CITY OF VACAVILLE PLANNING COMMISSION Agenda Item No. 9.B. 1) MEMO May 16, 2017 Staff Contact: Tyra Hays, AICP (707)

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1 CITY OF VACAVILLE PLANNING COMMISSION Agenda Item No. 9.B. 1) MEMO May 16, 2017 Staff Contact: Tyra Hays, AICP (707) TITLE: INFORMATION ON THE CITY OF VACAVILLE MUNICIPAL SERVICE REVIEW FOR THE COMPREHENSIVE SPHERE OF INFLUENCE UPDATE DISCUSSION: On May 8, 2017, the Solano Local Agency Formation Commission (LAFCO) reviewed the City s Municipal Service Review for the Comprehensive Sphere of Influence Update (MSR) and found it to be adequate and complete for the purpose of amending and approving the City s sphere of influence (SOI) update. At this same meeting, LAFCO approved the amendment and Update to the City s SOI. This action completes General Plan Action LU-A8.2, which directs the City to work with Solano County and LAFCO to update the SOI to include areas where the city intends to grow. Attachment 1 shows the approved SOI, established under the 2015 General Plan, in relation to the SOI established under the 1990 General Plan. LAFCO Resolutions and approving the MSR and SOI have been attached as Attachments 2 and 3, respectively. The SOI identifies the City s probable future city limit and service area. Factors considered in a SOI update focus on a city s existing and future land use, existing and future service needs and the capacity to meet those needs, and any relevant communities of interest. These factors are addressed in the MSR. The approved SOI includes areas identified as near term and long term annexation areas, as well as areas outside the City s Urban Growth Boundary that may only be annexed for agriculture, parks, open space, public facilities, or utility uses. Areas identified as near term annexations may apply for annexation into the City during the 5 year planning window of the City s MSR ( ). Long term annexation areas may be considered for inclusion as a near annexation with a subsequent MSR update, which is required every 5 years, or if reclassified as a near term annexation area with an approved amendment to the MSR. Near term annexation areas include: The approved Roberts Ranch Specific Plan Area A portion of proposed The Farm at Alamo Creek Specific Plan Area The unincorporated county island located at the intersection of Orchard Avenue and Fruitvale Road The Pierson Property along Interstate 80 at Cherry Glen Road An area along the east side of Leisure Town Road, between Maple and Poplar Roads Roberts Ranch Specific Plan Area With the adoption of the City s SOI, the approved Roberts Ranch Specific Plan project may formally be considered for annexation into the city. The applicants for Roberts Ranch have submitted an annexation application to LAFCO, and the public hearing for this item is scheduled for June 12, 2017.

2 Locke Paddon Colony Under the direction of the City Council after receiving public testimony from Locke Paddon Colony residents, the Locke Paddon Colony was not included in the City s SOI. The Locke Paddon Colony is not being considered for future annexation in the city. However, this area has been identified as an Area of Interest. An Area of Interest is an area beyond a city s SOI in which land use decisions or other governmental actions of one agency (i.e. Solano County) can directly or indirectly impact another agency (i.e. the City). Conclusion LAFCO s approval of the City s updated SOI implements the General Plan by expanding the SOI to include the East of Leisure Town Road and Northeast Growth Areas. The SOI identifies the City s probable future city limit and service area. Areas within the SOI can now be considered for near term or long term annexation. Attachments Attachment 1: City of Vacaville Sphere of Influence Map Attachment 2: LAFCO Resolution No (Municipal Service Review) Attachment 2: LAFCO Resolution No (Sphere of Influence)

3 Nut Tree Rd Boundaries Attachment 1: Sphere of Influence ± Urban Growth Boundary 1990 Existing Sphere of Influence 2015 Planned Sphere of Influence City Limits Sphere of Influence Expansion (approx. 898 acres) Farrell Rd W Monte Vista Av Merchant St Alamo Dr Browns Valley Pkwy Peabody Rd Allison Dr Harbison Dr Vaca Valley Pkwy E Mo n te Vista Av Burton Dr Ulatis Dr %&'( 505 Elmira Rd %&'( 80 North Village Pkwy Orange Dr Leisure Town Rd Hawkins Rd Kilkenny Rd Northeast Growth Area Locke Paddon Community East of Leisure Town Growth Area Pierson Property Alamo Dr Fry Rd Lagoon Valley Rd Foxboro Pkwy Miles Source: City of Vacaville

