a volumetric fee upon existing urban water
supplies to fund activities and projects to mitigate the impacts of groundwater overdraft.
These efforts demonstrate the City’s ability to continue to implement long term water supply
solutions even through they are not the direct supplier of domestic water to City residents.
6. The City of Visalia has a capital improvement fund set up for underground water recharge
efforts. Funds are used for the acquisition of water, and other activities to improve
groundwater levels, and increase the supply of water to the City.
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7. The City’s Municipal Code contains a Water Conservation Ordinance which outlines specific
policies pertaining to the conservation of potable water. Employees of California Water
Service Company are authorized by the ordinance to issue written notices of violations, but
are not authorized by law to issue citations for violations. The City’s Water Conservation
Ordinance is available on the City’s website.
8. Despite the fact that the City is not the direct domestic water supplier for its residents the City
continues to make significant efforts to ensure that the long term water supply needs of the
City continue to be addressed. City officials have indicated that they are studying the
feasibility of various alternatives of implementing a City owned domestic water system.
Drainage Infrastructure
1. The City continues to expand and improve its drainage infrastructure as new development
occurs within the City. The City accomplishes this through development fees (for new
drainage facilities), and a drainage utility fee of $0.75 per month for all developed properties
(for maintaining existing facilities).
2. The City has a Master Planned storm drain system that is anticipated to meet drainage
infrastructure needs through the build-out of the General Plan. The Storm Water Master Plan
and Management Program addresses future facility expansion needs to accommodate growth
within the City’s UGB.
3. The City of Visalia has two capital funds set up for storm sewer improvements, one for new
facilities, and one for correcting existing deficiencies as outlined in the Storm Water Master
Plan and Management Program.
Wastewater Collection, Treatment and Disposal
1. The City continues the process of upgrading and replacing sewer collection pipelines through
the implementation of the Sewer System Master Plan. The Sewer System Master Plan is a
long range plan that identifies trunk lines that would ultimately serve the City’s UAB.
2. The City has a comprehensive capital improvement program that appropriates funds to
construct sewer infrastructure projects on an annual basis.
3. The Sewer System Master Plan indicates that many trunk sewers are nearing capacity, and the
maintenance of these lines is essential to provide the designed flow capacities. The Master
Plan recommends that the City develop a sanitary sewer maintenance program that includes
cleaning pipes on a regular basis.
4. The City continues to upgrade the wastewater treatment plant through the implementation of
the Wastewater Treatment Master Plan Update. The City has budgeted $1,000,000 annually
to carryout upgrades associated with NPDES discharge regulations. Continual upgrades of
the wastewater treatment plant will be necessary to accommodate future growth.
5. Improvements to the VWCP have increased the plant’s hydraulic capacity to 22 MGD, the
BOD capacity to 103,229 lbs/day, and the SS capacity to 148,068 lbs/day. The current
5
permit in which the VWCP is operating under, which prescribes a maximum average daily
dry weather flow of 16 MGD, expired on March 1, 2002. The City has submitted a renewal
application for the NPDES permit, which is pending action from the RWQCB. The City has
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been directed by the RWQCB to continue operating under the expired permit until a new
permit is issued by the Board. The City anticipates that the renewed permit will allow for a
maximum flow of 22 MGD.
6. As of August 2004, the average dry weather flow into the treatment plant was 12.5 MGD,
resulting in a reserve design capacity of approximately 9.5 MGD. The Goshen CSD
contracts with the City of Visalia for wastewater treatment services, and has current
(December 2005) contracted capacity of 335,000 GPD. As of November 2005, Goshen was
contributing a flow of 315,000 GPD to the VWCP.
Streets and Roads
1. The City continues the process of upgrading and replacing roads and streets through the
implementation of its comprehensive capital improvement program that appropriates funds to
construct transportation infrastructure projects on an annual basis. Currently, the City has
four capital funds which are allocated to annual transportation improvements.
2. The City coordinates closely with the Tulare County Association of Governments (TCAG)
and Caltrans to obtain funding for transportation improvement projects.
3. The City’s General Plan Circulation Element provides a comprehensive policy base for
improving the City’s transportation system.
4. The Tulare County Regional Transportation Plan provides a link between local (City) and
regional (County) transportation needs. The Regional Transportation Improvement Program
(RTIP), which qualifies projects for the State Transportation Improvement Program (STIP), is
consistent with the RTP, and serves as the implementing document.
5. Due to the State budget crisis, several projects programmed to receive STIP funding have
been significantly delayed, and therefore, the City has had to prioritize which transportation
projects to construct based on immediate needs, and funding shortages.
6. The 2003 public opinion survey conducted by the Citizens Advisory Committee indicates that
residents were generally more satisfied with City services except for street and road
maintenance, which residents were less satisfied with compared to previous years. In
addition, respondents rated street and road maintenance as the most important City service
besides police and fire. These results indicate that the City may need to focus more on these
issues in future years.
7. The City Council recently adopted a major policy change in the way that the City’s arterial
and collector streets are funded and constructed. Under the new policy, the City will now
have the financial responsibility for all portions of arterial and collector streets. If these
streets are built by developers, they will be reimbursed the entire cost of construction. In
exchange, the City significantly raised its traffic impact fees for new development. The City
anticipates that the new policy for constructing streets will provide the funding capability to
respond to the public’s major traffic concerns in a more timely fashion.
Fire and Police Protection Services
1. The City of Visalia operates four fire stations staffed 24 hours a day, 365 days a year, and
responded to 7,849 calls in 2003.
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2. The City of Visalia currently staffs 108 full time sworn officers, and 53 non sworn positions.
The City’s police force also includes 11 reserve officers, 52 volunteers, and 8 chaplains.
With a current (January 2005) jurisdictional population of 107,550, the VPD has a sworn
police officer to population ratio of approximately 1:995. The VPD responded to a total of
99,820 calls in 2004.
3. Through capital improvement funds and general fund allocations, the City of Visalia
continues to meet the public safety needs of its residents.
4. The residents of Visalia voted to pass Measure T, a local ¼ cent sales tax increase effective
July 1, 2004, which provides a secure, local revenue stream to the City which is used entirely
to provide additional police and fire personnel and services to protect the community.
5. The City requires developers to pay public safety impact fees prior to the issuance of any
building permits. The fees vary based upon type of service (police and fire), and proposed
land use. The fees collected are allocated to fund capital improvements to police and fire
protection facilities.
6. The City has steady revenue streams (Measure T revenues & development impact fees) that
can be used to expand public safety services to accommodate future growth.
7. The City recently purchased 5 acres of land at the southeast corner of Shirk Road and
Ferguson Avenue for the purpose of sitting a new fire station and a training facility, and is
actively looking for an appropriate site in the southeast quadrant of the City for another new
station. Funding for these new stations comes from the proceeds of the Measure T sales tax
(about 30%) and from the Fire Development Impact Fee (about 70%).
8. The City has purchased land for a new south side police precinct office at the corner of
County Center Drive and Cameron Avenue, and site planning is under way.
Solid Waste
1. The City has ordinances in place that require residents to bag garbage, and recycle. This
helps reduce the amount of solid waste transported to County landfills.
2. In 1989, the State of California passed the Integrated Waste Management Act. AB 939
required that all Cities and Counties implement programs to reduce landfill tonnage by 25%
by the end of 1995, and 50% by the end of 2000. The eight Tulare County City’s, which are
involved in the Joint Power Authority, are currently at 44% diversion. The JPA has a time
extension and plans to return to 50% diversion.
3. The City of Visalia salvages approximately 1,150 tons of recyclables and 2,500 tons of green
waste per month, corresponding to 13,800 tons of recyclables and 30,000 tons of green waste
annually. The City disposes approximately 8,500 tons of recyclables and garbage each
month, corresponding to an annual disposal tonnage of 102,000 tons, or approximately 1,000
tons per capita per year.
4. The City is contracted with Sunset Waste Paper to process residential and commercial
recycling from residential split trucks and commercial recycling routes. The City is also
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contracted with Tulare County Compost and Bio-Mass, to process residential and commercial
green waste.
5. The City has in place several programs including “Curbside Pick Up”, “Dump on Us” days,
the annual “Trash-A-Thon”, the annual “Fall Drop Off”, and the annual “Christmas Tree
Pickup” which are provided free of charge to Visalia residents.
6. The potential privatization of the City’s solid waste operations was studied, and subsequent to
the study, it was determined that it would be in the City’s best interest to continue its solid
waste operations and not privatize them at this time.
3) Financing Constraints and Opportunities
1. The City prepares an award-winning annual budget that clearly and comprehensively
describes the services provided by the City to residents and the funds expended for those
services.
2. The City prepares its annual budget on a two year cycle, thereby reducing administrative
costs associated with preparing comprehensive budgets on an annual basis. The two year
budget includes a mid-cycle review in June, and two midyear reviews each January.
3. The City recognizes the need to offset revenue losses resulting from the State budget crisis,
and continues to develop strategies to offset these losses. An example would be the passage
of Measure T, a ¼ cent increase in local sales tax, revenue that is to be used for expanding the
City’s public safety services.
4) Cost Avoidance Opportunities
Fiscal Structure
1. The City uses conservative budgeting practices to ensure adequate and cost-effective services
to current residents.
2. The City’s two year budget cycle provides for an excellent short-term fiscal planning tool
while reducing the amount of time and resources associated with the preparation of annual
budgets.
3. Master planned infrastructure helps the City in avoiding unnecessary costs through effective
planning and implementation policies, and help eliminate overlapping and/or duplicative
services.
4. The City’s developer impact fee program has proven effective in reducing the financial
responsibility of the City to install and maintain the infrastructure for new developments.
Purchasing Policy
1. The City has a well defined purchasing policy that promotes healthy competition, and guides
the City in obtaining cost effective quality services.
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5) Opportunities for Rate Restructuring
Fee Structure
1. Rates and fees for services are established and updated using the City’s budget process,
ordinances and other regulations.
2. The City has a sound fee structure in place which allows the City to continue to provide cost
effective services to its residents while continuing to maintain and improve the current
infrastructure.
3. There is no evidence suggesting that the City would not be able to provide services to areas
within the SOI and UGB for fees consistent with citywide fees for such services.
6) Opportunities for Shared Facilities
Current Facilities Sharing Activities
1. The City continues to look for opportunities to construct joint use projects, and opportunities
for shared services. The City has demonstrated this effort with the completion of many
projects in cooperation with the County, and by sharing services with local and surrounding
jurisdictions.
Future Opportunities
1. The City has several future opportunities to share services and/or facilities in the future,
including but not limited to: groundwater recharge efforts, recreational facilities, and the
sharing of office buildings.
7) Government Structure Options
Development within SOI Areas
1. Since development of properties within the SOI/UGB generally relies on Master Planned
infrastructure available from the City, it is logical for the City to assume the lead in planning
for these sites, consistent with the City of Visalia General Plan.
2. The City has a sound governmental structure that provides necessary resources to provide
public services and infrastructure improvements within the SOI/UGB areas.
3. Annexation of County islands into the City would create a more defined City Limit boundary
while meeting or exceeding the current level of services provided by the County.
4. Coordinated infrastructure plans, for development within SOI/UGB areas, submitted with
specific annexation requests would create a checks and balance system for incorporating
lands into the City while promoting improvements to impacted adjacent County land.
5. Tulare County LAFCO has adopted specific policies for reviewing proposals for a change in
organization, reorganization, incorporations, dissolution and other proposals processed by
Tulare County LAFCO, including annexations, and SOI amendment proposals.
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Boundary Conflicts
1. The City of Visalia governmental structure could be affected by the potential overlapping of
boundaries with the Goshen Community Services District (which provides sanitary sewer
collection service in the Goshen Community).
2. The City of Visalia has a Wastewater Service Agreement with the Goshen CSD, which sets
forth specific criteria with regard to wastewater collection and treatment services within the
boundary of each agency.
3. The agreement does not appear to address wastewater collection services within the Goshen
CSD SOI, which in some areas overlaps with the City of Visalia SOI. Boundary conflicts
and service provisions would ultimately be resolved between the City of Visalia, the Goshen
CSD, and Tulare County LAFCO.
8) Evaluation of Management Efficiencies
1. The City has an effective organizational structure that is readily available to respond to the
needs of the community.
2. There is no evidence indicating that the City’s current management structure would not be
able to assume services within the SOI/UGB areas, and/or continue to assist other agencies
through mutual aid agreements.
3. The City ensures that services can be efficiently provided in the SOI/UGB areas through the
preparation of master service plans that include funding mechanisms for infrastructure that
will ultimately serve the SOI/UGB areas.
4. As a part of the budget process, the City evaluates the accomplishments during the previous
budget cycle, and also outlines specific objectives for the following budget cycle. This is
done for each department at the division and/or bureau level.
9) Local Accountability and Governance
1. The City continues to make reasonable efforts to maintain public involvement regarding land
use and development projects in the community. The City accomplishes this through regular
City Council meetings, newsletters, and website postings.
2. The City maintains a comprehensive website, which provides a means to keep the public
informed on local events, current City projects, department budgets, recreational activities,
and other activities occurring in the City.
3. The City conducts public workshops to keep the public involved with local planning issues
including land use, housing, circulation, and other issues key to the development and growth
of Visalia.
4. The City’s budget preparation process gives residents the opportunity to review the services
the City is providing, and the cost of those services. This type of accountability helps the
City to identify services that are operating efficiently and areas where improvement may be
needed within the organization.
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1.0 CITY OF VISALIA
1.0.1 Background
In July 2003, the Tulare County Local Agency Formation Commission (LAFCO) Board adopted a
Municipal Service Review (MSR) exemption policy, which identifies the agencies that would be subject
to a review and the extent of that review. The agencies in Tulare County were divided into three (3)
categories: agencies subject to a full comprehensive study; agencies subject to a questionnaire study; and
agencies exempt from a MSR study. Each of the Cities in Tulare County shall be subject to full review.
The policy further identifies that the services subject to review shall be:
• Police protection
• Fire protection
• Water and wastewater
• Solid waste collection and disposal
• Streets and traffic circulation
• Power generation and distribution
• Health Care
The City of Visalia, founded in 1852 and incorporated in 1874, is located within western Tulare County
in the heart of the San Joaquin Valley. The City of Visalia operates under the Council-Manager form of
government, and provides the following services that are subject to a municipal service review: public
safety (police and fire protection), highways and streets, wastewater collection, treatment, and disposal,
and solid waste collection. Although the City provides solid waste collection services, the solid waste
landfills are owned and operated by Tulare County.
For the City of Visalia, domestic water service is not provided as a City operation, but is instead provided
by California Water Service Company, a private water provider. Information has been obtained from
California Water Service Company in order to review (to the extent possible) the domestic water service
provided within the City of Visalia and associated Sphere of Influence (SOI) area. Similarly, power
generation and distribution is provided by privately owned utility companies. The Southern California
Edison (SCE) Company serves most of the cities within Tulare County, including Visalia. Review of the
services provided by privately owned and operated utility companies is outside the scope of this MSR. It
should also be noted that due to the unique nature of healthcare, review of this service has been
specifically excluded from this report.
Historically, Visalia’s economy has been based upon agriculture and related industries. In recent years,
however, the City has broadened its economic base to include many diversified industrial enterprises
including manufacturers of school yearbooks, business forms, metal products, electronic components and
food and fiber processing plants. Visalia is the Tulare County seat and principal trading center for the
County, which consistently ranks as one of the three most productive counties in the United States in
terms of agricultural output. This economic growth has been accompanied by a significant increase in
population and has established Visalia as a regional trading center serving an estimated 500,000 persons
living within Tulare County, southern Fresno County, Kings County and northern Kern County. Over the
past ten years, the City has averaged approximately 42% of the retail sales in Tulare County, while having
about 27% of the population.
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Incorporated cities surrounding Visalia include Farmersville to the east and Tulare to the south. Smaller
size communities surrounding Visalia include Ivanhoe to the northeast, Goshen to the west and Tagus to
the south. The current City Limit Boundary and the currently adopted SOI for the City of Visalia are
illustrated on Figure 1-1. The following excerpt from the Tulare County LAFCO website
(www.co.tulare.ca.us/lafco/info.asp) defines a SOI and the purpose it serves.
A “Sphere of Influence” is the physical boundary and service area that a local
governmental agency is expected to serve. Establishment of this boundary is necessary to
determine which governmental agencies can provide services in the most efficient way to
the people and property in any given area. The Sphere of Influence requirement also
works to discourage urban sprawl by preventing overlapping of jurisdictions and
duplication of services.
The following discussions address the nine legislative factors required by the Cortese-Knox-Hertzberg
Act: 1) Growth and population, 2) Infrastructure needs and deficiencies 3) Financial constraints and
opportunities, 4) Cost avoidance opportunities, 5) Opportunities for rate restructuring, 6) Opportunities
for shared facilities, 7) Government structure options, 8) Evaluation of management efficiencies, and 9)
Local accountability and governance.
1.1 GROWTH AND POPULATION
The purpose of this section is to present historical and projected growth patterns and population
projections to establish a baseline for the evaluation of service needs. This section provides a summary
and analysis of historical data, current planning boundaries, current and projected land use needs, land
annexations, and potential SOI updates. The findings of each section are then summarized in written
determinations, contained in Section 1.1.6.
1.1.1 Historical Data
Based upon information contained in the General Plan Land Use Element (City of Visalia, Updated
1996), Visalia had a population of 49,729 in 1980, and 75,636 in 1990. Based upon Census 2000 data,
the City of Visalia had an incorporated land area of approximately 28 square miles (17,900 acres),
approximately 32,650 housing units, and a total population of 91,565. The same data indicates that
Tulare County had a year 2000 population of 368,021. Between 1990 and 2000, according to census data,
Visalia experienced an average annual growth rate of approximately 1.9%.
Based upon population projections available from the California Department of Finance, the City of
Visalia had a population of approximately 107,550 as of January 2005 and approximately 37,142 housing
units. The same data estimates a January 2005 population of approximately 409,900 for Tulare County.
Between 2000 and 2005, Visalia experienced an average annual growth rate of approximately 3.3%.
The City’s General Plan Land Use Element estimated a year 2000 population of 98,700, a year 2005
population of 113,000, and a year 2020 population of 165,000. Assuming the City’s population will
continue to grow at an average annual rate between 2.5% and 3.5%, the City of Visalia can expect a year
2025 population between 176,000 and 214,000. A comparison of the estimated year 2020 General Plan
population of 165,000 to the January 2005 population of 107,550 results in an average annual growth rate
of 2.9%, which is within the range of historical trends. Figure 1-2 summarizes the historical and
projected population data for the City of Visalia, assuming an average annual growth rate of 3.0%.
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FIGURE 1-1 – VISALIA CITY LIMITS AND SPHERE OF INFLUENCE
Source: Tulare County GIS Database (July 2004)
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FIGURE 1-2 – CITY OF VISALIA POPULATION GROWTH
Population Growth
927,94
332,95
636,57
006,18
565,19
055,701
086,421
835,441
955,761
742,491
250,000
200,000
150,000
100,000
50,000
0
1980 1985 1990 1995 2000 2005 2010 2015 2020 2025
Year
noitalupoP
Actual
Projected
Sources: California Department of Finance & City of Visalia General Plan Land Use Element
As indicated on Figure 1-2, using an annual average growth rate of 3.0% results in a year 2020 population
of 167,559 and a 2025 population of 194,247, compared to the year 2020 General Plan Land Use
Element estimate of 165,000. Based upon these comparisons, it is concluded that the General Plan Land
Use Element provides reasonable estimates of the City’s population at General Plan build-out, projected
to occur by year 2020.
1.1.2 City of Visalia Planning Boundaries
In addition to a SOI, which is defined by LAFCO, the General Plan Land Use Element defines additional
planning boundaries including an Urban Area Boundary, an Urban Development Boundary, and an Urban
Growth Boundary. The General Plan Land Use Element provides the following descriptions for each of
these planning boundaries.
Urban Area Boundary (UAB) – Approximately 90 square mile area which represents Visalia’s ‘Sphere
of Influence’ or the City’s probable ultimate physical boundary and service area. The land area between
the UAB and the Urban Development Boundary (UDB), the urban fringe, is generally not suited for urban
development within the Land Use Element’s 30-year planning and implementation period (year 2020).
This urban fringe area is designated for agriculture. An implementation measure is to promote
development of a City/County mutual agreement to specify a process and review criteria for review of
General Plan amendments and development proposals in this urban fringe area.
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Urban Development Boundary (UDB) – Estimated urbanization area within which a full range of urban
services will need to be extended or provided to accommodate urban development to the year 2020.
Three boundaries are established by estimated City population generally for the years 2000, 2010, and
2020. These boundaries have been primarily determined to accommodate land use demand associated
with economic and population projections. Periodic adjustment to these estimates and projections will be
necessary to reflect changing conditions and updated data. A UDB implementation measure is to work
with the County to agree to use the Visalia Land Use Element, as amended, as the basis for review and
action on any Tulare County General Plan amendments, zoning actions and development review for the
area inside the Visalia UDB and outside of the Visalia City Limits.
Urban Growth Boundary (UGB) – This boundary line separates the urban development areas
designated to accommodate urban development through the planning period (165,000 population or year
2020) from agricultural rural lands. The Urban Growth Boundary represents the City’s 20-year Urban
Development Boundary.
While the City’s General Plan Land Use Element associates a SOI with the UAB, this is not consistent
with a SOI as defined by Tulare County LAFCO. As defined by LAFCO, a SOI would be more
representative of Visalia’s definition of a UGB. A City’s SOI should generally extend beyond or be
coterminous with the City’s UGB, and inside the City’s UAB. Figure 1-3 shows the City’s UGB, and
UAB, in comparison to the current City Limits and SOI.
As indicated on Figure 1-3, on the following page, the City’s UGB generally extends beyond the City’s
SOI in the northwestern and southeastern areas of the City. To the south, southwest, and northeast, the
City’s SOI generally extends beyond the City’s UGB. As previously noted, a City’s SOI should generally
extend beyond or be coterminous with the City’s UGB, which is currently not the case with the City of
Visalia’s planning boundaries.
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FIGURE 1-3 – VISALIA UGB (POPULATION = 165,000), UAB, SOI, AND CITY LIMITS
Source: Tulare County GIS Database (July 2004)
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1.1.3 Land Use
Visalia has a small town character yet exhibits many big City amenities. The City is surrounded by
agricultural land which emphasizes its distinctive community character. The downtown core, bounded by
Ben Maddox Way to the east, Mooney Boulevard to the west, Houston Avenue to the north, and Tulare
Avenue to the south, is Visalia’s original town site area and historic center. The core area exhibits many
of the City’s small-town characteristics such as historic residential areas, the Central Business District
(CBD), Redwood and Mt. Whitney high schools, and Recreation and Lincoln Oval parks. The CBD,
bounded by Santa Fe to the east, Conyer Street to the west, Mineral King Avenue to the south, and
Murray Street to the north, including the Court-Locust corridor to the Lincoln Oval area, is Visalia’s
traditional retail, medical, and professional center. The CBD remains a magnet for activity, with its role
evolving from a retail sales hub to an administrative service center.
Table 1-1 contains the cumulative (developed and undeveloped) land use designation acreages within the
City’s 2000, 2010, and 2020 UDB’s, and the projected 2020 needs, as contained in the General Plan
Land Use Element. General land use categories include residential, commercial, public/institutional,
industrial, and open space. Residential land uses include rural residential, and low, medium, and high
density residential (medium and high density uses include multi-family housing). Commercial land uses
include convenience center, neighborhood center, shopping/office center, community center, CBD,
regional retail, highway and service commercial, professional/administrative offices, and business parks.
Public/institutional land uses include police/fire stations, City hall, schools, courthouse, etc. Industrial
land uses include light and heavy industrial uses, and heavy industrial reserve. Open space includes
agricultural land, conservation, and land reserved for parks.
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TABLE 1-1 CUMULATIVE LAND USE DESIGNATIONS & PROJECTIONS
Gross Designated Acreage (acres) Cumulative 2020
General Plan Designation
Year 2000 UDB Year 2010 UDB Year 2020 UDB Land Needs
Residential
Rural 1,480 1,912 1,978 728
Low Density 8,680 11,080 13,751 13,742
Medium Density 574 666 981
1,586
High Density 287 370 527
Subtotal 11,021 14,028 17,237 16,056
Commercial
Convenience Center 27 27 30
Neighborhood Center 70 84 124
Shopping/Office Center 178 178 227
Community Center 80 135 135
*
Central Business District 255 255 255
Regional Retail 406 512 639
Highway Commercial 72 72 72
Service Commercial 370 370 409
Professional/Admin. 342 410 480
*
Business Research Park 135 295 375
Subtotal 1,935 2,338 2,746
Community Facilities
Public/Institutional 1,749 1,824 1,824 *
Subtotal 1,749 1,824 1,824
Industrial
Light Industrial 743 743 743
Heavy Industrial 1,488 1,491 1,491 *
Heavy Industry Reserve 0 620 1,280
Subtotal 2,231 2,854 3,514
Open Space
Agriculture 690 690 690
Conservation 594 633 873 *
Parks 1,158 1,175 1,954
Subtotal 2,442 2,498 3,517
Total 19,378 23,542 28,838
Notes: 1) Source: City of Visalia General Plan Land Use Element (1996)
2) Total acreage does not include rights-of-way
3) * Cumulative land needs are not provided in General Plan Land Use Element, however net
(undeveloped) land use needs for these uses are considered.
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Figures 1-4A – 1-4C illustrate land use percentage charts for each major land use category for year 2000,
year 2010, and year 2020, respectively.
FIGURE 1-4A – FIGURE 1-4B –
YEAR 2010 LAND USE CHART
YEAR 2000 LAND USE CHART
(TOTAL ACREAGE – 23,542 ACRES)
(TOTAL ACREAGE – 19,378 ACRES)
Open Space
11%
Open Space
13%
Industrial
12%
Industrial
12%
Public/Institutional
8%
Residential
Public/Institutional Residential 59%
9% 56%
Commercial
10%
Commercial
10%
The City’s economy is driven by a variety of
FIGURE 1-4C –
factors including retail sales tax volume, school YEAR 2020 LAND USE CHART
enrollment, housing starts, and building permits. (TOTAL ACREAGE – 28,838 ACRES)
Although Visalia’s economy is developing rapidly
in the manufacturing, commercial, and service
Open Space
sectors, the importance of a strong and diverse 12%
industrial backbone remains. The City of Visalia
has a diverse labor pool as a result of its role as a Industrial
12%
regional manufacturing, service and retail center.
Major employers in the City include Tulare
Public/Institutional
6% Residential
County Offices, Kaweah Delta District Hospital, 60%
Visalia Unified School District, College of the Commercial
10%
Sequoias, Cigna, Jostens, Kraft, Visalia Medical
Clinic, Butler Manufacturing, Jo-Ann Stores, Inc.,
and Imperial Bondware.
Residential
The need for the City to have adequate land designated for all types of residential growth is clearly
recognized in the General Plan Land Use and Housing Elements. Most recently, residential growth
within the City has occurred in the outlying areas. The City is promoting multi-use
(residential/commercial) developments within the central infill development areas. The City has
expressed specific interest in integrating east downtown into the existing downtown with a mix of retail
and residential development and capitalizing on Mill Creek by making it a linear park that links the future
Civic Center to downtown. These concepts are being explored as a part of the “East Downtown Strategic
Plan”. The City’s evolving strategy in this area features higher density development.
Based upon estimates provided in the General Plan Land Use Element, a cumulative total of
approximately 16,056 acres of land would be needed to accommodate residential growth through year
2020. The City’s Year 2020 UDB contains 17,237 acres of land zoned residential, indicating that the
UDB has sufficient land supply to accommodate residential development through 2020. Of the total
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cumulative 2020 need, 13,742 acres of single family, 1,586 acres of multi-family, and 728 acres of rural
residential makeup the estimated need.
Visalia had 32,654 total housing units in the year 2000 based upon information provided in the Tulare
County Data Book (Census 2000). Of the 32,654 total housing units, 30,883 units (94.6%) were occupied
while 1,771 units (5.4%) were vacant. Of the occupied units, 62.7% were owner-occupied, while 37.3%
were renter-occupied. Based upon the above occupancy and housing data, along with Census 2000
population data, it can be concluded that Visalia has an average household density of approximately 2.9
persons per household. A comparison of household densities for all cities in Tulare County is provided in
Table 1-2.
TABLE 1-2
YEAR 2000 HOUSEHOLD DWELLING
UNIT OCCUPANCY RATES COMPARISON
City Persons Per Unit
City of Visalia 2.91
City of Farmersville 4.05
City of Tulare 3.22
City of Porterville 3.20
City of Exeter 3.02
City of Lindsay 3.74
City of Woodlake 3.74
City of Dinuba 3.72
Source: Tulare County Data Book (Tulare County, 2003); Census 2000
As indicated, Visalia had a year 2000 dwelling unit occupancy rate of 2.91 persons per household, the
lowest of all cities within Tulare County, lower than the County average of 3.28, and slightly higher than
the statewide average of 2.87 persons per household. In December 2005, the City adopted a
comprehensive update to their General Plan Housing Element which was previously updated in 1993.
Regular updates to the General Plan Housing Element assist in maintaining consistency between the
General Plan Housing Element and changing economic conditions that affect housing supply and/or
needs.
Commercial Centers
The two largest commercial centers in Visalia are the downtown and the Mooney Boulevard corridor,
which are intended to attract citywide and regional customers. Major retail development along Mooney
Boulevard south of Highway 198 includes regional retail centers, enclosed shopping malls, and numerous
restaurants. The City’s General Plan identifies four community-level commercial centers that would
serve the four quadrants of the City. The southwest community center is located at Demaree Street and
Caldwell Avenue and is the only one of the four that is even partially developed. The other three sites are
the Demaree Street/Riggin Avenue intersection in the northwest, the Dinuba Boulevard/Riggin Avenue
intersection in the northeast, and the Lovers Lane/Caldwell Avenue intersection in the southeast. These
community centers are required to have a specific plan approved before they may develop.
The City guides the development of retail commercial and commercial office centers through
comprehensive Specific Plans and Master Plans. Specific Plan areas generally include a mixture of
residential, retail commercial, commercial office, schools, and/or parks, within a specific planning area
boundary. A Specific Plan is essentially a General Plan implementation document which functions to
create a bridge between General Plan policies and individual development proposals. Ideally, a Specific
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Plan directs all facets of future development, from the distribution of land uses to the location and sizing
of supporting infrastructure, from methods of financing public improvements to standards of
development. A list of adopted Specific Plan and Master Plan documents (not including infrastructure
Master Plans which are discussed later) which have assisted in guiding development patterns within
Visalia include the following:
• Modoc Plan (City of Visalia Planning Division, 1982)
• Country Club Estates Specific Plan (Quad Engineering, 1990)
• Caldwell 51 Specific Plan (Quad Engineering, 1990)
• Demaree/Caldwell Specific Plan (Quad Knopf, 1999)
• Northeast Area Specific Plan (City of Visalia Advance Planning Division, 1988)
• Togni Towne Centre Specific Plan (Quad Engineering, 1995)
• West Visalia Specific Plan (Quad Consultants, 1988)
• St. John’s River Park Master Plan (City of Visalia Planning Division, 1988)
• Medical District Master Plan (City of Visalia Planning Division, 1987)
• South Packwood Creek Specific Plan (Coats Consulting, 2002)
The most recently adopted South Packwood Creek Specific Plan incorporates land which is currently
outside the Visalia City Limits, but within the City’s SOI. Two of the six parcels within the Specific Plan
area are under agricultural preserve contracts. Build-out of the South Packwood Creek Specific Plan area
could yield a net square footage of approximately 1.1 million square feet of regional commercial uses.
The City’s neighborhood-level centers are to be spaced no closer than one mile from community centers
or other neighborhood centers and are only to be located on one corner of the designated intersection.
Designated neighborhood centers that currently exist are located at the following intersections.
• Ben Maddox Way/Houston Avenue
• Akers Street/Goshen Avenue
• Santa Fe Street/Tulare Avenue
• Akers Street/Walnut Avenue
• Demaree Street/Walnut Avenue
Planned neighborhood centers, which have not yet been built, would be located at the following major
intersections: Demaree Street/Houston Avenue, Lovers Lane/Walnut Avenue, Court Street/Caldwell
Avenue, and Ben Maddox Way/Caldwell Avenue. Neighborhood centers are required to have a
supermarket/grocery store as part of the first phase of their development.
Industrial Park
Visalia has attracted a large industrial trade center, primarily due to its centralized valley location between
Los Angeles and San Francisco, and its close proximity to SR 99, a highway that is used extensively for
the mass transportation of goods. Visalia’s industrial park is located near the northeast quadrant of SR 99
and SR 198, both currently 4-lanes. More specifically, Visalia’s current industrial area (north of Goshen
Avenue) is bounded by Shirk Road to the east, Road 76 to the west, Riggin Avenue to the north, and
Goshen Avenue to the south. There is also an industrial area located south of Goshen Avenue between
Kelsey Drive and Camp Drive, north of Mill Creek. Figure 1-5 illustrates Visalia’s industrial area.
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FIGURE 1-5 – VISALIA INDUSTRIAL AREA
Visalia Heavy Industrial Area
Visalia Light Industrial Area
Source: City of Visalia Website (http://www.ci.visalia.ca.us/, December 2004)
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The City of Visalia’s ongoing efforts to improve its service to the industrial park are exhibited by current
plans to strengthen the transportation infrastructure immediately surrounding the growing industrial area.
The City also exhibits its efforts to attract new industrial and manufacturing businesses through the
implementation of a tax-exempt industrial development bond (IDB) program to finance eligible projects
from $2 million to $10 million dollars. Up to 100% financing can be obtained for land, buildings, capital
equipment, and on-site improvements. Before a tax-exempt IDB can be issued, a project must be
reviewed by the California Industrial Development Financing Advisory Commission and the allocation
(the amount of the IDB issuance request) must be approved by the California Debt Limit Allocation
Committee (CDLAC). The City’s Economic Development staff and the Industrial Development
Authority’s familiarity with this process, has led to a high success rate in securing State allocation
approval and actual IDB issuance.
The City adopted the Visalia Industrial Park Implementation Plan (Quad Knopf, 2003) in October of
2003. The plan addresses several issues within the industrial park planning area boundaries including
land use, public utilities, traffic and circulation, economic analysis, financial planning, and environmental
documentation. The Visalia Industrial Park Implementation Plan was segregated into two study areas,
the northern study area, and the southern study area. The northern study area is generally bounded by
Avenue 320 to the north, Hurley Avenue/Mill Creek Ditch to the south, Shirk Road to the east, and Road
68, Road 72, and SR 99 to the west. The southern study area is located at the southwest quadrant of the
SR 99/SR 198 interchange, and is generally bounded by SR 198 to the north, Avenue 288 to the south, SR
99 to the east, and Road 68 to the west. While the study area lies totally within Visalia’s UAB, portions
of it are outside the City’s UDB, UGB, SOI, and City Limits. The boundaries of the study area were
designed to make sure jurisdictional issues between the City and County were addressed. Table 1-3
provides a summary of existing land use quantities within the Visalia Industrial Park study areas, as
presented in the Visalia Industrial Park Implementation Plan.
TABLE 1-3
CURRENT INDUSTRIAL PARK LAND USES
Land Use Northern Area (Acres) Southern Area (Acres) Total (Acres)
Agriculture 3,052 659 3,711
Industrial 801 26 827
Commercial 113 0 113
Vacant/Fallow 457 0 457
Residential 97 10 107
Public 46 0 46
Right of Way 202 0 202
Totals 4,768 695 5,463
Source: Visalia Industrial Park Implementation Plan (Quad Knopf, 2003)
As indicated in Table 1-3, the Industrial Park Implementation Plan encompasses an area of
approximately 5,463 acres, 3,711 acres of which is currently being utilized for agricultural production.
Of the 3,711 acres currently in agricultural production, 2,411 acres (66%) are covered by agricultural
preserve contracts. Agricultural preserve contracts obligate a landowner to limit use of the land to
agricultural production in exchange for tax benefits. Referred to as the Williamson Act, the program
allows farming to continue in areas close to urbanization by a beneficial tax assessment procedure
whereby the land is assessed based on its agricultural value rather than its speculative value for
urbanization purposes. The contracts are for ten years and are automatically renewed each year for
another ten years, and will continue indefinitely unless: (1) the owner requests cancellation or, (2) a notice
of non-renewal is filed, or, (3) a City elects not to succeed the provisions of the agricultural preserve
contract upon annexation of the land. While the existence of a non-protested Williamson Act contract
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does not prohibit development, it does require special findings (primarily that there are no non-contracted
lands which are suitable for the project), and payment of a cancellation fee equal to 12.5% of the urban
value of the property.
The Visalia Industrial Park Implementation Plan concluded that there is a need for between 600 and
1,000 additional developed industrial acres over the next twenty years. The City’s present supply of
annexed vacant industrial land totals approximately 275 acres, an approximate five to nine year supply.
Constraints exist for expansion north of the Avenue 316 alignment as prescribed by the General Plan
Land Use Element due to the presence of non-protested agricultural preserves; this condition affects
virtually all of the property on Visalia’s long-term industrial development horizon. The plan recommends
annexation of land to ensure that Visalia has at least a ten-year supply of annexed and zoned industrial
land; the plan therefore concluded that there is an immediate need to annex between 25 and 225 acres of
land, and that priority be given to annexation of unincorporated areas south of Goshen Avenue, land
which is currently within Visalia’s SOI.
1.1.4 Annexations
Past Annexations (1996 – Present)
Since 1996, the City has successfully annexed over 3,000 acres of land into the City. Table 1-4 below
provides an annual breakdown of the amount of land that has been annexed into the City since 1996.
Annexations have occurred within the industrial park planning area, north of Houston and Riggin
Avenues, near the northwest Quadrant of the Demaree Street/Goshen Avenue intersection, just north and
south of Caldwell Avenue, northeast of the Walnut Avenue/Ben Maddox Way intersection (including a
previous County island), and along the eastern City Limit boundary.
TABLE 1-4
HISTORICAL ANNEXATIONS (1996 – PRESENT)
Year Acres Annexed
1996 1
1997 146
1998 231
1999 0
2000 7
2001 819
2002 530
2003 1,055
2004 - Present 213
As indicated in Table 1-4, in 2003, the City successfully annexed over 1,000 acres of land into the City,
approximately 1/3 of the total annexed area since 1996. Of the 1,055 acres of land annexed in 2003
includes a 900 acre City owned walnut orchard that is not planned for development. From January 2004
to date, the City has successfully annexed 213 acres of land. Figure 1-6 shows the locations of
annexations that have occurred since 1996. In May of 2004, the City completed an annexation of one
(Pinkham Island) of the many County islands within the outlying City Limits.
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County Islands
There are almost 20 “islands” (developed and undeveloped) within the current Visalia City Limits, in
which services are currently provided by Tulare County. The City of Visalia has some infrastructure in
place in many of the developed islands, anticipating ultimate connection to their services. As previously
noted, annexation of one of the County islands (Pinkham Island) into the City was completed in May
2004. County islands that still remain within the outlying City Limits are depicted on Figure 1-6 in blue.
It should be noted that SB 1266 (Torlakson), effective January 1, 2005, amended AB 1555 by expanding
the maximum area for island annexations from 75 to 150 acres. All other provisions of the current law
will remain unchanged.
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FIGURE 1-6 – LOCATION OF PAST ANNEXATIONS & COUNTY ISLANDS
Source: Tulare County GIS Database
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1.1.5 Potential Sphere of Influence Updates
Urban Boundaries
A LAFCO SOI represents the physical boundary and service area that a local governmental agency is
expected to serve, while a City’s UGB generally represents the area around a City designed to contain
enough land to accommodate 20-years of growth. As previously noted, a City’s SOI should generally lie
between a City’s UGB and UAB, which is not currently the case with the City of Visalia. At a minimum,
the City’s SOI should be updated to encompass land within the City’s UGB.
Industrial Park
As previously indicated, the ultimate development potential of Visalia’s industrial park would require the
expansion of the current SOI. To meet projected demands within Visalia’s well established industrial
area, a SOI expansion to include the area bounded by Shirk Road, Road 68, Avenue 312 and Avenue 320
may be necessary. The City should be aware of, and properly address any complications with property
under Williamson Act contracts. The City and County should work cooperatively to establish a special
tax sharing agreement upon annexation of the land.
1.1.6 Written Determinations
Population
1. Based upon Census 2000 data, the City of Visalia had an incorporated land area of
approximately 28 square miles, approximately 32,650 housing units, and a total population of
91,565.
2. Based upon population projections available from the California Department of Finance, the
City had a population of approximately 107,550 as of January 2005.
3. Available data indicates that the City experienced an average annual population growth rate
of approximately 1.9% between 1990 and 2000, and 3.3% between 2000 and 2005.
Assuming the City’s population will continue to grow at an average annual growth rate of
approximately 3.0%, the City can expect a year 2025 population of approximately 194,250.
4. Using an annual average growth rate of 3.0% results in a year 2020 population of 167,559
and a 2025 population of 194,247, compared to the year 2020 General Plan Land Use
Element estimate of 165,000. Based upon these comparisons, it is concluded that the General
Plan Land Use Element provides reasonable estimates of the City’s population at General
Plan build-out, projected to occur by year 2020.
Planning Boundaries
1. Visalia’s General Plan Land Use Element establishes planning boundaries including a UAB,
UGB, and UDB’s to help establish a timeline for establishing urban development areas.