4 RESOLUTION NO RESOLUTION OF THE LOCAL AGENCY FORMATION COMMISSION OF SOLANO ADOPTING THE MUNICIPAL SERVICE REVIEW FOR THE CITY OF VACAVILLE LAFCO PROJECT # _ WHEREAS, pursuant to the Cortese/Knox/Hertzberg Local Government Reorganization Act, commencing with 56000, et seq. of the Government Code, specifically in accordance with 56430, requiring a review of municipal services of each local government agency whose jurisdictions are within Solano County; and WHEREAS, Solano LAFCO initiated and conducted a service review of the City of Vacaville and has prepared a comprehensive update and review of the municipal services of the City of Vacaville as of May 8, 2017; and WHEREAS, the Commission received the draft Municipal Service Review for the City of Vacaville, on April 10, 2017, circulated the draft for public review, and held a public meeting to consider the final Municipal Service Review for the City of Vacaville on May 8, 2017; and WHEREAS, at its meeting of May 8, 2017, the Solano Local Agency Formation Commission received and considered all written and oral testimony and comments related to the Municipal Service Review for the City of Vacaville, its findings and determinations, including the environmental determination; and, NOW, THEREFORE, BE IT HEREBY RESOLVED, DETERMINED AND ORDERED as follows: 1. The Municipal Services Review for the City of Vacaville is found to be exempt from the provisions of the California Environmental Quality Act (CEQA) pursuant to Public Resources Code Section and in that it is a descriptive and planning study for possible future action for which funding has not been committed. 2. The Municipal Services Review for the City of Vacaville is found to be adequate and complete pursuant to the requirements of Government Code Section and determinations regarding municipal services are approved as set forth and described in the attached Exhibit A and by this reference incorporated herein. 3. The Executive Officer is hereby directed to file a Notice of Exemption in compliance with the California Environmental Quality Act and local ordinances implementing the same.

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6 LAFCO Resolution No Exhibit A: Findings and Determinations 4: Growth and Population Projections 4.1 Vacaville s location, moderate home prices, supply of residentially-designated land, accessibility to job markets, and reputation as a family-friendly town are contribute to a higher-than-average residential growth rate. 4.2 Vacaville is forecasted to add 7,000 jobs between 2015 and General Plan Policies related to orderly and logical growth are compatible with Solano LAFCO policies. 4.4 Long-term annexation areas will not be annexed to the City within the 5- to 10-year planning period of the most current Municipal Service Review and Comprehensive Annexation Plan. 4.4 The City is capable of providing municipal services to the near term annexation areas within the planning horizon of this municipal service review. 4.5 The location and potential for future land use and/or development proposals in the unincorporated Locke Paddon Community have the potential to impact the City. This is an Area of Interest to the City of Vacaville and Solano County is encouraged to collaborate with the City when considering development and land use changes there. 5: Disadvantaged Unincorporated Communities 5.1 There are no known disadvantaged unincorporated communities adjacent to the City of Vacaville. 6: Present and Planned Capacity of Public Facilities 6.1 Animal Control Animal control services are adequately provided by the City of Vacaville through contracts with SPCA, a non-profit organization for animal control and shelter and Solano County for shelter services. 6.2 Fire Vacaville has a city dispatch center for emergency and non-emergency calls. Calls originating outside the City limits are transferred by city dispatch to the California

7 Highway Patrol dispatch center. Centralized dispatch services for the region will provide higher levels of service efficiency. The City is encouraged to participate in centralized dispatch for emergency services The City response time standard of 7 minutes 90 percent of the time. Response time has been maintained with growth. Detailed quantitative analysis at the time a project is proposed ensures adequacy of service prior to annexation As of April 1, 2017, Vacaville s ISO rating has been elevated from a rating of 3 to a rating of Vacaville Fire Protection District participates in automatic aid responses in designated areas and also participates in a Mutual Aid Plan with other fire departments in Solano County The city s SOI is currently served by five fire protection districts. When annexation occurs, Vacaville Fire Department is the service provider in annexing areas. Mitigation agreements are in place to offset the financial impacts to detaching districts. 6.3 Law Enforcement VPD has increased law enforcement staffing from the 2014 MSR (from 97 to 103). The current ratio of officers is 1.12 per 1,000 residents and is lower than the Federal Bureau of Investigations recommended national standard of two officers per 1,000 residents Staffing levels are 1 full-time sworn officer for every 855 residents, and 1 full-time non-sworn office for every 1,663 residents. This represents an increase in total number of officers per capita The adopted police response time standard is 6 minutes and 1 second. VPD is currently meeting the Priority I standard with an average response time of 6 minutes exactly. This is a better average response time than noted in the 2014 MSR (7.1 minutes for priority one calls) due to the increase of officers Vacaville has a city dispatch center for emergency and non-emergency calls. Calls originating outside the City limits are transferred by city dispatch to the California Highway Patrol dispatch center. Centralized dispatch services for the region will provide higher levels of service efficiency. The City is encouraged to participate in centralized dispatch for emergency services.