2. While the City’s General Plan Land Use Element associates the SOI with the UAB, this is
not consistent with a SOI as defined by Tulare County LAFCO. As defined by LAFCO, a
SOI would be more representative of Visalia’s definition of a UGB. A City’s SOI should
generally extend beyond or be coterminous with a City’s UGB, and inside a City’s UAB,
which is not currently the case with the City of Visalia.
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Land Use Findings
1. The City’s General Plan Land Use Element, in addition to the preparation of Specific Plans
provides for the logical and reasonable growth and development for the City of Visalia.
2. The City plans future development through the preparation, adoption, and implementation of
Specific Plans. Specific Plans address the distribution of land uses, the location and sizing of
supporting infrastructure, methods of financing public improvements, and standards of
development for a specific planning area boundary. To date, the City of Visalia has adopted
eight Specific Plans. The City requires specific plans to be approved for community centers
prior to development.
3. There is adequate land zoned for residential development within the City’s current UGB to
accommodate residential growth through the year 2020.
4. In December 2005, the City adopted a comprehensive update to their General Plan Housing
Element which was previously updated in 1993. Regular updates to the General Plan
Housing Element assist in maintaining consistency between the General Plan Housing
Element and changing economic conditions that affect housing supply and/or needs.
5. The City’s General Plan Land Use Element provides for adequate land zoned for retail
commercial and office within the City’s UGB.
6. The Visalia Industrial Park Implementation Plan establishes a study area which lies totally
within Visalia’s UAB, but portions of which are outside the City’s UDB, UGB, SOI, and City
Limits. The boundaries of the study area were designed to make sure jurisdictional issues
between the City and County were addressed. The City will need additional land zoned for
industrial uses to accommodate future expansions of the industrial park area.
7. The Visalia Industrial Park Implementation Plan provides for Master Planned growth within
the northwest industrial area, including land use, public utilities, traffic and circulation,
economic analysis, financial planning, and environmental documentation.
Annexations
1. Since 1996, Visalia has successfully annexed over 3,000 acres of land into the City.
2. There are almost 20 “islands” (developed and undeveloped) within the City Limits, in which
services are currently provided by Tulare County. Visalia has some infrastructure in place in
many of the developed islands, anticipating ultimate connection to their services.
3. California SB 1266, effective January 1, 2005, amended AB 1555 by expanding the
maximum area for island annexations from 75 to 150 acres. All other provisions of the
current law will remain unchanged.
4. The Visalia Industrial Park Implementation Plan concluded that there is an immediate need
to annex between 25 and 225 acres of land (for industrial development), and that priority be
given to annexation of unincorporated areas south of Goshen Avenue, land which is currently
within Visalia’s SOI.
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Potential SOI Updates
1. The City’s SOI should generally extend beyond or be coterminous with the City’s UGB, and
inside the City’s UAB, which is not currently the case with the City of Visalia. At a
minimum, the City’s SOI should be updated to encompass land within the City’s UGB.
2. The ultimate development potential of Visalia’s industrial park would require the expansion
of the current SOI to include the area generally bounded by Shirk Road, Road 68, Avenue
312, and Avenue 320.
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1.2 INFRASTRUCTURE NEEDS AND DEFICIENCIES
The purpose of this section is to evaluate the infrastructure needs and deficiencies of the City of Visalia in
terms of availability of resources, capacity to deliver services, condition of facilities, service quality, and
levels of service. The section provides an overview of the City’s capital improvement program in which
funding is allocated to specific infrastructure improvements. An overview of services including water,
storm drainage, wastewater collection and treatment, streets and roads, fire and police protection, and
solid waste is then provided focusing on past improvements and planned future improvements.
LAFCO is responsible for determining that an agency requesting an SOI amendment is reasonably
capable of providing needed resources and basic infrastructure to serve areas within the City and its SOI.
It is important that these findings of infrastructure and resource availability are made when revisions to
the SOI and annexations occur. LAFCO accomplishes this by evaluating the resources and services to be
expanded in line with increasing demands. In the City of Visalia, there are currently no formal proposals
to expand the current SOI boundary; however, the City is currently discussing the potential to expand its
SOI to include areas encompassed within the UGB. The infrastructure capability of Visalia to serve
existing and future residents within the SOI/UGB is analyzed in the following sections.
1.2.1 Capital Improvement Program
Capital improvements are generally large, one-time expenditures for the purchase or construction of
capital assets. They include the construction of streets and public facilities, the purchase of major pieces
of equipment, major maintenance of existing facilities, land acquisition for future City use and other
construction projects. The City’s capital improvement program is a five-year document which programs
capital improvements from 2002-2003 FY through the 2007-2008 FY. The City has multiple capital
improvement funds and sources including unrestricted funds, restricted funds, enterprise funds, internal
service funds, and fiduciary funds set up for specific improvement purposes. Each of these funds is
described below.
Unrestricted Funds
General Fund – Revenues derived from sales and property taxes, motor vehicle license
in-lieu fees, business license taxes, transient occupancy taxes, construction permits, fees
for services and interest earnings. These revenues, for the most part, are discretionary
and are approved by City Council.
Restricted Funds
Police Impact Fund – Revenues derived from Public Safety Impact fees collected at the
time of building permit issuance. Funds are to only be used for new facilities, equipment,
and not for operation and maintenance. A portion of funds generated from Measure T, a
¼ cent sales tax increase for public safety improvements, would also be allocated to this
fund.
Fire Impact Fund – Revenues derived from Public Safety Impact fees collected at the
time of building permit issuance. Funds are to only be used for new facilities, equipment,
and not for operation and maintenance. A portion of funds generated from Measure T, a
¼ cent sales tax increase for public safety improvements, would also be allocated to this
fund.
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Gas Tax Fund – Revenues derived from Sections 2105, 2106, and 2107 of the Streets
and Highways Code. These revenues come from a gas tax placed on motor vehicle fuels.
Allocations are generally distributed on a population basis. This fund also received
money from the State Transportation Program that is distributed to each region based on
population and road miles. Funds are to be used only for construction, improvements and
maintenance of streets and roads.
Park and Recreational Facilities Fund – Revenues derived from fees paid by
developers in lieu of providing parks and open space. Funds are to be used only for open
space acquisition and providing and maintaining park and other recreational facilities.
Storm Sewer Construction Fund – Revenues derived from Storm Sewer Impact Fees
collected at the time of development. Funds are to be used only for construction of new
storm sewer lines to implement the Storm Water Master Plan.
Storm Sewer Deficiency Fund – Revenues derived from a portion of the monthly storm
sewer user fees. Funds are to be used for construction of storm sewer facilities to correct
existing deficiencies as identified in the Storm Water Master Plan.
Kaweah Lake Fund – Revenues derived from a portion of the monthly storm sewer user
fees. Funds are to be used for the Kaweah Lake enlargement & maintenance of the lake.
Underground Water Recharge Fund – Revenues derived from a portion of the monthly
City Utility Bill. The fees from this fund are based on the size of the water service line.
Funds are to be used for the acquisition of water and other activities to improve
groundwater levels and increase supply of water to the City.
Wastewater Trunk Line Construction Fund – This fund’s revenues are derived from
Sanitary Sewer and Treatment Plant connection fees. Funds are to be used only for new
sanitary sewer trunk line construction, and not for operation and maintenance.
Transportation Impact Fees Fund – Revenues derived from fees collected at the time
of building permit issuance. Funds can be used only for new street improvements and
expansion of transportation facilities related to growth.
Waterways Fund – Revenues derived from a combination of monthly storm sewer rates
and developer impact fees. The funds are restricted for acquisition of development
setbacks along waterways designated in the Visalia General Plan, restoration of riparian
vegetation, and maintenance of the setback areas.
Transportation Fund – Revenues derived from ¼ cent of statewide sales tax collected
and returned to each County in compliance with the Local Transportation Development
Act. First priority of funds is public transit; remaining monies, as well as various
discretionary revenues, may be used for road and street purposes, including
bike/pedestrian facilities. This fund also receives monies from TCAG and the STIP,
which is to be used only for approved transportation projects.
Traffic Congestion Relief Fund – This fund is derived from money received from sales
tax on gasoline from the State Transportation Congestion Relief Program. This money
must be used only for street and highway pavement maintenance, rehabilitation and
reconstruction of necessary associated facilities such as drainage and traffic control
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devices. Rehabilitation or reconstruction may include widening to bring the roadway
width to meet standards. All Counties and Cities are scheduled to receive congestion
relief money through 2005/2006.
Community Development Block Grant Fund – Monies for this fund are provided to
the City as an entitlement community through the Department of Housing and Urban
Development (HUD). The CDBG program is authorized under Title 1 of the National
Affordable Housing Act. The primary objective of the CDBG program is the
development of a viable urban community through the provision of decent housing, a
suitable living environment and economic opportunity principally for low- and moderate-
income persons.
Redevelopment District Downtown Fund – Monies for this fund are provided through a
Tax Increment generated in the Downtown Redevelopment Project Area. The project
area is authorized under California Redevelopment Law. The primary objective of the
Project Area is to eliminate blight through continued growth of industrial, commercial,
and residential development.
Redevelopment District Central Fund – Monies for this fund are provided through Tax
Increment generated in the Central Redevelopment Project Area. The project area is
authorized under California Redevelopment Law. The primary objective of the Project
Area is to eliminate blight through continued growth of industrial, commercial, and
residential development.
Multi-Funded/Resource Fund – Revenue derived from other funds combined under one
project number to show total appropriations for each project. This fund is used for
projects that are funded by more than one fund.
Enterprise Funds
Airport Fund – Revenue derived from the Federal Aviation Administration (FAA) and
various grants. This money can only be used for approved capital projects. This fund
also receives revenues from airport user fees, such as hangar rentals and fuel sales. They
are to be used for operations, improvements, and vehicle and equipment acquisitions.
These revenues are also used for the Airport’s 10% match on FAA and grant funded
projects.
Convention Center Fund – Revenues derived from rental fees at the Convention Center,
L.J. Williams Theater, and Rotary Theater, and a contribution from the general fund.
Funds are to be used only for Convention Center, L.J. Williams Theater, and Rotary
Theater projects.
Wastewater – Revenues derived from Sanitary Sewer user fees and rates. Funds are to
be used only for operations and maintenance, and improvements, including vehicle and
equipment acquisitions related to collection and disposal of wastewater.
Solid Waste Fund – Revenue derived from refuse collection fees. Cash for capital
replacements has been set aside for improvements and vehicle and equipment
acquisitions related to collection and disposal of solid waste. Depreciation oil continues
to be used for capital replacements.
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Transit Fund – Revenues derived from State Transportation Funds, Federal grants, and
user fees. Revenue is to be used for transit operating and capital expenditures, such as
buses and bus shelters. State and Federal grant funds are to be used for major projects
such as the regional bus transfer facility and the operations maintenance facility.
Street Sweeping Fund – Revenue derived from residential and commercial street
sweeping fees that are collected on the Solid Waste bill. Monies are to be used for
operation, maintenance and improvements, including equipment and vehicle acquisitions
related to sweeping of streets.
Internal Service Funds
Vehicle Replacement Fund – This fund is supported by City departments, on a cost
reimbursement basis, for replacement of the current operational fleet as each vehicle
reaches its full useful life.
Information Services Fund – This fund is supported by City departments, on a cost
reimbursement basis, for internal services provided for the operation and replacement
costs associated with the organization’s computer and communications technology,
including Geographic Information Systems and Telephone Services.
Fiduciary Funds
Parking In-Lieu Fund – Revenue derived from in-lieu fees paid by uses established
within the central business district which do not provide required street parking spaces.
The in-lieu fee is assessed in the amount of $3,191.13 per space at the time of building
permit issuance.
1.2.2 Water
The City of Visalia contracts with California Water Service, a private water service provider, to serve the
City of Visalia with potable water and fire protection use. California Water Service Company (Cal
Water) is the largest investor-owned water utility in the western United States, and third largest in the
nation. Formed in 1926, the San Jose-based company serves water to 1.36 million California customers
through approximately 373,500 connections. Cal Water acquired the Visalia district water system from
the Visalia City Water Company in 1927. The Cal Water Visalia District primarily serves the City of
Visalia, the community of Goshen to the west, and several unincorporated areas adjacent to the City of
Visalia. It should be noted that Cal Water is not subject to a SOI determination, and is therefore exempt
from the municipal service review requirement. Information regarding domestic water provided by Cal
Water has been provided for informational purposes only.
Cal Water receives its water supply from groundwater sources within the Tulare Lake Hydrologic Region.
The Tulare Lake Hydrologic Region contains the following groundwater sub-basins within Tulare
County: Tule Groundwater Basin (southwestern County), Kaweah Groundwater Basin (western County),
and a portion of the Kings Groundwater Basin (northwestern County). Figure 1-7 illustrates the Tulare
Lake Hydrologic Region, and the groundwater sub-basins within Tulare County.
Groundwater extractions are derived from 75 active wells serving the Visalia service area. The total
annual water production for 2003 from the 75 active wells was 30,821 acre-feet (or 10,039.5 million
gallons). Within the Visalia service area, Cal Water owns, operates, and maintains two elevated water
storage tanks, each with a capacity of 300,000 gallons.
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FIGURE 1-7 – TULARE LAKE HYDROLOGIC REGION AND GROUNDWATER SUB-BASINS
Source: (http://www.sjd.water.ca.gov/groundwater/basin_maps/index.cfm)
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From the source points, water is supplied to the Visalia service area through 412 miles of main pipeline,
with a total of 32,873 service connections (as of April 2004). Currently there are 15,073 metered
connections, and 17,800 non-metered (flat-rate) connections. All connections to the system occurring
after 1987 are metered connections. Based upon information provided by the California Water Service
Visalia District, the average daily water demand per connection for 2003 was 837 gallons/day, and the
maximum daily water demand per connection was 1,451 gallons/day.
The Urban Water Management Planning Act requires the Department of Water Resources to evaluate
Urban Water Management Plans adopted by urban water suppliers pursuant to Section 10610.4 (c) and
submitted to the Department no later than 30 days after adoption and updating once every five years, on
or before December 31 in years ending in five and zero. Based upon data obtained from the California
Department of Water Resources website (www.dwr.water.ca.gov), no California Water Service Districts
had submitted an Urban Water Management Plan for the year 2000 submittal requirement (as of June
2002). Non-compliant urban water suppliers are ineligible to receive funding pursuant to Division 24
(commencing with section 78500) or Division 26 (commencing with section 79000), or receive drought
assistance from the State until the UWMP is submitted pursuant to the Urban Water Management
Planning Act. State funding for urban water improvements are often necessary to aid agencies in
providing quality water service, especially during drought periods. The Cal Water Visalia District
Manager indicated that an Urban Water Management Plan was submitted to DWR, and was adopted in
June 2004. It is recommended that Cal Water work to comply with the full requirements of the Urban
Water Management Planning Act.
The Cal Water Visalia District completed a comprehensive Water Supply and Facilities Master Plan
(Boyle Engineering) in February 2005. According to Cal Water, the document is updated in 10 year
increments. The master plan program is intended to proactively address the service needs of the existing
customers in light of potential water quality and quantity issues as well as address expansion to the
system to meet projected future growth. The master plan has a study area consistent with the City’s UGB.
SB 610 and SB 220 amended state law, effective January 1, 2002, to improve the link between
information on water supply availability and certain land use decisions made by Cities and Counties. SB
610 and SB 220 are companion measures which seek to promote more collaborative planning between
local water suppliers and Cities and Counties. Both statutes require detailed information regarding water
availability to be provided to the City and County decision-makers prior to approval of specified large
development projects. Both statutes also require this detailed information be included in the
administrative record that serves as the evidentiary basis for an approval action by the City or County on
such projects. Under SB 610, water assessments must be furnished to local governments for inclusion in
any environmental documentation for certain projects (as defined in Water Code 10912) subject to the
California Environmental Quality Act (CEQA). Under SB 220, approval by a City or County of certain
residential subdivisions requires and affirmative written verification of sufficient water supply.
The City is in a watershed where the groundwater supplies are over-drafted, which means more water is
being withdrawn from the ground for use than is being replenished. There is a particularly large cone of
depression under the City, because virtually all the City’s water comes from groundwater sources.
Consequently, groundwater levels will continue to drop and it will cost more to provide water in the
future. The Visalia City Council has recently expressed interest in looking at ways to enhance the water
supplies that serve the City. Based upon information contained in the July 20, 2004 Inside City Hall
Beyond the Headlines newsletter (a City of Visalia publication), the City Attorney, Dan Dooley, outlined
options for securing surface water rights that are often associated with land could be annexed into the
City. It is important that surface water supplies from the Kaweah and San Joaquin Rivers, which offset
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the use of groundwater, continue to be used in and around the City. The following options were proposed
for obtaining surface water rights:
• Adopt a policy requiring the dedication of any surface water rights attached to lands being
annexed as a condition of annexation.
• In lieu of dedication of existing water rights, a landowner could acquire and dedicate other
rights as a condition of annexation.
• If the landowner seeking annexation doesn’t have or cannot acquire surface water rights to
dedicate to the City, the landowner could pay fees to enable the City to acquire water to
mitigate the impacts caused by additional groundwater pumping.
The Visalia City Council expressed interest in the proposed concept, and directed staff to discuss the
matter with the development industry, and to outline the appropriate legal and technical information for
further consideration. In August 2005, the City adopted a groundwater overdraft mitigation ordinance
which assesses impact fees upon new development and a volumetric fee upon existing urban water
supplies to fund activities and projects to mitigate the impacts on groundwater overdraft. Such activities
include, but are not limited to, acquisition of surface water rights and surface water supplies; development
of groundwater recharge facilities; reconfiguration of storm water facilities designed to retain as much
storm water as possible within and near the City; enhancement of cooperative programs with local water
management agencies and companies; development of more efficient water delivery systems. These
efforts demonstrate the City’s ability to continue to implement long term water supply solutions even
though they are not the direct supplier of domestic water to City residents.
As discussed in the previous section, the City of Visalia has a capital improvement fund set up for
underground water recharge. The City has set aside annual funding as a part of the capital improvement
program, for the purchase of water rights and water supply for groundwater recharge. Water rights could
potentially be purchased from any surface water sources from which land within, or annexed into the City
has rights attached thereto, including creeks, rivers, irrigation ditches, or reservoirs.
The City has additional capital improvements pertaining to water supply including the construction of a
recharge basin north of Mineral King and west of Road 152 between Mill Creek and Packwood Creek.
Design of the basin is scheduled for FY 2003-2004, and construction is scheduled for FY 2004-2005
through FY 2005-2006. The City also has plans to construct an additional groundwater recharge basin at
a location to be determined in the future.
The City’s Municipal Code contains a Water Conservation Ordinance which outlines specific policies
pertaining to the conservation of potable water. Specific stages of the Water Conservation Ordinance
include the following:
• Prohibition on Water Waste
• Voluntary Compliance – Water Alert
• Mandatory Compliance – Water Warning
• Mandatory Compliance – Water Emergency
Employees of California Water Service Company are authorized by the ordinance to issue written notices
of violations outlined in the above stages, but are not authorized by law to issue citations for violations.
Despite the fact the City is not the direct domestic water supplier for its residents the City continues to
make significant efforts to ensure that the long term water supply needs of the City continue to be
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addressed. City officials have indicated that they are studying the feasibility of various alternatives of
implementing a City owned domestic water system.
1.2.3 Drainage Infrastructure
The City of Visalia provides storm-water collection, and disposal services throughout the City. The City
has a Storm Water Master Plan and Management Program in place that was adopted in 1994. The plan is
a comprehensive document providing several informational and planning aspects, including but not
limited to the following,
• Inventory of Existing Drainage Infrastructure
• Basis of Design
• Storm Water Management Alternatives
• Entitlement Flow Management Alternatives
• Proposed Improvements
• Cost Estimates and Capital Improvement Plan
• Financing
• Water Quality Measures
The City continues to expand and improve its drainage infrastructure as new development occurs within
the City. The City accomplishes this through the implementation of the Storm Water Master Plan and
Management Program. Funding for drainage infrastructure improvements is derived from development
impact fees (for new drainage facilities), and a drainage utility fee of $0.75 per month for all developed
properties (for maintaining existing facilities). The City has two capital funds set up for storm sewer
improvements, one for new facilities, and one for correcting existing deficiencies as outlined in the Storm
Water Master Plan and Management Program. Several capital storm water infrastructure projects are
programmed in the current City of Visalia capital improvement program (CIP), providing evidence that
the City is working towards the full implementation of the Storm Water Master Plan and Management
Program. A partial list of these projects is provided below.
Storm Sewer Construction Fund
Enlarge storm basin on the north side of St Johns Parkway, east of McAuliff, and north
of Houston. Current basin serves Golden Valley Estates and Capistrano subdivisions and
will be enlarged to serve River Run Ranch Subdivisions. (FY 2002-2003: $107,500)
Install Master Planned storm drain line along Goshen Avenue from Cain Street to the
west side of Ben Maddox, including a bore, and connection to an existing storm line that
discharges into Jennings Ditch. The existing line west of Ben Maddox is temporary until
a Master Plan basin and storm drain line west of Ben Maddox is purchased and
developed. (FY 2002-2003: $150,000)
Construct a terminal basin for Mill Creek southwest of the treatment plant,
implementing the 1994 storm water Master Plan. The pond is located at the northeast
corner of Avenue 280 and Road 44 and will allow the City a recharge/settling basin
downstream of the Treatment Plant. (FY 2002-2003: $150,000)
Install a storm drain line along Houston from County Center to Demaree. The storm
line will connect to an existing line in the Houston alignment west of Demaree and will
eliminate the temporary ponding basin west of Green Acres School. (FY 2002-2003:
$137,500, FY 2003-2004: $137,500)
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Reimburse developers for additional costs incurred when constructing the required
storm sewer drainage facilities with their development. The additional cost is the
difference between the “development requirement” and the requirement to accommodate
future development in the area. (FY 2002-2003 through FY 2007-2008: Approximately
$225,000 annually)
Acquire property (Russell property) and construct a storm basin south of Packwood
Creek and east of the future County Center alignment. The area of service is bound by
Packwood Creek, west of County Center, and south of Avenue 276. This basin would
replace storm drain lines identified in the storm water Master Plan. Future phases will
include pump and piping to discharge into Packwood Creek at a reduced rate. (FY 2002-
2003: $350,000, FY 2006-2007: $175,000)
Storm Sewer Deficiency Fund
Install a drainage system along Houston Avenue from Rinaldi Street to Willis Street
and connect into the Goshen Avenue drainage system at Rinaldi Street. (FY 2002-2003:
$325,000)
Construct a storm/recharge basin east of the Blain property at approximately Road 158
and north of SR 198. The project is located in the southwest quadrant of the intersection
of Oakes Ditch, Packwood Creek, and Mill Creek. The City’s total cost is $350k of the
$700k joint project with Kaweah Delta Water Conservation District. (FY 2002-2003:
$100,000, FY 2003-2004: $100,000)
Study storm water drainage problems and perform minor repairs to the storm water
system. (FY 2002-2003 through FY 2007-2008: $25,000 annually)
It should be noted that the above list contains only a portion of the projects that are listed in the City’s 5-
year Capital Improvement Program. The City’s CIP should be referred to for a complete list of the capital
improvements programmed through FY 2007-2008. Many of the storm drain projects listed above would
provide additional capacity for developments occurring within the City’s UGB and SOI.
1.2.4 Wastewater Collection, Treatment, and Disposal
The City provides wastewater collection, treatment and disposal services throughout the City, and areas
within the urban growth boundary. The City has a Sewer System Master Plan (Boyle Engineering
Corporation, February 1994) and a Wastewater Treatment Master Plan Update (John Carollo Engineers,
August 1993) in place. The Sewer System Master Plan provides important information pertaining to
providing future sewer infrastructure to support projected growth within the urban growth boundary, and
trunk lines that would ultimately serve projected growth out to the City’s UAB including the following:
• Design Standards/Analysis Criteria
• Existing Collection System Analysis
• Existing System Deficiencies
• Expansion Improvements
• Capital Improvement Program
• Financing Alternatives and Connection Fees
With regard to maintenance of existing sewer facilities, the Sewer System Master Plan (Boyle
Engineering Corporation, 1994) states the following,
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“During installation of the flow meter sensors, sand and other materials were sometimes
found settled at the bottom of the sewer pipes. An attempt was made each time to remove
the settled material in order to install the meter sensor. At times it was discovered that
the meter sensor read erroneous data when the upstream section of the pipe was partially
plugged.
Due largely to manpower constraints, the City does not have a preventive maintenance
program to clean sanitary sewer pipes on a regular basis. Pipes are cleaned on an as-
needed basis when problems are indicated. The City does, however, keep a list of
locations that receive regular cleaning due to recurring problems.
Analysis of the sewer system indicates that many trunk sewers will reach their design
capacity by the year 2000. It is thus desirable to maintain the carrying capacity of those
pipes as high as possible to provide the designed flow.
This study recommends that the City develop a sanitary sewer maintenance program that
includes cleaning pipes on a regular basis. A typical program would divide the sanitary
sewer system into service areas and classify pipes into categories for frequency of
cleaning. Classification of pipes will depend on existing slopes, age of pipes, odor
complaints, and occurrence of other problems such as surcharging, overflowing, etc. A
schedule would then be assigned for each category of pipe, whereby pipes would be
cleaned at the appropriate frequencies.”
The City’s sewer system (as of the preparation of the 1994 Sewer System Master Plan) was divided into
eight service areas, as identified below:
• Service Area 1 – Caldwell – Akers Trunk
• Service Area 2 – Walnut – Lovers Lane Trunk and Walnut Outfall
• Service Area 3 – Tulare Trunk
• Service Area 4 – Akers – Mineral King Trunk
• Service Area 5 – Ranch – Houston Trunk
• Service Area 6 – Akers – Houston Trunk
• Service Area 7 – Road 84 Trunk
• Service Area 8 – Road 76 – Sunnyview Trunk
The Sewer System Master Plan recommends improvements to mitigate existing and projected deficiencies
in the existing sewer trunk system, and also recommends service area expansions to meet the short and
long-term needs of the City. Specifically, the Master Plan proposes additional service areas nine (9)
through twelve (12), as identified below. A copy of the Master Planned sewer service areas (Boyle
Engineering Corporation, February 1994) is provided as Figure 1-8.
• Service Area 9 – Proposed Avenue 276 – Road 148 Trunk
• Service Area 10 – Proposed Shirk – Riggin Trunk
• Service Area 11 – Proposed Avenue 320 Trunk
• Service Area 12 – Proposed Road 76 – Avenue 320 Trunk
Specific improvements for the periods between 1992-2000, 2000-2010, 2010-2020, and post 2020, are
outlined for each of the proposed expansion service areas (refer to the Sewer System Master Plan for
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additional information). The Sewer System Master Plan identifies improvements necessary to
accommodate growth to the City’s UAB.
The City has two capital funds set up for wastewater infrastructure improvements, one for new trunk line
construction, and one for operations and maintenance and improvements to existing facilities. Several
major capital wastewater infrastructure projects are programmed in the current capital improvement
program (CIP), providing evidence that the City is working towards the full implementation of the Sewer
System Master Plan. A partial list of these projects is provided below.
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FIGURE 1-8 – MASTER PLANNED SEWER SERVICE AREAS
Source: Sewer System Master Plan (Boyle Engineering Corporation, February 1994)
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Wastewater Trunk Line Construction Fund
Install a trunk sewer from Demaree & Ferguson to Dinuba Blvd. & Riggin Avenue.
(FY 2001-2002: $925,800, FY 2002-2003: $1,860,000)
Construct a trunk line from Akers to Stonebrook. (FY 2001-2002: Design trunk line,
$550,000; FY 2002-2003: Construct Akers from Caldwell to Avenue 276 and Avenue
276 from Akers to Stonebrook, $1,650,000; FY 2005-2006: Construct Avenue 276 from
Mooney to Santa Fe and Santa Fe from Avenue 276 to Caldwell, $1,400,000)
Preliminary engineering and design work necessary to provide developers and
engineers with adequate information to construct Master Planned sewer lines with
proposed development projects. (FY 2002-2003 through FY 2007-2008: $25,000
annually)
Reimburse developers for additional costs incurred when constructing the required
sanitary sewer with their development. The additional cost is the difference between the
“development requirement” and the requirement to accommodate future development in
the area. (FY 2002-2003 through FY 2007-2008: $96,000 annually)
Wastewater Fund
Install sanitary sewers in County islands annexed into the City. The residents who
choose to connect to the sewers pay connection fees that are used to reimburse the
construction cost. (FY 2003-2004 & FY 2004-2005: $150,000; FY 2005-2006:
$100,000)
Replace sanitary sewer mains based upon video inspection. Old sewer mains are
starting to deteriorate, which can cause overflows. (FY 2002-2003 through FY 2007-
2008: $200,000 annually)
The Visalia Water Conservation Plant (wastewater treatment facility) currently operates under Order No.
97-061 NPDES No. CA0079189 issued by the Regional Water Quality Control Board Central Valley
Region (RWQCB). The Visalia Water Conservations Plant (VWCP) is an activated sludge wastewater
treatment facility. The VWCP receives influent waste that is about 20% industrial and 80% domestic
wastewater; the domestic and industrial wastewater streams mix in the trunk sewer line and wet well
before entering the headworks for combined treatment. The VWCP is located one mile west of SR 99,
near the southeast quadrant of Road 68, and Avenue 288.
In early 1993, the City began to implement a project to expand the design capacity of the VWCP from
12.5 to 22 million gallons per day (MGD), to be completed in two phases. The first phase of the
expansion project included the following:
• Construction of one primary clarifier
• Addition of one secondary clarifier
• Replacement of rock media trickle filters with expanded plastic media filters
• Construction of two chlorine contact basins
• Addition of two gravity belts for waste-activated sludge
• Construction of twelve sludge drying beds
• Construction of an additional anaerobic digester
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The second phase of the project included the following:
• Installation of one additional anaerobic digester
• Construction of additional sludge drying beds
• Miscellaneous work consisting of installation of associated piping; relocation of maintenance
and chlorine buildings, etc.
Based upon discussions with City staff, both phases of improvements to the VWCP have been completed,
bringing the plant’s current hydraulic capacity up to 22 MGD, the 5-day biochemical oxygen demand
(BOD ) capacity to 103,229 lbs/day, and the suspended solids (SS) capacity to 148,068 lbs/day. The
5
current permit in which the VWCP is operating under, which prescribes a maximum average daily dry
weather flow of 16 MGD, expired on March 1, 2002. The City has submitted a renewal application for
the NPDES permit, which is pending action from the RWQCB. The City has been directed by the
RWQCB to continue operating under the expired permit until a new permit is issued by the Board. The
City anticipates that the renewed permit will allow for a maximum flow of 22 MGD.
Based upon information contained in the Wastewater User Charge Survey Report FY 2004-05 (CalEPA –
State Water Resources Control Board), as of May 2005, the VWCP had an average dry weather flow of
12.5 MGD. Based upon discussion with City staff, as of August 2004, the average dry weather flow into
the treatment plant was 12.5 MGD, resulting in a reserve design capacity of approximately 9.5 MGD.
The City of Visalia is currently contracted with the Goshen Community Service District (CSD) to provide
wastewater treatment services. The Goshen CSD provides wastewater collection service within the
Goshen community, and contracts with the City of Visalia to treat the wastewater. The district has a
current (December 2005) contracted wastewater treatment capacity (average daily discharge) of 335,000
GPD. As of November 2005, Goshen was contributing approximately 315,000 GPD to the VWCP.
Effluent from the VWCP is discharged to three separate locations, Mill Creek, an irrigation ditch, and two
evaporation/percolation ponds covering a total of 80 acres. Mill Creek, which is the primary discharge
point year-round, is a tributary to Cross Creek, and a water of the United States. Mill Creek supplies
irrigation water to hundreds of acres of cotton, alfalfa, sugar beets, and orchards downstream of the
discharge point. It also supplies water to a 160 acre groundwater recharge basin, roughly three miles
downstream of the VWCP, which is owned and operated by the City of Visalia. Mill Creek flows into
Cross Creek about eight miles downstream and southwest of the VWCP. Cross Creek is a tributary to the
Tule River approximately 16 miles downstream of the discharge point. There is no residential
development along Mill Creek downstream of the discharge point; the portion of Mill Creek between the
discharge point and Cross Creek is bounded by agricultural lands.
The second discharge point is to an irrigation ditch in which effluent is mixed with irrigation water and
used for furrow irrigation of 900 acres of walnut orchard owned by the City. Prior to 1995, the orchard
was not available for wastewater reclamation. Currently, the discharger reclaims water on the orchard
and leases the land to a local farmer. Discharge to the orchard occurs primarily during February through
September at a maximum rate of about 5 MGD.
The third discharge point is to two evaporation/percolation ponds covering 80 acres, land which is owned
by the City. Prior to 1995, discharge to the ponds occurred frequently at a rate of about 9 MGD. In 1995,
discharge to the ponds was minimized to reduce potential for degrading the shallow groundwater beneath
the ponds.
While the Sewer System Master Plan addresses current and future needs for the sewer collection system
(pipelines and lift stations), the Wastewater Treatment Master Plan Update addresses current and future
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needs for wastewater treatment and disposal. The City is in the process of having a comprehensive
update to the Wastewater Treatment Master Plan Update (which was adopted in 1993) prepared.
Table 1-5 shows the projected wastewater treatment plant loadings as identified in the 1993 Wastewater
Treatment Master Plan Update. Average day maximum month flows are arrived at by considering
average flows during the month in which the highest wastewater flows are encountered.
TABLE 1-5
PROJECTED PLANT LOADINGS
CITY OF VISALIA WATER CONSERVATION PLANT
Parameter 1995 2000 2005 2010 2015 2020
Quantity (MGD)
Domestic 9.05 10.49 12.16 14.10 16.35 18.95
Industrial 1.60 1.68 1.77 1.86 1.95 2.05
Total (Avg.) 10.65 12.17 13.93 15.96 18.30 21.00
Avg. Day Max. Month Total 11.37 13.00 14.88 17.04 19.54 22.42
Quality (1,000 lbs./day)
Avg. Day BOD 45.32 50.10 55.61 61.81 68.81 76.83
5
Avg. Day SS 23.74 26.46 29.58 33.12 37.15 41.77
Avg. Day Max. Month BOD 60.10 66.44 73.74 81.97 91.25 101.88
5
Avg. Day Max. Month SS 27.85 31.04 34.70 38.85 43.57 48.99
Notes: 1) Source: Wastewater Treatment Master Plan Update (John Carollo Engineers, 1993)
2) MGD = Million Gallons per Day
3) BOD = 5-Day Biochemical Oxygen Demand
5
4) SS = Suspended Solids
The projected treatment plant loadings as indicated in Table 1-5 are based upon population projections
outlined in the Wastewater Treatment Master Plan Update, as identified in Table 1-6 below (approximate
values). The projected per capita flow is derived utilizing the average day maximum month flows
outlined in Table 1-5, and projected population increases.
TABLE 1-6
PER CAPITA FLOW PROJECTIONS
CITY OF VISALIA WATER CONSERVATION PLANT SERVICE AREA
Year Population Per Capita Flow (GPD/Person)
1995 89,900 127
2000 104,200 125
2005 119,000 125
2010 140,000 122
2015 161,000 122
2020 188,300 120
Notes: 1) Source: Wastewater Treatment Master Plan Update (John Carollo Engineers, 1993)
2) GPD/Person = Gallons per Day per Person
Figure 1-9 illustrates a chart with the actual average daily flows into the VWCP for each month in year
2003. The information was obtained from the VWCP.
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FIGURE 1-9 – YEAR 2003 AVERAGE DAILY FLOWS BY MONTH
Average Day WWTF Flows by Month for Year 2003
13.000
12.609
12.500 12.327
12.170
12.23312.208
12.035
12.000 11.814
11.613 11.583
11.365
11.500
11.13911.159
11.000
10.500
10.000
J a n u ar y F e br u ar y M ar c h A pril M a y J u n e J ul y A u g u st S e pt e m b er O ct o b er N o v e m b er D e c e m b er
Month
)DGM(
wolF
yliaD
egarevA
The per capita flow projections are anticipated to decrease in the future due to continuing efforts by the
City to increase water conservation awareness. A comparison of Table 1-5 and Figure 1-9 indicate that
the projected flows as contained in the 1993 Wastewater Treatment Master Plan Update, are higher than
actual flow increases. However, the addition of a single large industrial user connection to the system
could significantly increase the current flows. Similarly, as indicated in Table 1-6, population growth
projections provided in the Wastewater Treatment Master Plan Update are also high in comparison to
actual growth that has occurred since the preparation of the plan.
The City is currently in the process of having a comprehensive update to the 1993 Wastewater Treatment
Master Plan prepared. Pending completion, this document should be referred to for a complete schedule
of proposed improvements at the VWCP, and future capacity increases resulting from any of the proposed
improvements.
The City’s Wastewater Fund, which is set up for operations and maintenance and improvements to
existing facilities, provides funding for improvements to the VWCP. Capital wastewater treatment
infrastructure improvements are programmed in the current capital improvement program (CIP),
providing evidence that the City is working towards the full implementation of the Wastewater Treatment
Master Plan Update. A partial list of these projects is provided below.
Wastewater Fund
Capital improvements to treatment plant that may be required to comply with the
renewal of the NPDES discharge permit. Examples of improvements that may be
required are additional groundwater monitoring wells, replacement of water supply wells
on surrounding property, lining of the supernatant pits with plastic, lining of the sludge
drying beds with concrete, and construction of additional effluent storage ponds. (FY
2002-2003 through FY 2007-2008: $1,000,000 annually)
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Overhaul the primary clarifier with new chains and flights and epoxy coating of
exposed concrete. There are a total of 4 primary clarifiers and each one is overhauled on
an 8-year cycle. The clarifiers scrape activated sludge very slowly back to pumps that
send it to the digesters. The scrapers are called flights and they are mounted like a
horizontal ladder on two long chains that pull them through the basin. (FY 2002-2003 &
FY 2004-2005 & FY 2006-2007: $40,000 biannually; FY 2003-2004 & FY 2005-2006
& FY 2007-2008: $100,000)
Overhaul the secondary clarifier with new chains and flights and epoxy coating of
exposed concrete. There are a total of 4 secondary clarifiers and each one is overhauled
on an 8-year cycle. The clarifiers scrape activated sludge very slowly back to pumps that
send it to the digesters. The scrapers are called flights and they are mounted like a
horizontal ladder on two long chains that pull them through the basin. (FY 2002-2003 &
FY 2004-2005 & FY 2006-2007: $40,000 biannually)
It should be noted that the above list contains only a portion of the projects that are listed in the City’s 5-
year CIP. The City’s CIP should be referred to for a complete list of the capital improvements
programmed through FY 2007-2008. Many of the sanitary sewer and treatment plant projects listed
above would provide additional capacity for developments occurring within the City’s UGB and SOI.
1.2.5 Streets and Roads
Regional Transportation
Routes of regional significance that serve the City of Visalia include State Route (SR) 198, SR 99, SR
216 (Houston Avenue east of Lovers Lane), SR 63 (Mooney Boulevard/Dinuba Road), Caldwell Avenue
(Avenue 280), and Avenue 320. Western Visalia is served by four diamond interchanges along SR 198 at
Plaza Drive, Shirk Road, Demaree Street, and Akers Street. Through central Visalia, SR 198 is straddled
by the Noble Avenue, Mineral King Avenue one-way couplet, which includes freeway access at Mooney
Boulevard, Johnson Street, Church Street, and Central Avenue. East of Ben Maddox Way, Noble
Avenue, and Mineral King Avenue become two-way facilities. A hook ramp interchange exists along SR
198 just east of Ben Maddox Way, and provides access to Noble Avenue, and Mineral King Avenue.
The Tulare County Association of Governments (TCAG) has adopted the 2004 Regional Transportation
Plan (RTP). The Regional Transportation Improvement Program (RTIP), which qualifies projects for the
State Transportation Improvement Program STIP, is consistent with the RTP, and serves as the
implementing document. The first RTP was written and adopted in 1975 with updates every two years
and in 1999 the California Transportation Commission (CTC) amended the requirement to every three
years. The 2004 RTP is based on regional transportation facilities and the proposed constrained
improvements funded during the time frame of the Plan.
The 2004 RTP includes the following major chapters:
• Policy Element
• Assessment of Need
• Action Element
• Financial Element
• Public Participation Summary
• Valley-wide Chapter
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The 2004 Regional Transportation Plan identifies the following improvement projects as being
programmed for State Transportation Improvement Program (STIP) funding during the 2004 - 2007/2008
STIP cycle.
• SR 63 – Widen to 6-lane divided arterial from Packwood Creek to SR 198
• SR 65 – Passing lanes/operational improvements from Kern County Line to Route 190
• SR 198 – Widen to 4-lane expressway from SR 99 to Kings County Line
• Road 80 – Widen to 4-lane expressway from Goshen Avenue to El Monte Way
• Prosperity – Prosperity/SR 99 Interchange
• Scranton – Signalization and operational improvements
• Rehabilitation – Rehab projects for County and Cities
• Road 108 – Widen to 4-lanes from Leland Avenue to Caldwell Avenue
• SR 65 – Widen to 4-lanes from Avenue 56 to SR 190
• Caldwell Avenue – Widen to 4-lanes from Akers Road to Shady Lane
• Road 204 – Widen to 4-lanes from SR 137 to SR 198
• Plaza Drive – Widen to 4-lanes from Airport Road to Goshen Avenue
• SR 216 – Widen to 4-lanes from Lovers Lane to Road 152
• Avenue 416 – Widen to 4-lanes from Fresno County Line to Road 88
• Visalia Road – Operational improvements from Steven to Brundage
The City assesses developer’s traffic impact fees for street and road improvements. With the fees, the
City is able to fund improvements on roads that are not programmed in the STIP.
General Plan Circulation Element Summary
The streets, roads and circulation patterns in the City of Visalia were studied as part of the General Plan
Circulation Element Final Environmental Impact Report (SCH EIR No. 1995032056), adopted by the
City Council in February 2001. This information base provides an excellent foundation for evaluating the
transportation issues in the City. The intent of the General Plan Circulation Element is to:
• Identify the transportation needs and issues within the City, as well as regional relationships
which affect the City’s transportation system;
• Describe the proposed circulation system in terms of geometric design elements, operating
characteristics, and limits of operation, including current standards, guidelines, and accepted
criteria for the location, design, and operation of the transportation system;
• Consider alternatives other than the single occupant vehicle as essential in providing services
and access to facilities;
• Establish policies which coordinate the circulation system with planned land uses and provide
direction for future decision-making in the realization of the Circulation Element goals;
• Develop implementation strategies and identify funding sources to provide for the timely
implementation of the Circulation Element’s recommendations.
The City’s street network generally consists of a grid system of east-west and north-south arterials and
collectors. In addition, Visalia provides local transit service through Visalia City Coach (VCC). A
demand-responsive service is also available through the City’s Dial-a-Ride program. The VCC won the
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2004 Transit Excellence Award from the California Transit Association for its new Downtown Transit
Center.
The City also owns and operates the Visalia Municipal Airport, which provides aviation services to
approximately six fixed-base operators. One commuter airline provides passenger service at the airport to
Fresno and Los Angeles. Passenger rail service is currently provided via a feeder bus system that
connects several Tulare County cities, including Visalia, to the existing Amtrak station located in the City
of Hanford in Kings County. The City has adopted several ordinances and Master Plans aimed at
alternative modes of transportation to relieve traffic congestion.
The General Plan Circulation Element outlines five goals defined as a vision of conditions related to
public health, safety, or general welfare toward which the City directs planning and implementation. The
five goals of the Circulation Element are quoted below.
• Goal 1: “Provide an integrated transportation system for the safe and efficient movement of
people and goods in the Visalia planning area. This system shall enhance the physical,
economic, and social environment of the City.”
• Goal 2: “Consider all modes of transportation as an integral component of the City’s
transportation system. These modes include mass transit (public and private bus, passenger
rail, and taxi systems), air transportation, and non-motorized transportation (pedestrian and
bicycle).”
• Goal 3: “Develop and promote alternative transportation strategies designed to reduce
vehicle trips and improve traffic flow.”
• Goal 4: “Participate in and assist with coordinating regional efforts which integrate the
City’s transportation system with the 1998 Regional Transportation Plan (RTP).”
• Goal 5: “Plan and develop an efficient transportation system to promote the orderly
development of Visalia.”
The General Plan Circulation Element outlines a variety of local, State, Federal, and private funding
sources for its implementation. Local, State, and Federal funding sources as identified in the Circulation
Element are identified below. The majority of funds generated from State and Federal sources are from
gas taxes distributed through a variety of programs, acts, and grants.
Local Funding Sources
Airport Fund – An enterprise revenue account derived from airport user fees (such as
hangar rentals and fuel sales) to fund airport operations and improvements.
General Fund – Unrestricted, discretionary funds for anything approved by the City
Council. Its sources are sales and property taxes, motor vehicle in-lieu fees, business
licenses, transient occupancy taxes, fees for services and interest earnings.
Redevelopment Funds – Monies for these funds are provided through tax increments
generated in various project areas.
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Transportation Impact Fees – Adopted in 1989, fees collected (when building permits
are issued) for new street improvements and transportation facility expansion related to
new growth.
Parking District – Fees collected on new and expanded development projects in the
Central Business District and used to partially fund downtown area parking facilities.
Property Based Improvement District (PBID) – Downtown improvement district set
up for promoting, landscaping, and parking improvements in the downtown area of the
City.
Highway Users (Gas Tax) – Per capita allocations from motor vehicle gas tax monies
placed on motor vehicle fuels for construction, improvements, and maintenance of streets
and highways.
State Funding Sources
AB 2766 Program – Annual funds made available through the San Joaquin Valley
Unified Air Pollution Control District (SJVUAPCD) for Clean Air Projects and
Transportation Control Measures.
California Aid to Airports Program (CAAP) – a State and local government matching
share program via grants based on priorities set in the STIP.
Flexible Congestion Relief (FCR) – A State funded program for regional or local
transportation projects to reduce delay and congestion.
Local Transportation Fund (LTF) – Mass transit funds allocated by transportation
planning agencies based on population.
State Transit Assistance – Funding for mass transit and transportation planning
allocated to regional transportation planning agencies based on population and operator
revenues.
Regional Transportation Improvement Program (RTIP) – List of proposed
transportation projects submitted by TCAG as a request for State Funding – a four year
planning document that is updated every two years.
State Transportation Improvement Program (STIP) – List of transportation projects,
proposed in RTIP, which are approved funding by the California Transportation
Commission (CTC).
Transportation Development Act (TDA) – The principal source of local funding for
mass transportation programs – LTF and STA. The level of funds is subject to State-
wide sales and fuel tax receipts.
Federal Funding Sources
Airport Improvement Program (AIP) – Based on allocating aviation-generated tax
revenues for specified airport facilities on a local matching share basis.
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Community Development Block Grant Program (CDBG) – Monies for this fund are
provided through HUD under Title 1 of the National Affordable Housing Act to develop
a viable community.
Federal Transit Administration (FTA) – Federal funding requiring local matching
funds for:
• 49 U.S.C. 5309 – Funds projects which involve building a new fixed guideway system or
extending an existing guideway.
• 49 U.S.C. 5303 – Planning components of transit operations such as short range and long
range transit plans.
• 49 U.S.C. 5307 – Transit capital and operating assistance for urbanized areas.
Inter-modal Surface Transportation Efficiency Act (ISTEA) – A Federal program to
fund highway, highway safety, and mass transportation projects that improve air quality
and reduce congestion. ISTEA consists of a number of programs such as Congestion
Mitigation and Air Quality Improvement (CMAQ), Surface Transportation Program,
Minimum Allocation, etc.
Transportation Improvement Program (TIP) – Federally required document produced
by RTPs listing investment priorities for transit-related improvements, mass transit,
general aviation and highways.
The Department of Public Works is responsible for maintaining the City’s street surfaces in a smooth and
safe condition to the satisfaction of the traveling public, through general fund revenues. The City’s
comprehensive budget document identifies the following accomplishments for 2000-2001:
• Crack sealed 434,400 lane feet of City streets.
• Repaired 24,084 square feet of deteriorated road surface with Infrared Hot Patcher
• Ground out and repaired 250,437 square feet of deteriorated asphalt on City streets.
• Chip sealed 34 miles of City streets
• Overlay 1.5 miles of residential streets with a 1 ½” AC cap.
• Installed 23 wheel chair ramps.
• Reconstructed ¾ of Avenue 288, east of Avenue 268 that goes to the treatment plant.
The following objectives are also outlined for the 2002/03-2004 budget cycle:
• Install concrete railroad crossing at Tulare Avenue east of Cotta, Center Street west of Ben
Maddox Way, and Santa Fe north of K Road.
• Chip seal 10 miles of City streets.
• Grind out and repair 300,000 square feet of deteriorated asphalt.
• Crack seal 400,000 lane feet of City streets.
• Repair 30,000 square feet of deteriorated road surface with Infrared Hot Patcher.
• Overlay 10 miles of residential streets with a 1 ½” AC cap.
• Install 30 wheel chair ramps.
The City also has four capital funds (excluding the general fund) set up for street and road infrastructure
improvements: The gas tax fund, transportation impact fee fund, transportation fund, and traffic
congestion relief fund. Several major capital street and road infrastructure projects are programmed in the
City’s capital improvement program (CIP). A partial list of these projects is provided below.
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Gas Tax Fund
Construct SR 198 over-crossing on Santa Fe. (FY 2002-2003: $1,500,000; FY 2003-
2004: $500,000)
Construct Riggin Avenue from Dinuba Boulevard to St. Johns Parkway as a 4-lane
divided arterial. (FY 2002-2003: $120,000; FY 2003-2004: $600,000)
Upgrade existing railroad crossings with full depth concrete panels. ($100,000
annually through FY 2006-2007)
Install traffic signal at Walnut and Pinkham. South side of Walnut needs to be
improved from Pinkham east prior to installation. (FY 200-2003: $150,000)
Widen Ben Maddox from Main Street to Houston Avenue from a 4-lane undivided to a
4-lane divided arterial. Controlled left-turn movements would be provided at each
intersection. (FY 2004-2005: $740,000; FY 2005-2006: $720,000; FY 2006-2007:
$820,000)
Transportation Impact Fee Fund
Widen McAuliff from 2-lanes undivided to 4-lanes divided from Houston to St. Johns
River. This project was coordinated with River Run Ranch to develop McAuliff Ave.
(FY 2002-2003: $1,000,000)
Construct Ferguson Avenue from Conyer Street to Dinuba Boulevard. Street
classification to be collector with 60 feet of ROW. (FY 2002-2003: $300,000)
Widen Walnut between Yale and Central to accommodate dual turn lanes on Mooney
Boulevard and install medians. This project is to be constructed in conjunction with the
Mooney Boulevard widening project and phased with the other three major Mooney
intersections. (FY 2003-2004: $720,000)
Widen Whitendale between Sallee and Central to accommodate dual turn lanes on
Mooney Boulevard and install medians. This project is to be constructed in conjunction
with the Mooney Boulevard widening project and phased with the other three major
Mooney intersections. (FY 2003-2004: $500,000)
Widen Tulare Avenue between Woodland and Fairway to accommodate dual turn lanes
on Mooney Boulevard and install medians. This project is to be constructed in
conjunction with the Mooney Boulevard widening project and phased with the other three
major Mooney intersections. (FY 2004-2005: $610,000)
Widen Beech Avenue from Mooney to west 400 feet to accommodate dual left turns on
Mooney Boulevard. This project is to be constructed in conjunction with the Mooney
Boulevard widening project and phased with the other three major Mooney intersections.
(FY 2005-2006: $610,000)
Install traffic signal and median at Mooney Boulevard and Cameron Avenue. Signal
installation is based on development on the east side of Mooney. (FY 2002-2003:
$360,000)
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Widen existing bridge over Packwood Creek along Mooney Boulevard. Widening will
allow for the installation of the median island. (FY 2002-2003: Widen east portion of
bridge - $300,000; FY 2003-2004: Widen west portion of bridge - $300,000)
Construct a bridge over Packwood Creek along the County Center alignment. The
bridge will connect Cameron Avenue to County Center. (FY 2003-2004: $575,000)
Install a traffic signal and median island at Mooney Boulevard and Avenue 276.
Signal installation is based on development along Mooney Boulevard. (FY 2003-2004:
$360,000)
Transportation Fund
Construct a bike path along the St. John’s River from Dinuba Boulevard to Cutler Park.
Project is 88% funded by the Federal Transportation Enhancement Grant. (FY 2002-
2003: $200,000; FY 2003-2004: $334,000)
Construct a pedestrian corridor to connect the new Transit Center to Main Street. This
project will include sidewalks, trees, benches, and streetlights. Project is 88% funded by
the Federal Transportation Enhancement Grant. (FY 2002-2003: $256,000)
Construct McAuliff extension from Houston Avenue to Mineral King Avenue. (FY
2002-2003: $1,200,000)
Construct Caldwell Street improvements from Akers Street to Shady Street.
Improvements include widening to 4 lanes, curb, gutter, sidewalk, pave out, median
island, & bus bays. Project is 100% STIP funded. (FY 2003-2004: $426,000; FY 2004-
2005: $205,000; FY 2005-2006: $5,400,000)
Widen Plaza Drive including SR 198 overcrossing to Goshen; widening to 6 lanes from
SR 198 to Hurley and 4 lanes from Hurley to Goshen. Phases include: environmental in
01/02; engineering design in 03/04, and construction in 06/07. Project is 100% STIP
funded. (FY 2003-2004: $615,000; FY 2004-2005: $615,000; FY 2006-2007:
$8,200,000)
Widen Houston to 4 lanes undivided from Ben Maddox to Lovers Lane. (FY 2004-2005:
$600,000)
Traffic Congestion Relief Fund
Rehabilitate miscellaneous streets with a poured hot, rubber material used to seal
cracks on streets to prevent water infiltration. (Total Cost FY 2002-2003 through FY
2005-2006: $454,000; Project funded by gas tax fund starting FY 2006-2007).
Reclamite various City streets. Reclamite is sealing streets with oil that penetrates and
seals the asphalt surface. (Total Cost FY 2002-2003 through FY 2005-2006: $555,000;
Project funded by gas tax fund starting FY 2006-2007).
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All Counties and Cities are scheduled to receive congestion relief money through FY 2005-2006. Many
of the improvement projects listed above would support, directly or indirectly, growth within the SOI
area. Every year, the Citizens Advisory Committee conducts a public opinion survey to establish the
public’s satisfaction with City services and to obtain feedback on timely issues. The 2003 public opinion
survey showed that of the 12 questions that could be compared to previous years, ratings were up on all
but two of the questions. Residents of Visalia were more satisfied in 2003 with everything except for
traffic and road maintenance. This directly reflects the impacts of having STIP funded transportation
projects delayed due to the State budget crisis. Respondents were also asked what they considered the
most important service the City provides except for public safety (police and fire protection). The service
that received the highest rating was street and road maintenance, with traffic signals and signing close
behind. As streets and road maintenance are key issues facing Visalia in the eyes of its residents, the City
may need to further focus efforts in this area to satisfy the needs of the public. Further public opinion
surveys may assist in gaining more specific input on transportation projects.
The City Council recently adopted a major policy change in the way that the City’s arterial and collector
streets are funded and constructed. Previously, a developer of adjacent property was responsible to build
and pay for the adjacent arterial or collector streets, with the City reimbursing the developer for the cost
of oversizing the street to support traffic greater than that generated by the development. This resulted in
pieces of streets that were left un-built adjacent to properties that had not yet developed, which degraded
the ability of some streets to handle traffic efficiently. Caldwell Avenue is an example of a major street
that has pieces of it missing adjacent to undeveloped sites. The City Council and Planning Commission
asked that this problem be remedied, and a new policy resulted.
Under the new policy, the City will now have the financial responsibility for all portions of arterial and
collector streets. If these streets are built by developers, they will be reimbursed the entire cost of
construction. In exchange, the City significantly raised its traffic impact fees for new development. The
increased fees will provide a steady funding source that the City can use to fund City-initiated projects to
build necessary streets ahead of development when they are needed. One example that will be a priority
will be the connection of Visalia Parkway from Demaree Street over Packwood Creek to County Center
Drive. The street provides additional access to the Packwood Creek shopping center and will be the
primary entry to the new elementary school that will be built at Visalia Parkway/Dan’s Street. This
arterial street would not have been able to have been built in the immediate future under the old policy
due to funding constraints. The City anticipates that the new policy for constructing streets will provide
the funding capability to respond to the public’s major traffic concerns in a more timely fashion.
1.2.6 Fire and Police Protection Services
Fire
The purpose and responsibility of the City’s Fire Department (VFD) is to provide the people of Visalia
with fire protection, and other emergency services. The City is currently served by four fire stations
strategically located throughout the City. These four fire stations are described below.
Fire Station No. 1 – Station 1, the headquarters station is located in downtown Visalia at
309 S. Johnson St. Station 1 houses fire engine 1, fire truck 1, fire truck 2, battalion 1,
and an air support unit. Station 1 is also the administrative headquarters for the fire
department.
Fire Station No. 2 – Station 2 is located in southern Visalia at 2224 W. Monte Vista
Avenue, near the southwest corner of the Mooney Boulevard/Whitendale Avenue
intersection. Station 2 houses fire engine 2, and reserve fire engine 201.
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Fire Station No. 3 – Station 3, considered the airport fire station, is located in western
Visalia at 9500 W. Airport Drive. Station 3 houses fire engine 3, and two Airport Rescue
Fire Fighting Units (ARFF Units).
Fire Station No. 4 – Station 4, the newest fire station, is located in northern Visalia at
440 E. Ferguson Avenue, just east of Ben Maddox Way. Station 4 houses fire engine 4,
and reserve fire engine 401.
Figure 1-10 shows a fire station location map. The above fire stations are staffed 24 hours a day, 365
days a year. Fire suppression efforts are handled by four Pierce fire engines and a 105-foot Pierce aerial
truck as the front-line equipment. Each apparatus is staffed with a minimum of three firefighters.
The fire prevention division of the VFD provides engineering, education, and enforcement programs to
provide a fire safe environment. The Uniform Fire Code (UFC) is adopted by the City for the purpose of
setting regulations governing conditions hazardous to life and property from fire, hazardous materials, or
explosions. The City Council has adopted a permit process and fee schedule for certain regulated
activities. The revenues generated from this program support the fire prevention division, and the
hazardous materials response team.
The hazardous materials division (Haz-Mat 1) of the VFD responds to accidents involving hazardous
materials, and ensures the welfare and safety of those in danger. Haz-Mat 1 is housed at fire station 3,
where all the personnel are trained as Haz-Mat specialists and Haz-Mat technicians. Past statistics
regarding VFD fire and emergency responses are provided in Table 1-7.
FIGURE 1-10 – FIRE STATION LOCATION MAP
Station#4
Station#1
Station#3
Station#2
Source: http://www.ci.visalia.ca.us/
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TABLE 1-7
VFD CALL RESPONSE STATISTICS
Non-Fire Alarms 2001 2002 2003
EMS/Rescue 3,748 4,415 5,589
Hazardous Condition 250 191 194
Service Calls 198 373 364
Good Intent 940 1083 823
False Call/No Merit 218 219 324
Severe Weather 1 0 0
Other 9 10 10
Undetermined 7 0 1
Total Non-Fire 5,571 6,291 7,308
Fire Alarms
Structure Fires 240 250 198
Vehicle Fires 138 137 146
Grass/Vegetation Fires 95 107 75
Trash/Dumpster Fires 63 92 104
Rupture/Explosion 20 28 15
Other 5 0 6
Total Fires 561 614 544
Total Calls 6,132 6,905 7,849
Total Fire Loss $$ $1,702,300 $5,105,383 $3,306,180
Notes: 1) EMS/Rescue: Medical, vehicle injuries, extrications, etc.
2) Hazardous Condition: Haz-Mat, electrical, gas/oil spills, power lines down, etc.
3) Service Calls: Police assist, leaks, smoke removal, other public service
4) Good Intent: Steam/barbeque mistaken for smoke, odor of smoke, cancelled en route
5) Source: http://www.ci.visalia.ca.us/
As indicated in Table 1-7, the total number of fires went down from 2002 to 2003. This could be partially
attributed to the department’s fire prevention program efforts. While the actual number of fires
decreased, the total number of calls increased. It is likely that the increase in call volume is proportional
to the amount of growth within the City.
The City passed Measure T (which became effective July 1, 2004), a local ¼ cent sales tax increase that is
to be used solely to enhance and expand public safety services and facilities. The Measure T
implementation plan would be implemented over a 20-year period, and with regard to fire protection,
would add 18 more firefighters, and 2 new fire stations. Forty percent of the funds generated from
Measure T would be allocated to fire protection services, while sixty percent would be allocated to police
protection services, including a new 911 headquarters. The passage of Measure T helps offset funding
capital projects with contributions from the general fund. Measure T is expected to generate $4.5 million
annually.
The City has one capital fund, which includes contributions from the general fund, revenue generated
from developer fees, and a portion of funds generated from Measure T, set up for new fire department
facilities and equipment (excluding operation and maintenance costs which are derived directly from the
general fund). Capital projects funded (fully or partially) by the fire impact fees fund are identified
below.
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Fire Impact Fund
Install emergency vehicle preemption systems in 34 traffic signals and install
transmitters in 12 fire emergency vehicles. This system will allow emergency vehicles to
control traffic signals along their route. (Multi-funded with STIP money)
Set aside $160,000 to purchase 4-acres of land for a future fire station at a site that has
yet to be determined.
Set aside $78,000 to purchase 3 acres of land to construct a fire training facility. The
location of the training facility will be dependant on Council’s direction. (Multi-funded
with General Fund money)
Construct and staff a new 3-bay fire station at a site that has yet to be determined.
This fire station is identified in the Public Safety Impact Fee Study.
Based upon input provided by City staff, the City recently purchased 5 acres of land at the southeast
corner of Shirk Road and Ferguson Avenue for the purpose of sitting a new fire station and a training
facility. The City is actively looking for an appropriate site in the southeast quadrant of the City for
another new station. Funding for these new stations comes from the proceeds of the Measure T sales tax
(about 30%) and from the Fire Development Impact Fee (about 70%).
Police
The mission of the Visalia Police Department (VPD) is to provide quality police services, in a partnership
with the community, through the effective and responsible use of resources. The City’s Police
Department Headquarters Office is located at 301 S. Johnson Street, near Fire Station No. 1. In addition
to the headquarters police station located downtown, the VPD has established three other satellite
community service center offices: The Ferguson Street Center (District 1) located at Fire Station No. 4 at
N. Dinuba Boulevard; the Visalia Mall Office (District 2) located at Mooney Boulevard and Walnut
Avenue; and the Mary’s Vineyard Office (District 2) located at Noble Avenue and Ben Maddox Way.
The VPD has two divisions comprised of four bureaus: 1) Administrative Services; 2) Patrol; 3) Traffic
Bureau; and 4) Investigations. These divisions are funded through general fund revenues. Found within
separate funds are Narcotics Forfeiture, State Citizens Option for Public Safety grant (COPS), and the
Federal Local Law Enforcement Block Grant (LLEBG).
The Administrative Services Bureau provides direct service to the public, support services to the other
bureaus within the VPD, and directs the Youth Services unit. Some functions of Support Services include
fiscal matters, processing reports, arrest warrants, and evidence; coordination of police fleet vehicles and
dispatching services for police and fire.
The Patrol Bureau provides highly visible 24-hour uniformed patrol focusing on the preservation of
public peace, crime prevention, protection of life and property, and develops partnerships with the
community to provide a safe and comfortable environment within the community.
The Traffic Bureau provides traffic enforcement, accident investigation, and safety education programs to
promote safe vehicular and pedestrian traffic in the community, reducing traffic injuries and property
damage caused by traffic collisions.
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The Investigations Bureau provides thorough follow-up investigation of adult and juvenile crimes
committed in the City. The Property Crimes Unit, Narcotics Unit, and the Violent Crimes Unit operate
within the Investigations Bureau.
Figure 1-11 shows a chart outlining the adopted general fund percentage expenditures by department.
FIGURE 1-11 –
GENERAL FUND ALLOCATIONS
Public Works - 11%
Engineering - 7%
Police - 36%
Community
Services - 10%
Administration -
11%
Community Fire - 14%
Development - 11%
The City’s adopted general fund budget summary for the VPD for FY 2003-2004 is as follows:
Personnel Costs $13,014,208
Operational Costs $ 1,638,745
Other Expenses $ 2,900,578
Total $17,553,531
Personnel costs include salaries/wages and employee benefits. Operational expenses include employee
related expenses, operating supplies, special departmental supplies, outside services, and
utilities/fuels/oils. Other expenses include capital equipment, and internal services. The City has one
capital fund, the police impact fund, which includes contributions from the general fund, revenues
generated from developer fees, and a portion of the revenue generated from Measure T for capital police
protection projects. Revenue is used for new police department facilities and equipment (excluding
operation and maintenance costs which are derived directly from the general fund). Capital projects
funded (fully or partially) by the police impact fund are identified below.
Police Impact Fund
Remodel existing Juvenile Probation building at NW 3rd to provide offices and
administrative space for new North Side Precinct Office for the Police Department.
(Multi-funded with Community Development Block Grant Fund FY 2002-2003)
Purchase land, design, and construct a new Police Headquarters building and parking
area at the site of the new Civic Center. (Multi-funded with General Fund Money FY
2004-2005: Acquire Property, FY 2006-2007: Begin Construction)
In addition to the above projects, the Police Impact Fund will also support he construction of a new south
side precinct office at the corner of County Center Drive and Cameron Avenue. The site is owned by the
City and site planning is currently under way.
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The VPD staffs 108 full-time sworn officers, and 53 non-sworn positions. The City’s police force also
includes 11 reserve officers, 52 volunteers, and 8 chaplains. With a current (January 2005) jurisdictional
population of 107,550, the VPD has a sworn officer to population ratio of approximately 1:995. Crime
statistics for the City are shown in Table 1-8.
TABLE 1-8
CITY OF VISALIA CRIME STATISTICS
Year Total Service Calls Person Crimes Property Crimes Total Crimes Arson
2002 95,649 843 2,740 3,583 30
2003 97,730 789 2,664 3,453 28
% Change 2.2% -6.4% -2.8% -3.6% -6.7%
Source: http://www.ci.visalia.ca.us/
As indicated in Table 1-8, the total number of service calls increased between 2002 and 2003 while the
total number of reported crimes decreased by 3.6%. It is likely that the increase in call volume is
proportional to the amount of growth within the City. Person crimes include homicide, rape, robbery, and
aggravated assault. Property crimes include burglary, grand theft, and vehicle theft. There was a
decrease in all categories of crime except for robbery in 2003 compared to 2002. Overall, there was a
3.6% decrease in reported crime. The VPD responded to a total of 99,820 calls for service in 2004.
1.2.7 Solid Waste Disposal
Solid waste collection service is provided by the City, while disposal services are provided through Tulare
County via area landfills. The City’s solid waste collection operations are based on a two-can system,
one split container for garbage and recyclables and one green waste can. The Visalia City Council
recently voted to retain the current two-can system as the standard service, but to meet the needs of more
users by offering a second split-container for just $4.00 a month.
City ordinance requires that all residents must bag their garbage, for rodent control, and must recycle. If
the green waste and/or recyclable side of the split container are contaminated with garbage, the container
is tagged and will not receive service. The first violation requires that unwanted items be removed to
avoid a violation charge on following bills. Once the container is cleaned, the City will provide a free
pickup upon request. A second violation results in a penalty of $7.00, the third, a penalty of $11.00, and
the fourth violation and beyond, $15.00 per violation.
In 1989, the State of California passed the Integrated Waste Management Act. Assembly Bill 939 (AB
939) required all cities and counties to implement programs to reduce landfill tonnage by 25% by the end
of 1995, and 50% by the end of 2000. The eight Tulare County City’s (Porterville, Visalia, Tulare,
Lindsay, Dinuba, Farmersville, Exeter, and Woodlake), which are involved in the Joint Power Authority
are currently at 44% diversion. The JPA has a time extension and plans to return to 50% diversion. The
City of Visalia salvages approximately 1,150 ton of recyclables and 2,500 tons of green waste per month
in their residential and commercial operations. The City of Visalia disposes approximately 8,500 tons of
recyclables and garbage each month. Based upon information obtained from the Tulare County Solid
Waste Division website (www.co.tulare.ca.us/solidwaste/swabout.htm), the County buries about 300,000
tons of waste per year, which is equivalent to about 5 lbs. per person per day, or one ton per county
resident per year. The budget for this operation is $12-$13 million annually.
The County operates three landfills or solid waste disposal sites. These three facilities are the Visalia
Landfill, northwest of Visalia; the Woodville Landfill, southeast of Tulare; and the Teapot Dome
Landfill, southwest of Porterville. The County also operates seven transfer stations. The transfer stations
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are located in rural areas for the convenience of the people who live near them and do not accept large
volumes of waste. The seven transfer stations and approximate locations are listed below:
• Badger Transfer Station, east of Badger
• Balance Rock Transfer Station, north of Balance Rock
• Camp Nelson Transfer Station, northeast of Camp Nelson
• Earlimart Transfer Station, north of Earlimart
• Kennedy Meadows Transfer Station, near the Inyo County line in southeast Tulare County
• Pine Flat Transfer Station, north of Pine Flat
• Springville Transfer Station, south of Springville
The City of Visalia has two locations for garbage drop off, Tulare County Recycling (transfer station) on
Lovers Lane, and the Visalia Landfill northwest of Visalia. Routes east of Mooney Boulevard are taken
to Tulare County Recycling at which point transfer trucks are loaded with the garbage and hauled to the
Kettleman City landfill. Routes west of Mooney Boulevard are taken to the Visalia Landfill on Road 80.
Tulare County Recycling and the Kettleman Landfill are both owned by Waste Management.
Based upon discussions with the Tulare County Solid Waste Division, the Visalia Landfill is planned to
expand in 9-phases, based upon increased demand. Phase 1 expansion has already been implemented.
With the nine phased expansions, the total capacity of the Visalia Landfill is estimated at 16,521,501
cubic yards. The Tulare County Solid Waste Division further indicated that the Visalia Landfill has
sufficient capacity to accommodate solid waste disposal demands through year 2040.
The City is contracted with Sunset Waste Paper, located on North Cain Street, to process residential and
commercial recycling from residential split trucks and commercial recycling routes. Approximately
1,150 tons of recyclables, consisting of 875 tons of residential recyclables, and 275 tons of commercial
recyclables, per month is disposed of at Sunset Waste Paper, corresponding to annual tonnage of
approximately 13,800 tons.
The City is contracted with Tulare County Compost and Bio-Mass, to process residential and commercial
green waste. All green waste is hauled to their facility located 6 miles south of SR 198 on Lovers Lane.
Approximately 2,500 tons of green waste is diverted to the facility each month, corresponding to an
annual tonnage of approximately 30,000 tons.
The City also holds annual solid waste events to provide a solution for removing large bulky items, green
waste, and Christmas trees from homes. The events include three annual “Dump on Us” days, the annual
“Trash-A-Thon”, the annual “Fall Drop Off”, and the annual “Christmas Tree Pick Up”. These events are
free of charge to all Visalia residents. The City also offers a “Curbside Pickup” program which is free
with restrictions to Visalia residents. The “Curbside Pickup” program is available to residents 3 times per
year. The special curbside pick up can include up to 10 bags of refuse that weigh 25 lbs or less. The City
provides information regarding solid waste events via bill inserts, and website postings.
In June 2003, a Solid Waste Privatization Study (R.W. Beck, 2003) was completed, and evaluated the
impacts of the potential privatization of the City’s Solid Waste Division. The study concluded that if
privatization occurred, $1.8 million in costs that were previously paid by the division would become the
responsibility of other City departments or divisions. These are allocated costs that could not be
eliminated even if privatization occurred. The study also concluded that if privatization occurred, the
resulting loss of work for fleet maintenance would warrant a study to determine if fleet maintenance
should continue as a City operation or be outsourced. The study further concluded if the City continues to
operate its solid waste business it will have opportunities to address several issues including the
assessment of franchise fees for commercial solid waste service providers operating within the City. In
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addition, as an ongoing enterprise, the City will have the opportunity to address any operational efficiency
issues as they are identified. Subsequent to the study, the City opted to continue its solid waste
operations.
Based upon comments provided by City staff, the City does not allow private haulers to operate within
the City limits for residential or commercial pick up, hence there is no need for a franchise fee. This was
a deliberate decision because it is believed that private haulers would not have the same level of desire to
divert recyclables away from landfills, which would lower the City’s diversion rates. The only private
haulers allowed in the City are those that provide roll off services to construction sites. The City does
charge a fee of $25 per box, which has resulted in a revenue stream of approximately $2,500 to $3,000
per month.
1.2.8 Written Determinations
Water
1. The City of Visalia contracts with California Water Service (Cal Water), a private water
service provider, to serve the City with potable water and fire protection use. The Cal Water
Visalia District primarily serves the City of Visalia, the community of Goshen to the west,
and several unincorporated areas adjacent to the City of Visalia. It should be noted that Cal
water is not subject to a SOI determination, and therefore has been identified as being exempt
from the municipal service review requirement.
2. Based upon data available from the California Department of Water Resources, Cal Water
has not complied with the Urban Water Management Planning Act for the 2000 requirement.
Cal Water has until December 2005 to comply with the 2005 requirement. The Cal Water
Visalia District Manager indicated that an Urban Water Management Plan was submitted to
the California Department of Water Resources, and was adopted in June 2004. It is
recommended that Cal Water work to comply with the requirements of the Urban Water
Management Planning Act.
3. The Cal Water Visalia District completed a comprehensive Water Supply and Facilities
Master Plan (Boyle Engineering) in February 2005. The master plan program is intended to
proactively address the service needs of the existing customers in light of potential water
quality and quantity issues as well as address expansion to the system to meet projected
future growth. The master plan has a study area consistent with the City’s UGB.
4. The City is in a watershed where the groundwater supplies (from the Tulare Lake Basin) are
over-drafted, which means more water is being withdrawn from the ground for use than is
being replenished. The City has been actively involved in seeking and implementing ways to
mitigate the impacts of groundwater overdraft.
5. In August 2005, the City adopted a groundwater overdraft mitigation ordinance which
assesses impact fees upon new development and a volumetric fee upon existing urban water
supplies to fund activities and projects to mitigate the impacts of groundwater overdraft.
These efforts demonstrate the City’s ability to continue to implement long term water supply
solutions even through they are not the direct supplier of domestic water to City residents.
6. The City of Visalia has a capital improvement fund set up for underground water recharge
efforts. Funds are used for the acquisition of water, and other activities to improve
groundwater levels, and increase the supply of water to the City.
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7. The City’s Municipal Code contains a Water Conservation Ordinance which outlines specific
policies pertaining to the conservation of potable water. Employees of California Water
Service Company are authorized by the ordinance to issue written notices of violations, but
are not authorized by law to issue citations for violations. The City’s Water Conservation
Ordinance is available on the City’s website.
8. Despite the fact that the City is not the direct domestic water supplier for its residents the City
continues to make significant efforts to ensure that the long term water supply needs of the
City continue to be addressed. City officials have indicated that they are studying the
feasibility of various alternatives of implementing a City owned domestic water system.
Drainage Infrastructure
1. The City continues to expand and improve its drainage infrastructure as new development
occurs within the City. The City accomplishes this through development fees (for new
drainage facilities), and a drainage utility fee of $0.75 per month for all developed properties
(for maintaining existing facilities).
2. The City has a Master Planned storm drain system that is anticipated to meet drainage
infrastructure needs through the build-out of the General Plan. The Storm Water Master Plan
and Management Program addresses future facility expansion needs to accommodate growth
within the City’s UGB.
3. The City of Visalia has two capital funds set up for storm sewer improvements, one for new
facilities, and one for correcting existing deficiencies as outlined in the Storm Water Master
Plan and Management Program.
Wastewater Collection, Treatment and Disposal
1. The City continues the process of upgrading and replacing sewer collection pipelines through
the implementation of the Sewer System Master Plan. The Sewer System Master Plan is a
long range plan that identifies trunk lines that would ultimately serve the City’s UAB.
2. The City has a comprehensive capital improvement program that appropriates funds to
construct sewer infrastructure projects on an annual basis.
3. The Sewer System Master Plan indicates that many trunk sewers are nearing capacity, and the
maintenance of these lines is essential to provide the designed flow capacities. The Master
Plan recommends that the City develop a sanitary sewer maintenance program that includes
cleaning pipes on a regular basis.
4. The City continues to upgrade the wastewater treatment plant through the implementation of
the Wastewater Treatment Master Plan Update. The City has budgeted $1,000,000 annually
to carryout upgrades associated with NPDES discharge regulations. Continual upgrades of
the wastewater treatment plant will be necessary to accommodate future growth.
5. Improvements to the VWCP have increased the plant’s hydraulic capacity to 22 MGD, the
BOD5 capacity to 103,229 lbs/day, and the SS capacity to 148,068 lbs/day. The current
permit in which the VWCP is operating under, which prescribes a maximum average daily
dry weather flow of 16 MGD, expired on March 1, 2002. The City has submitted a renewal
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application for the NPDES permit, which is pending action from the RWQCB. The City has
been directed by the RWQCB to continue operating under the expired permit until a new
permit is issued by the Board. The City anticipates that the renewed permit will allow for a
maximum flow of 22 MGD.
6. As of August 2004, the average dry weather flow into the treatment plant was 12.5 MGD,
resulting in a reserve design capacity of approximately 9.5 MGD. The Goshen CSD
contracts with the City of Visalia for wastewater treatment services, and has a current
(December 2005) contracted capacity of 335,000 GPD. As of November 2005, Goshen was
contributing a flow of 315,000 GPD to the VWCP.
Streets and Roads
1. The City continues the process of upgrading and replacing roads and streets through the
implementation of its comprehensive capital improvement program that appropriates funds to
construct transportation infrastructure projects on an annual basis. Currently, the City has
four capital funds which are allocated to annual transportation improvements.
2. The City coordinates closely with the Tulare County Association of Governments (TCAG)
and Caltrans to obtain funding for transportation improvement projects.
3. The City’s General Plan Circulation Element provides a comprehensive policy base for
improving the City’s transportation system.
4. The Tulare County Regional Transportation Plan provides a link between local (City) and
regional (County) transportation needs. The Regional Transportation Improvement Program
(RTIP), which qualifies projects for the State Transportation Improvement Program (STIP), is
consistent with the RTP, and serves as the implementing document.
5. Due to the State budget crisis, several projects programmed to receive STIP funding have
been significantly delayed, and therefore, the City has had to prioritize which transportation
projects to construct based on immediate needs, and funding shortages.
6. The 2003 public opinion survey conducted by the Citizens Advisory Committee indicates that
residents were generally more satisfied with City services except for street and road
maintenance, which residents were less satisfied with compared to previous years. In
addition, respondents rated street and road maintenance as the most important City service
besides police and fire. These results indicate that the City may need to focus more on these
issues in future years.
7. The City Council recently adopted a major policy change in the way that the City’s arterial
and collector streets are funded and constructed. Under the new policy, the City will now
have the financial responsibility for all portions of arterial and collector streets. If these
streets are built by developers, they will be reimbursed the entire cost of construction. In
exchange, the City significantly raised its traffic impact fees for new development. The City
anticipates that the new policy for constructing streets will provide the funding capability to
respond to the public’s major traffic concerns in a more timely fashion.
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Fire and Police Protection Services
1. The City of Visalia operates four fire stations staffed 24 hours a day, 365 days a year, and
responded to 7,849 calls in 2003.
2. The City of Visalia currently staffs 108 full-time sworn officers, and 53 non-sworn positions.
The City’s police force also includes 11 reserve officers, 52 volunteers, and 8 chaplains.
With a current (January 2005) jurisdictional population of 107,550, the VPD has a sworn
police officer to population ratio of approximately 1:995. The VPD responded to a total of
99,820 calls in 2004.
3. Through capital improvement funds and general fund allocations, the City of Visalia
continues to meet the public safety needs of its residents.
4. The residents of Visalia voted to pass Measure T, a local ¼ cent sales tax increase effective
July 1, 2004, which provides a secure, local revenue stream to the City which is used entirely
to provide additional police and fire personnel and services to protect the community.
5. The City requires developers to pay public safety impact fees prior to the issuance of any
building permits. The fees vary based upon type of service (police and fire), and proposed
land use. The fees collected are allocated to fund capital improvements to police and fire
protection facilities.
6. The City has steady revenue streams (Measure T revenues & development impact fees) that
can be used to expand public safety services to accommodate future growth.
7. The City recently purchased 5 acres of land at the southeast corner of Shirk Road and
Ferguson Avenue for the purpose of sitting a new fire station and a training facility, and is
actively looking for an appropriate site in the southeast quadrant of the City for another new
station. Funding for these new stations comes from the proceeds of the Measure T sales tax
(about 30%) and from the Fire Development Impact Fee (about 70%).
8. The City has purchased land for a new south side police precinct office at the corner of
County Center Drive and Cameron Avenue, and site planning is under way.
Solid Waste
1. The City has ordinances in place that require residents to bag garbage, and recycle. This
helps reduce the amount of solid waste transported to County landfills.
2. In 1989, the State of California passed the Integrated Waste Management Act. AB 939
required that all Cities and Counties implement programs to reduce landfill tonnage by 25%
by the end of 1995, and 50% by the end of 2000. The eight Tulare County City’s, which are
involved in the Joint Power Authority, are currently at 44% diversion. The JPA has a time
extension and plans to return to 50% diversion.
3. The City of Visalia salvages approximately 1,150 tons of recyclables and 2,500 tons of green
waste per month, corresponding to 13,800 tons of recyclables and 30,000 tons of green waste
annually. The City disposes approximately 8,500 tons of recyclables and garbage each
month, corresponding to an annual disposal tonnage of 102,000 tons, or approximately 1,000
tons per capita per year.
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4. The City is contracted with Sunset Waste Paper to process residential and commercial
recycling from residential split trucks and commercial recycling routes. The City is also
contracted with Tulare County Compost and Bio-Mass, to process residential and commercial
green waste.
5. The City has in place several programs including “Curbside Pick Up”, “Dump on Us” days,
the annual “Trash-A-Thon”, the annual “Fall Drop Off”, and the annual “Christmas Tree
Pickup” which are provided free of charge to Visalia residents.
6. The potential privatization of the City’s solid waste operations was studied, and subsequent to
the study, it was determined that it would be in the City’s best interest to continue its solid
waste operations and not privatize them at this time.
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1.3 FINANCING OPPORTUNITIES AND CONSTRAINTS
The purpose of this section is to evaluate a jurisdictions capability to finance needed improvements and
services. The section summarizes the accomplishments of the City’s budget preparation process, and
summarizes the City’s year ending comprehensive annual financial report.
1.3.1 Annual Budget
The City of Visalia was awarded a Certificate of Achievement for Excellence in Financial Reporting by
the Governmental Finance Officers Association of the United States and Canada (GFOA) for the
seventeenth time for fiscal year ended June 30, 2002. The Certificate of Achievement is a prestigious
national award recognizing conformance with the highest standards for preparation of local government
financial reports. In order to be awarded a Certificate of Achievement, a government must publish an
easily readable and efficiently organized Comprehensive Annual Financial Report (CAFR), whose
contents conform to program standards. The CAFR must satisfy both generally accepted accounting
principles and applicable legal requirements.
The City has adopted Fiscal Administration Policies built into their charter, which was last revised in
November 1974. The City also has adopted budget and fiscal policies that act as a guide in preparing bi-
annual budgets. The City’s budget and fiscal policies address the following major issues:
• Financial Plan Purpose
• Financial Reporting and Budget Administration
• General Revenue Management
• User Fees (Cost Recovery)
• Debt Management
• Investments
• Appropriations Limitation
• Capital Improvement Plan
In June 2004, the City adopted its second two-year budget. The budget, for operating and capital
expenditures, has two mid-year reviews each January and one mid-cycle review in June. This two-year
cycle has improved the City’s budgeting and short-term planning.
1.3.2 Comprehensive Annual Financial Report (CAFR)
At the end of each fiscal year, the City prepares a Comprehensive Annual Financial Report which
includes five major sections: Introduction, Basic Financial Statements, Notes to Financial Statements,
Supplemental Statements, and Statistical Information. The following excerpt from the Introduction to the
City of Visalia Comprehensive Annual Financial Report outlines some of the major initiatives and
accomplishments for the 2002-2003 fiscal year:
“The local economy and the City have had a historically prosperous year. More building
permits have been issued this past year than ever before. This past year, over 1 million
square feet of commercial development was under construction. At the same time local
events were memorable, the State of California was creating infamy by its handling of the
largest State budget deficit in the United State’s history. These events and others have
made for interesting times in Visalia. Some of the major accomplishments were:
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• Kaweah Delta Health Care District Expansion (KDHCD)...
• 700 Space Downtown Parking Garage…
• City Hall’s Move to the East…
• Waste Water Treatment Plant Expansion…
• Transit Center Facility…
• Terminus Dam Improvements…
• Developed Commercial Space…
• Annexation of Over 1,000 Acres into the City…
• Almost 1,000 Building Permits Issued…
• North-side Community Campus…
• Community Park Property Acquisition…
Collectively, these accomplishments represent a sampling of the many important local
events that have been occurring this past year in Visalia, indications of a vibrant
community being effectively encouraged to grow in positive manners by actions taken by
the City Council.”
In contrast to the above local developments, the City will be faced with major challenges since the State
of California is facing a massive State Budget deficit. The State’s budget deficit becomes the City’s
problem because local and State revenue sources have progressively become intertwined over the last 25
years with the passage of Proposition 13 in 1978.
Approximately two-thirds of the General Fund’s revenues come from three revenue sources: Sales Tax,
Property Tax and Vehicle License Fees, all three of which have been compromised by the State. As of
the 03/04 budget, over $3 million annually has been diverted to the State from what once were local
revenue sources. As a result, the City has had to take steps to anticipate a yet unknown budget deficit
because of a budgetary crisis at another level of government.
The Notes to Basic Financial Statements section of the City’s CAFR includes the following major
heading notes, organized as follows.
• Note 1: “Summary of Significant Accounting Policies”
• Note 2: “Budgets and Budgetary Accounting”
• Note 3: “Cash and Investments”
• Note 4: “Inter Fund Transactions”
• Note 5: “Notes and Loans Receivable and Deferred Revenue”
• Note 6: “Capital Assets”
• Note 7: “Long Term Debt”
• Note 8: “Debt Without City Commitment”
• Note 9: “Net Assets, Fund Balances and Retained Earnings”
• Note 10: “Employee Benefits”
• Note 11: “Risk Management”
• Note 12: “Contingent Liabilities and Commitments”
The City’s budget clearly articulates revenue sources and expenditures, and provides information that is
divided into the following sections: Budget Message, Major Revenue Highlights, Major Expenditure
Highlights, Major Challenges and Opportunities, Major Events and Accomplishments, Community
Profile, Budget Summary, General Fund, Administration, Community Development, Police, Fire &
Emergency Services, Public Works, Engineering & Transportation, Community Services, Special
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Revenue Funds, Debt Service Funds, Reserves & Investments, Enterprise Funds, Internal Service Funds,
Fiduciary Funds, Capital Improvement, and Personnel.
The City’s budget includes a section entitled “Debt Service” which summarizes the long term debt owed
by the City. The City has long term debt in the form of bond issues, certificates of participation, and
capital leases. Bonds and certificates of participation have been issued for various purposes including the
following.
• Infrastructure and utility improvements within the Los Rios/Casa Blanca Assessment District
• Various improvements within the East Visalia Redevelopment Area
• Various improvements within the Mooney/Central Redevelopment Areas
• Various improvements within the Downtown Area including a parking structure
• Downtown parking structure at Acequia and Bridge streets
• Construction of additions, extensions, and improvements to the City’s wastewater collection
system
• Capacity improvements to the City’s wastewater treatment plant
• Golf course expansion project
The City’s total outstanding debt balance as of June 30, 2003 was $64,245,119, with $24,256,389
classified as Governmental Activity Debt, and $39,988,730 classified as Business Type Activity Debt.
Each debt fund is scheduled for payment during each annual budget cycle. A total debt payment
allocation of $4,242,431 was scheduled for fiscal year 2003-2004.
1.3.3 Written Determinations
1. The City prepares an award-winning annual budget that clearly and comprehensively describes
the services provided by the City to residents and the funds expended for those services.
2. The City prepares its annual budget on a two year cycle, thereby reducing administrative costs
associated with preparing comprehensive budgets on an annual basis. The two year budget
includes a mid-cycle review in June, and two midyear reviews each January.
3. The City recognizes the need to offset revenue losses resulting from the State budget crisis, and
continues to develop strategies to offset these losses. An example would be the passage of
Measure T, a ¼ cent increase in local sales tax, revenue that is to be used for expanding the City’s
public safety services.
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1.4 COST AVOIDANCE OPPORTUNITIES
The purpose of this section is to identify practices or opportunities that may help to eliminate unnecessary
costs. This section evaluates the City’s fiscal structure and the cost avoidance practices built into the
City’s budgetary process. The City’s purchasing policy is also described to show how the City avoids
unnecessary costs through competitive bidding, and other purchasing practices.
1.4.1 Fiscal Structure
The City’s cost avoidance practices are built into the budgetary process. The City uses a two-year
financial plan, emphasizing effective program management. The benefits identified from using a two-
year plan include the following.
• Reinforces the importance of effectively planning and managing the City’s fiscal affairs.
• Concentrates on developing and budgeting for the accomplishment of significant objectives.
• Establishes realistic timeframes for achieving objectives.
• Creates a pro-active budget that provides for stable operations and assures the City’s long-
term fiscal health.
• Promotes more orderly spending patterns.
• Reduces the amount of time and resources allocated to preparing annual budgets.
• Establishes measurable program objectives and allows reasonable time to accomplish those
objectives.
The City uses a well defined budget, and competitive bidding process to help them in avoiding
unnecessary costs. The City’s management team is responsible for establishing and maintaining internal
controls to ensure that the City’s assets are adequately protected from loss, theft or misuse. The City
maintains budgetary controls, the object of which is to ensure compliance with legal provisions embodied
in the annual appropriated budget approved by the City’s governing body, City Council. The City
maintains a traditional line item budget by function. Budget control is accomplished at the functional or
division level within each fund. This budget creates a comprehensive management and fiscal system
aimed at achieving the objectives of each operating level consistent with those that have been set for the
community by the City Council.
The City also avoids unnecessary costs through the implementation of infrastructure Master Plans, which
assist in eliminating overlapping or duplicative services. Master planning documents also provide sound
funding alternatives for their implementation, and plan for growth within and surrounding the City. The
City also has a development impact fee program to help offset the financial responsibility of the City to
install and maintain the infrastructure for new developments.
1.4.2 Purchasing Policy
The City has comprehensive purchasing policies that promote the cost-effective procurement of goods
and services. These policies identify specific rules and regulations for purchasing services and capital
assets for the City. These policies are detailed within the purchasing manual, organized with the
following chapters.
• Chapter 1 – Introduction to Purchasing and Contract Procedures
• Chapter 2 – Ethical Considerations
• Chapter 3 – Specifications
• Chapter 4 – Methods of Acquisition
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• Chapter 5 – Bid Requirements and Procedures
• Chapter 6 – Contracts for Goods and Services
• Chapter 7 – Contract Administration, Enforcement and Legal Remedies
• Chapter 8 – Vendor Regulations and Vendor Performance
• Chapter 9 – Insurance and Bonds
• Chapter 10 – Inventory Control/Fixed Assets and Surplus Equipment
• Chapter 11 – Cost Control Methods
• Chapter 12 – Receiving Procedures
• Chapter 13 – Payment Procedures
• Chapter 14 – Federal, State and Local Tax Requirements
• Chapter 15 – Guidelines for Retaining Consultants to Provide Architectural, Professional
Engineering, Land Surveying, and Design Services
• Chapter 16 – Special Types of Procurement
Healthy competition is at the heart of efficient purchasing. Competition is directly related to the prices
the City pays and the quality of the goods and services it obtains. The City’s purchasing policy is based
upon fair and open competition. The foundation for effective fair and open competition is equal treatment
of each vendor, and it is imperative that no vendor is given an advantage over the others.
1.4.3 Written Determinations
Fiscal Structure
1. The City uses conservative budgeting practices to ensure adequate and cost-effective services
to current residents.
2. The City’s two year budget cycle provides for an excellent short-term fiscal planning tool
while reducing the amount of time and resources associated with the preparation of annual
budgets.
3. Master planned infrastructure helps the City in avoiding unnecessary costs through effective
planning and implementation policies, and help eliminate overlapping and/or duplicative
services.
4. The City’s developer impact fee program has proven effective in reducing the financial
responsibility of the City to install and maintain the infrastructure for new developments.
Purchasing Policy
1. The City has a well defined purchasing policy that promotes healthy competition, and guides
the City in obtaining cost effective quality services.
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1.5 OPPORTUNITIES FOR RATE RESTRUCTURING
The purpose of this section is to identify opportunities to positively impact rates without decreasing
service levels. This section provides a comparison of various utility rates to surrounding jurisdictions to
show that the City can provide effective quality service at rates comparable to surrounding agencies.
1.5.1 Fee Structure
The City contracts out utility billing to the private water service provider for the area, California Water
Service. California Water Service establishes water rates independent of City operations, and provides
the billing for water, sewer, storm drain, and garbage collection. By consolidating these services into one
bill, the City shares the cost of administrative fees with California Water Service.
The City’s budget process includes an annual review and update of user rates charged for sewer, storm
drain, and garbage collection. Current rates are scheduled for annual increases through fiscal year 2006-
2007. As indicated in previous sections of this report, utility user fees charged to existing residents are
generally allocated to the operation and maintenance of existing facilities, and are not to be used for the
construction of new facilities. Development impact fees, connection fees, and building permit fees are
used to construct the infrastructure for new developments. Having separate funds set up for the
construction of new infrastructure, and for the operation and maintenance of existing infrastructure allows
the City to continue to provide cost-effective quality services to current residents.
Tables 1-9A – 1-9C compare the water, sewer, and refuse rates for the cities of Visalia, Porterville, and
Tulare. The rates identified are for single family dwellings metered water service (for a standard 5/8 x
3/4-inch meter), flat rate sewer fees, and flat rates for refuse pickup. The sample monthly bill is
calculated using 12 units (1200 cubic feet or 8,977 gallons) of water as a base.
TABLE 1-9A
SINGLE FAMILY WATER RATES
Water (per 100
Monthly Service
City cubic feet or 748 Other Charges Sample Monthly Bill
Meter Charge
gallons)
City of Visalia $6.70 $0.51 $0.00 $12.82
City of Porterville $5.00 $0.72 6% of Total1 $14.46
City of Tulare $9.67 $0.40 $0.00 $9.67
Notes: 1) The City of Porterville assesses a 6% Utility Users Tax within City Limits
2) The City of Tulare’s Base Rate of $9.67 covers water usage to 10,000 gallons.
Usage above 10,000 gallons has additional charges in the amount of $0.544
per 1,000 gallons (134 cubic feet).
TABLE 1-9B
SINGLE FAMILY SEWER RATES
City Flat Rate Other Charges
City of Visalia $13.81 $0.00
City of Porterville $25.39 $0.00
City of Tulare $22.19 $0.00
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TABLE 1-9C
SINGLE FAMILY REFUSE RATES
City Flat Rate Other Charges
City of Visalia $16.00 $4.00/Additional Can
City of Porterville $15.00 $0.00
City of Tulare $16.00 $6.80/Additional Can
As indicated in the above tables, the City is able to provide quality service generally at lower rates than
other cities within the County. There is no evidence suggesting that the annexation of areas within the
SOI and/or UGB would result in unreasonable fees for these services as properties annex and develop
within the City. It is anticipated that fees for the SOI/UGB areas would be inline with citywide fees for
such services. As previously discussed, the City has programs in place (development impact fees, capital
improvement program, etc.) for the construction of new infrastructure, thereby, mitigating the need to
increase rates for current residents to support new development within the SOI/UGB areas.
1.5.2 Written Determinations
Fee Structure
1. Rates and fees for services are established and updated using the City’s budget process,
ordinances and other regulations.
2. The City has a sound fee structure in place which allows the City to continue to provide cost
effective services to its residents while continuing to maintain and improve the current
infrastructure.
3. There is no evidence suggesting that the City would not be able to provide services to areas
within the SOI and UGB for fees consistent with citywide fees for such services.
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1.6 OPPORTUNITIES FOR SHARED FACILITIES
The purpose of this section is to evaluate opportunities for a jurisdiction to share facilities and resources,
thereby increasing efficiency. This section provides a description of the City’s current facilities sharing
activities, and identifies future opportunities to collaborate with other agencies on joint use projects
and/or practices.
1.6.1 Current Shared Facilities
The City currently shares several services with surrounding jurisdictions (primarily the Goshen
Community) to provide efficient and cost effective services. The Visalia City Coach system provides
service to the Goshen Community, and links to the Tulare Transit Bus system. Based upon information
obtained from an “Inside City Hall – Beyond the Headlines” newsletter (October 2004), the Visalia transit
system, effective November 6, 2004, implemented program changes approved by City Council including
longer hours, Sunday service, and service to Farmersville and Exeter. The expansion also includes more
service in southeast Visalia along Ben Maddox Way, Walnut Avenue, McAuliff Road, and Noble
Avenue. The service is provided in conjunction with the Tulare County Association of Governments
(TCAG) and would help the County and City meet the requirements of the Transportation Development
Act.
The City also contracts with the Goshen Community Services District for wastewater treatment services.
As previously discussed, the City utilizes the administrative services of the California Water Service
Company to provide a single bill for water, sewer, garbage, and storm drain.
Additional examples of the City’s desire to work with surrounding agencies in providing quality service
to residents in a cost effective manner include relocating City Hall, which would potentially include
shared office buildings, and the construction of the Northside Community Campus. The Northside
Community Campus comprises over 7 acres and includes an existing community center and an old
County juvenile probation facility. The City acting as a developer, has subdivided that property, and will
be improving it with a police station, entry plaza with fountain, park, and related infrastructure
improvements. The City has conveyed parcels to qualified non-profit organizations, and a public agency,
in exchange for their agreement to construct buildings and provide programs that service the community.
The project is being financed with CDBG funds. The new City Hall site is located on the southeast corner
of Burke Street and Murray Avenue. The City will be looking at the potential for other agencies to locate
at this site with the intent of creating a Downtown Civic Center.
The City has worked with Tulare County Association of Governments and Tulare County Resource
Management Agency on regional planning issues including transportation, solid waste, and coordinating
applications to request State and/or Federal funding for joint projects. Another example of the City’s
desire to work cooperatively with the County includes the construction of public libraries. The County
gained by building libraries for half the cost, while the City’(s) are enriched from having new community
assets.
The City also is working with several agencies on the Kaweah Lake Enlargement Project, a project that is
going to increase the storage capacity of the reservoir by approximately one third. Federal, State, and
local money is paying for the project, which is a combined effort of the Army Corps of Engineers, the
State Reclamation Board, and local sponsors including the Kaweah Delta Water Conservation District,
Tulare and Kings Counties, the City of Visalia, and Tulare lake Basin Water Storage District and
Landowners.
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The City is working with the Visalia Unified School District to communicate effectively on issues of
shared interest. The City Council and School Board meet jointly four times a year at publicly noticed
meetings to discuss items of mutual interest. The City and School District staff (including the City
Manager and Superintendent) meet monthly to discuss way s that the two agencies can work together to
provide better service to Visalia’s citizens. This collaboration has resulted in cost savings to both
agencies. One recent example of collaboration is the construction of multipurpose buildings at
Divisadero and Green Acres Middle Schools that were funded by the District, the City, and State
matching dollars. The buildings are maintained by the District but are available for use by the City.
There are other agreements in place to share the use of the Convention Center, the LJ Williams Theater,
and the Rotary Theater.
The City has also worked closely with the Kaweah Delta Health Care District to accommodate the
medical facility needs of the District. A major collaboration has been under way for a number of years to
ensure that the main hospital facility for the District can remain and expand at its downtown location. A
master site plan was jointly developed with an agreement for City participation in infrastructure
construction. The first building to be built under this agreement is the Support Services Building, which
is nearing completion. The next building will be a six story hospital expansion to be located north of the
existing hospital and facing Acequia Avenue. Construction is scheduled to begin in mid 2005.
The City also works closely with the various Irrigation and Water Districts that are within the SOI to
coordinate issues regarding irrigation ditches and storm drainage. The City has agreements with Districts
on the amount of storm water that may be discharged into streams and ditches. This has resulted in a cost
savings to the City as these ditches form a major component in the City Storm Water Master Plan.
1.6.2 Future Opportunities
With the State budget crisis impacting both Counties and Cities, the need for intergovernmental
cooperation is becoming apparent, as every agency is facing an unprecedented assault on local resources.
For this reason, it is important for City’(s) and the County to meet this challenge on common ground.
Another opportunity for shared facilities involves the construction of groundwater recharge facilities. As
groundwater levels in the County continue to dwindle, the importance of groundwater recharge projects is
becoming apparent. As the City has planned for the construction of groundwater recharge basins within
the City, ultimately this effort could be expanded to include areas within the SOI through a joint effort
between the City, County, the California Water Service Company, and the Kaweah Delta Water
Conservation District. Groundwater recharge would benefit both the County as a whole and the City in
terms planning for future growth within the SOI boundary.
Other opportunities for shared facilities include the coordination and construction of recreational facilities
including parks, hiking/bike trails, scenic trails, etc., particularly east of the current City Limits. The area
separating the Cities of Visalia and Farmersville could be considered ideal for the construction of joint
recreational facilities, as there are several waterways which enhance the recreational appeal of the area.
Planning this area for future recreational facilities could be accomplished as a joint effort between the
City of Visalia, the City of Farmersville, and Tulare County. Recreational improvements within this area
would not only enhance the overall aesthetics, but would also establish an open boundary, or greenbelt,
between Visalia and Farmersville. The recreational aspects of trail connections offer opportunities for
Cities and Counties to join recreational resources not only to the benefit of the Cities residents’, but for
the general public of the County as well. The Visalia Parks and Recreation Department is about to release
a public draft of a Community Waterways and Trails Master Plan. This master plan describes how the
City can build bike/walking trails along Mill Creek, Packwood Creek, and Cameron Creek.
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1.6.3 Written Determinations
Current Facilities Sharing Activities
1. The City continues to look for opportunities to construct joint use projects, and opportunities
for shared services. The City has demonstrated this effort with the completion of many
projects in cooperation with the County, and by sharing services with local and surrounding
jurisdictions.
Future Opportunities
1. The City has several future opportunities to share services and/or facilities in the future,
including but not limited to: groundwater recharge efforts, recreational facilities, and the
sharing of office buildings.
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1.7 GOVERNMENT STRUCTURE OPTIONS
The purpose of this section is to consider the advantages and disadvantages of various government
structures to provide public services. This section describes the potential fiscal impacts of development
within SOI areas, and the annexation of land. The section also identifies the potential implications of
possible boundary conflicts that could affect the governmental structure of the City and surrounding
agencies.
1.7.1 Development within SOI Areas
One of the most critical elements of LAFCO’s responsibilities is in setting logical service boundaries for
communities based on their capability to provide services to affected lands. Similar levels of public
participation can be expected for either City or County development projects in the planning and
development process for the SOI/UGB territories. It is possible that development in the SOI/UGB areas
that occurs under County control may not fully resolve impacts to the City, such as increased traffic on
City streets, and new groundwater wells to support County development impacting Visalia groundwater
aquifers and other analogous assumptions. It can also be assumed that the reverse is true; that
development controlled only by the City may leave impacts in the County unresolved in whole or in part.
The challenge of this planning effort is to coordinate shared infrastructure and improvements so as to
mitigate impacts on either side of the City/County limit boundary. Since the development of the
SOI/UGB territories generally relies on Master Planned infrastructure available from the City, it is logical
that the City assume the lead in planning for SOI/UGB properties, consistent with the City of Visalia
General Plan.
If the City were to be the lead planning agency for properties within the SOI/UGB, LAFCO could require
the City to bring coordinated plans for infrastructure forward to LAFCO at the time specific annexations
requests are submitted. This would provide a checks and balance system for incorporating new lands
within the City, and would render the remaining County lands a part of an integrated whole.
As previously noted, there are several unincorporated County islands lying within the City Limit
Boundary. The City currently has infrastructure constructed and/or planned in most County islands,
anticipating ultimate connection to City facilities. Annexation of these County islands into the City
would create a more defined City Limit boundary while meeting or exceeding the current levels of service
provided by the County. The City is currently working with Tulare County LAFCO to annex the County
islands into the City.
The City helps guide infrastructure improvements within SOI/UGB areas through the preparation of
Specific Plans, and Master Plans. A Specific Plan usually provides for a more detailed planning process
and covers development issues in a more comprehensive manner.
Tulare County LAFCO has adopted specific policies for reviewing proposals for a change in organization,
reorganization, incorporations, dissolution and other proposals processed by Tulare County LAFCO.
Tulare County LAFCO policy C-1 identifies factors and standards to be considered in review proposals
including additional requirements for City annexations, standards for annexation to special districts,
standards for the formation of special districts, and standards for City incorporation. Tulare County
LAFCO policy C-2 outlines general procedures for changes in boundaries or organization to be processed
by LAFCO. Generally, proposals for changes in boundaries, formations, or changes of organization can
be submitted for the consideration of LAFCO by petition of the registered voters or affected landowners;
however, prior to the circulation of any petition, a “Notice of Intent to Circulate” must be presented to the
LAFCO Executive Officer. A proposal may also be initiated by a resolution adopted by the governing
body of any related public body (county, city or special district). The proposal must be submitted on
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forms available from the LAFCO staff office, or on the LAFCO website, along with the applicable
number of maps, legal descriptions, and filing fees to cover the proposal submitted.
Tulare County LAFCO policies C-3 and C-4 outline specific criteria for petitions for change in
organization, and protest hearings, respectively. Tulare County LAFCO policy C-5 sets forth specific
criteria for establishing, and reviewing amendment proposals to, Spheres of Influence. Policy C-5
contains criteria regarding the following items: Existing boundaries, conflicting boundaries, initial
implementation, scheduled updates – Cities, scheduled updates – Special Districts, Exceptions, separation
of communities, municipal service reviews, and also contains an MSR exemption policy. SOI
amendments shall be processed in accordance with the policies and procedures set forth by Tulare County
LAFCO.
1.7.2 Boundary Conflicts
The City of Visalia governmental structure could be affected by the potential overlapping of boundaries
with the Goshen Community Services District (which provides sanitary sewer collection service in the
Goshen Community). Existing and potential boundary conflicts between the City of Visalia and the
Goshen Community Services District are illustrated on Figure 1-12.
As indicated on Figure 1-12, on the following page, the City’s SOI conflicts with the Goshen CSD SOI in
areas south of the SR 99/Goshen Avenue interchange, and along the western Goshen CSD SOI Boundary.
In addition, the Visalia UGB generally encompasses the entire area currently serviced by the Goshen
CSD. Although the Goshen CSD is not full service District, potential boundary conflicts could cause
public confusion with regard to sanitary sewer service in the area. The City of Visalia has a Wastewater
Service Agreement with the Goshen CSD, which sets forth specific criteria with regard to wastewater
collection and treatment services within the boundary of each agency.
The Wastewater Service Agreement between the Goshen CSD and the City of Visalia, which may only be
terminated upon the written consent of all parties, states the following with regard to sanitary sewer
service within the Goshen CSD Boundary.
“The City shall not contract, agree or otherwise create wastewater collection, treatment
and disposal service with any entity, corporation or individual which resides, does
business within or requests service of any parcel, building, street or property within the
boundary of the District. The City shall not renew any current contract with any entity,
corporation, industry or property for wastewater service within the District at expiration
thereof.”
The agreement does not appear to address wastewater collection services within the Goshen CSD SOI,
which in some areas overlaps with the City of Visalia SOI (refer to Figure 1-12). Boundary conflicts and
service provisions would ultimately be resolved between the City of Visalia, the Goshen CSD, and Tulare
County LAFCO.
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FIGURE 1-12 – CITY OF VISALIA & GOSHEN CSD BOUNDARY CONFLICTS
Source: Tulare County GIS Database
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1.7.3 Written Determinations
Development within SOI Areas
1. Since development of properties within the SOI/UGB generally relies on Master Planned
infrastructure available from the City, it is logical for the City to assume the lead in planning
for these sites, consistent with the City of Visalia General Plan.
2. The City has a sound governmental structure that provides necessary resources to provide
public services and infrastructure improvements within the SOI/UGB areas.
3. Annexation of County islands into the City would create a more defined City Limit boundary
while meeting or exceeding the current level of services provided by the County.
4. Coordinated infrastructure plans, for development within the SOI/UGB areas, submitted with
specific annexation requests would create a checks and balance system for incorporating
lands into the City while promoting improvements to impacted adjacent County land.
5. Tulare County LAFCO has adopted specific policies for reviewing proposals for a change in
organization, reorganization, incorporations, dissolution and other proposals processed by
Tulare County LAFCO, including annexations, and SOI amendment proposals.
Boundary Conflicts
1. The City of Visalia governmental structure could be affected by the potential overlapping of
boundaries with the Goshen Community Services District (which provides sanitary sewer
collection service in the Goshen Community).
2. The City of Visalia has a Wastewater Service Agreement with the Goshen CSD, which sets
forth specific criteria with regard to wastewater collection and treatment services within the
boundary of each agency.
3. The agreement does not appear to address wastewater collection services within the Goshen
CSD SOI, which in some areas overlaps with the City of Visalia SOI. Boundary conflicts
and service provisions would ultimately be resolved between the City of Visalia, the Goshen
CSD, and Tulare County LAFCO.
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1.8 EVALUATION OF MANAGEMENT EFFICIENCIES
The purpose of this section is to consider the management structure of the jurisdiction.
1.8.1 Organizational Structure
The following section discusses various operational and service aspects of the City of Visalia. Much of
the information was obtained from the City’s website at www.ci.visalia.ca.us. The website provides
detailed descriptions of the departments serving the residents of the City. Overall, a review of the
documentation reveals that the City is well run and organized in an efficient manner. The City’s budget
document is an excellent example of the efficient management methods used.
The budget for each department by function includes the following:
• Mission statement
• Comprehensive description of the services provided by each department function
• Details of allocated positions by department
• Fiscal summary for each department function including resources, operating expenses,
operations and maintenance expenses, and other expenses
• Accomplishments during the previous 2-year budget cycle
• Objectives for the next 2-year budget cycle
This information provides a history of performance and accountability and allows for a clear view of what
the City’s residents are getting for the fees and taxes they pay. This type of accountability provides for an
efficiently and effectively run organization. Corrections to programs can be made when needed and
services that are no longer required can be evaluated.
1.8.2 Government Structure
Visalia, a charter City, operates under the council-manager form of government. The City Council
appoints a City Manager that is trained and experienced in municipal operations. The City Manager, as
chief executive officer of the City, is responsible for various functions assigned by the City’s Charter and
the City Council. These include overseeing the implementation and administration of Council policy,
supervising the activities of all departments, enforcing City ordinances, preparing the operating and
capital improvement budgets, and other such duties and responsibilities as may be assigned by City
Council. The City Manager’s office has the responsibility to ensure the needs and concerns of the
community and the City organization are properly addressed to assure Visalia is a good place to live and
conduct business. To accomplish this, the City Manager’s office is involved in community, County,
regional, and State issues, as well as supporting and guiding the City organization. A summary of the
City’s departments and the various services they provide to residents is provided below.
Administration Department – The City’s administration department consists of the
following functions: City Council, Management, City Clerk, the Transit, Conservation,
Special Projects and Convention Center Divisions. City Council enacts ordinances and
resolutions, and approves the budget and City expenditures. In addition to its legislative
duties, the Council also appoints citizens to serve on Boards and commissions that
operate in an advisory capacity to the Council. The City Council also appoints a City
Manager and a City Attorney who serves as legal advisor to the Council and City
officials. Primary responsibilities of the City Clerks office include but are not limited to:
preparing agendas and maintaining minutes for regular and special City Council
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meetings; providing information and researching records for the public and staff;
maintaining the City’s official records; and conducting municipal elections. . The transit
division supervises public transportation and services without the use of local tax dollars.
The convention center division provides convention, banquet, meeting, exhibit hall
facilities, and theatre space to citizens, organizations, and entrepreneurs in order to
promote economic growth and provide entertainment and cultural opportunities to the
community. The conservation division is primarily responsible for water conservation
efforts and the Household Hazardous Waste collection operation.
Administrative Services – The Administrative Services Department is comprised of
Finance, Human Resources, Risk Management, Information Services. the Airport and the
Golf Course. Finance is primarily responsible for the City’s fiscal operations including
the planning, directing, monitoring and improving the City’s financial resources. The
information services function provides GIS, telephone, and computer/network services
for the City. Human resources and risk management manage the City’s support for its
employee resources including recruitment, employee benefits, employee evaluations and
problem resolution. The divisions also manage the City’s self-insured property, liability,
workers’ compensation and health plan. The Airport Division is responsible for all
aspects of planning, management and oversight of the day to day operation of the Visalia
Municipal Airport. Airport management also is responsible for managing the Valley
Oaks Golf Course management contract with CourseCo., Inc. Staff monitors all aspects
of the contract (finances, course conditions, customer satisfaction, etc.)
Community Development Department – The City’s community development
department consists of eight divisions including administration, planning, building
safety, code enforcement and revenue enforcement, redevelopment, economic
development, business tax and administrative services. The department is managed
under the direction of the Assistant City Manager who is charged with the responsibility
for development services of the City. The planning division is responsible for processing
development proposals, maintaining the General Plan, historic preservation, annexations,
and the site plan review process. The administrative services division issues building
permits, business tax, transportation and encroachment permits, collects VUSD fees, and
provides clerical support to multiple departments and divisions. The building safety
division inspects buildings under construction, reviews and approves plans for
construction, enforces the Uniform Building, Fire and Housing Codes, and inspects
substandard housing violations. The Code Enforcement Division investigates and
responds to complaints, code violations and neighborhood revitalization. The Economic
Development Division facilitates economic growth by assisting new businesses locating
in the City and working with existing employers to maintain and expand their facilities in
Visalia. The Redevelopment Agency manages four Redevelopment Districts, the City
Housing Program, and CDBG projects.
Parks & Recreation Department – The City’s Parks and Recreation Department
consists of parks, recreation, park planning, urban forestry, and park and building
maintenance.. The recreation division provides a variety of recreation opportunities for
all ages with programs for youth, adults, and older adults. The Recreation Division
works cooperatively with a number of not for profit agencies providing recreation
services to the community. The special projects division is responsible for park and open
space planning, development of trails and bike ways, and property acquisition. Staff
provides support to the Park and Recreation Commission and the Visalia Parks and
Recreation Foundation.
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Public Works Department – The City’s public works department has six major
divisions including administration, maintenance, street sweeping, wastewater, solid
waste, and fleet services. The department is managed by the Public Works Director. The
administration division provides clerical and customer service support for the department.
The maintenance division provides, street maintenance and special services districts. The
wastewater division is responsible for the treatment plant administration and operation,
and sanitary sewer maintenance. The solid waste division is responsible for the
collection, disposal, and recycling of residential and commercial solid waste. The fleet
services division maintains the City’s entire fleet of vehicles and equipment, performing
preventative maintenance to over four hundred City vehicles and pieces of equipment.
The engineering and transportation services divisions have five major functional areas
including administration, engineering services, engineering design, and traffic safety.
The engineering services division provides for the processing of the day to day public
work requests of the development community including review of final subdivision maps
and construction plans, inspecting subdivision improvements, checking parcel maps and
commercial development plans, and attending weekly Site Plan Review Committee
meetings. The engineering design division is responsible for the designing and
inspection of various City-sponsored projects to improve traffic circulation storm sewer
collection and disposal, and sanitary sewer collection. The division also keeps a variety
of City maps updated to reflect the growth and change occurring in the community. The
traffic safety division installs and maintains all traffic control devices such as traffic
signs, pavement markings, and City-owned parking lot signs and markings for City
streets. The division also coordinates the installation of street lighting and traffic signals.
Police Department – The City’s police department operates under two divisions and four
bureaus including administrative services, patrol, traffic, and investigations. The
administrative services bureau performs functions including fiscal matters, processing
reports, arrest warrants, and evidence; coordination of police fleet vehicles, and
dispatching services for police and fire. The patrol bureau provides highly visible 24-
hour uniformed patrol focusing on the preservation of public peace, crime prevention,
and protection of life and property. The traffic bureau provides traffic enforcement,
accident investigation, and safety education programs to promote safe vehicular and
pedestrian traffic in the community. The investigations bureau provides competent,
thorough follow-up investigation of adult and juvenile crimes committed in the City. The
property crimes unit, narcotics unit and the violent crimes unit operate within the
investigations bureau.
Fire and Emergency Management Department – The City’s fire and emergency
management department consists of six divisions including administrative/support
services, emergency services/operations, bureau of fire prevention, training, graffiti, and
hazardous materials response. The administrative/support services division performs
activities including financial coordination to ensure the effective and efficient use of the
department’s resources; productivity measurement; and coordination of the department’s
programs. The emergency services/operations division is responsible for protecting life
and property in emergency situations by providing effective fire, rescue, and emergency
medical protection. The division is also responsible for the City-wide Safety Program
and the City-wide Emergency/Disaster Preparedness Program, and overseeing the
activities of the Hazardous Materials Response Division. The fire prevention division
ensures the safety of life and property within the community by inspecting businesses for
potentially hazardous conditions, provides fire and life safety public education by
coordinating community relations/public education programs, conducts fire and arson
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investigation, and assists with coordination of fire code compliance on State-mandated
inspections and new development.
Based upon subsequent information provided by the City, the City recently reorganized some of its
departments. The former Community Development Department and Public Works Department has been
separated into two separate and distinct departments. Also, the management of the airport has been moved
to the Administrative Services Department, and management of the City Buildings and Park Maintenance
has been moved to the Community Services Department and management of the Convention Center,
Conservation and the Transit Divisions have been moved to Administration.
Figure 1-13 shows the revised organizational chart for the City.
1.8.3 Written Determinations
1. The City has an effective organizational structure that is readily available to respond to the
needs of the community.
2. There is no evidence indicating that the City’s current management structure would not be
able to assume services within the SOI/UGB areas, and/or continue to assist other agencies
through mutual aid agreements.
3. The City ensures that services can be efficiently provided in the SOI/UGB areas through the
preparation of master service plans that include funding mechanisms for infrastructure that
will ultimately serve the SOI/UGB areas.
4. As a part of the budget process, the City evaluates the accomplishments during the previous
budget cycle, and also outlines specific objectives for the following budget cycle. This is
done for each department at the division and/or bureau level.
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FIGURE 1-13 – CITY OF VISALIA ORGANIZATIONAL CHART
CITY OF VISALIA
CITY COUNCIL
COMMITTEES & CITY MANAGER/ CITY ATTORNEY
COMMISSIONS CITY CLERK
ASSISTANT
CITY MANAGER
General City Special Projects Legislation Organizational Employee/Employer
Administration Development Relations
ASSISTANT CITY MANAGER
COMMUNITY DEVELOPMENT
Building Safety Code Enforcement Economic Planning Redevelopment Special
Development Projects
ADMINISTRATIVE PUBLIC WORKS FIRE DEPUTY CITY CHIEF OF PARKS &
SERVICES DIRECTOR DIRECTOR CHIEF MANAGER POLICE RECREATION DIRECTOR
Finance Engineering Citywide Safety Program City Council Support Community Based Policing Park Design &
Audit Traffic Safety Fire Code Enforcement City Clerk Functions K-9 Construction
Accounting Fleet Maintenance Fire Investigations Convention Center Narcotics Recreation
Budget Solid Waste Fire Prevention Community Relations Reserves Waterway Acquisition
Fiscal Management Street Sweeping Fire Reserve Program Elections Special Enforcement Parks Maintenance
Human Resources Streets Maintenance Fire Suppression Records Management SWAT Recreation Programs
Information Services Waste Water Collection Graffiti Abatement Transit Traffic Senior Services
Purchasing Treatment Plant Hazardous Materials Conservation Violent Crimes Buildings
Real Estate Volunteers
Risk Management Youth Services
Treasury
Airport
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1.9 LOCAL ACCOUNTABILITY AND GOVERNANCE
The purpose of this section is to evaluate the accessibility and levels of public participation associated
with the agency’s decision-making processes.
1.9.1 Public Access and Information Methods
The governing body of Visalia is the City Council, which is elected in compliance with California
Election Laws. The City complies with the Brown Act Open-Meeting Law and provides the public with
opportunities to get information about City issues, including website and phone access, newsletters, and
bill inserts. The City publishes a regular newsletter entitled “Inside City Hall – Beyond the Headlines”
which is posted on their website.
Regular City Council meetings are held on the first and third Monday of each month at 7:00 p.m. in City
Hall Council Chambers located at 707 West Acequia Avenue, Visalia. The City posts all meeting
agendas including City Council Action agendas, City Council agendas, Planning Commission agendas,
Historic Preservation Advisory Committee agendas, and Site Plan Review agendas on their website as a
courtesy.
The City’s budget preparation process gives residents the opportunity to review the services the City is
providing, and the cost of those services. The budget includes a description of the accomplishments
during the previous budget cycle which clearly define the activities that were completed by each
department. This type of accountability helps the City to identify services that are operating efficiently
and areas where improvement may be needed within the organization.
The Citizens Advisory Committee (CAC) conducts annual public opinion surveys to establish the public’s
level of satisfaction with City services and to obtain feedback on timely issues. In 2003, 300 Visalia
citizens completed a telephone survey where they were asked a variety of questions ranging from their
perception of the quality of life in Visalia, to particular City services, to whether they had contact with a
public safety officer. Visalia’s overall quality of life was rated above average by 68% of those surveyed.
This is the same percentage that gave Visalia’s quality of life an above average rating in 2002, although
more, 28% gave their life style a very high rating. This is an enviable rating of which the City should be
proud. Those surveyed were asked to rate individual services and in 2003, of the 12 questions that could
be compared to previous years, ratings were up on all but two of the questions. Residents were more
satisfied in 2003 with everything except traffic and road maintenance.
When respondents were asked what City service they considered most essential besides police and fire,
road maintenance was again rated most essential with 44% saying it was most important with 43% rating
traffic signals and signs most important. As previously indicated ratings were down from previous years
on traffic and road maintenance, indicating that the City may need to further concentrate its efforts on
traffic and road maintenance to meet the needs/concerns of its residents.
The City also provides public outreach through conducting workshops on land use, County island
annexations, City developments, General Plan updates, Specific Plans, rate/fee adjustments, and tax
adjustments. An example of the City responding to the needs of the public includes the implementation
of Measure T, a recent sales tax increase to improve public safety (police and fire) within the City.
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1.9.2 Written Determinations
1. The City continues to make reasonable efforts to maintain public involvement regarding land
use and development projects in the community. The City accomplishes this through regular
City Council meetings, newsletters, and website postings.
2. The City maintains a comprehensive website, which provides a means to keep the public
informed on local events, current City projects, department budgets, recreational activities,
and other activities occurring in the City.
3. The City conducts public workshops to keep the public involved with local planning issues
including land use, housing, circulation, and other issues key to the development and growth
of Visalia.
4. The City’s budget preparation process gives residents the opportunity to review the services
the City is providing, and the cost of those services. This type of accountability helps the
City to identify services that are operating efficiently and areas where improvement may be
needed within the organization.
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