8 6.4 Parks and Recreation The City is currently deficient in meeting park service standards in the neighborhood and community parkland categories, but exceeds the standards for the regional and total parkland categories New residents resulting from growth will need additional parkland. To meet the City s parkland standards, an additional 91 acres of neighborhood parkland and 50 acres of community parkland will be needed Terms are negotiated for neighborhood parks in development agreements, however the City does not have a Quimby Act ordinance Accessible open space includes land owned by the City of Vacaville (or other nonprofit or public agency) that is publically accessible for limited recreational use and is maintained in a natural or non-intensive developed state Special purpose facilities and centers include buildings that house recreational programs and/or facilities and may or may not be located on properties owned by the City but operated by the Community Services Department and/or under contract to the Department for its programs City residents have preference for programs and services. Non-residents may register for City recreation programs and use of City facilities, however residents are given a one week priority registration period for City recreation programs, and nonresidents are charged a 15 percent non-resident fee. 6.5 Public Works There are no written road maintenance agreements but the city and county public works departments work together cooperatively on an informal basis in some places. Road maintenance agreements would be an effective mechanism to increase service efficiency where roadway segments are in the city then county, then back to city along the road length. The City and county public works departments are encouraged to collaboratively establish more orderly road maintenance service through the use of written agreements where possible As residential growth continues, integrated transit services will become a critical component in transporting individuals throughout Solano County and beyond. The City of Vacaville is encouraged to collaborate with other agencies to improve coordination of transit services.

9 6.5.3 Using the Metropolitan Transportation Commission s Pavement Management Program pavement condition index, as of April 2016, approximately 57.7% of the City s road network has a PCI of 70 or better Eight of 79 city intersections currently operate below the acceptable LOS threshold identified in the General Plan. A number of streets and interchange improvements are proposed with possible development time-frames ranging from 2016 to The City s Transportation System Management Ordinance has established requirements for employers to promote alternative commute modes. The city provides park and ride facilities with bus service and promotes alternative fuel vehicles. 6.6 Solid Waste The City contracts with Recology Vacaville Solano for solid waste pick-up and disposal. The Recology Hay Road facility has sufficient capacity to accommodate the current and future solid waste disposal needs of the City The City meets or exceeds the State-mandated waste diversion goals and has done so every year for the past decade Solano County and its incorporated cities have successfully diverted more solid waste from landfills than the State-mandated diversion rate of 50 percent each year. Based on recent solid waste generation trends, it can be expected that jurisdictions in Solano County will continue to meet diversion goals as the population grows in the future. 6.7 Stormwater The major stream courses, which flow through the City of Vacaville, are generally in their natural state and alignment. The natural portions of the creeks generally do not have adequate flow capacity to convey a 100-year storm event Several storm drains will experience flooding during the 10-year storm due to high water levels in the creeks which prevent the storm drains from performing as designed The Storm Drainage Master Plan analysis has identified existing drainage deficiencies and reaffirms the need for regional detention basins. The city is making progress, is pursuing grant finding and has purchased land for detention basins As of the date of this report, official analysis has not been completed for the heavy winter season. City drainage improvements appear effective, with only minor flooding of a few streets noted.

10 6.8 Wastewater The City of Vacaville provides water and/or sewer services to a limited number of identified properties located outside of city limits. These connections are believed to predate current state law pertaining to the extension of services outside city limits and the properties may not be appropriate for annexation The Easterly Wastewater Treatment Plant is permitted and designed for 15 MGD capacity. Current flows are 7.5 and capacity is sufficient for the 5 year planning horizon of this municipal service review The collection system is not reported by the city to have deficiencies. As part of the on-going management of the wastewater collection system, the City conducts flow monitoring and sanitary sewer system capacity evaluations. Approximately 20 percent of the system is inspected each year, so that over the course of each five-year period, the entire system is inspected In accordance with the NPDES regulations and requirements, on occasion system monitoring shows an incident or violation. Since the 2014 MSR, Easterly WWTP received eight incident reports and rectified them all. 6.9 Water The City of Vacaville provides water and/or sewer services to a limited number of identified properties located outside of city limits. These connections are believed to predate current state law pertaining to the extension of services outside city limits and the properties may not be appropriate for annexation The city uses a diversity of water sources (surface and ground water) and two water treatment plants that allow flexibility and ensure adequate water supply under various conditions The City will initiate a Recycled Water Master Plan Current demand and current water supply assessment confirm there is adequate water supply to meet current and projected future demand for water Vacaville and the City of Fairfield collaboratively use the North Bay Regional water treatment plant for mutual benefit In this report, the City notes potential groundwater issues related to other ground water basin users. The City is urged to collaborate with other agencies on the resolution of groundwater system management issues and facilitate regional cooperation among the parties.

11 7: Financial Ability to Provide Services 7.1 The City uses a variety of funding mechanisms and sources, maintains appropriate reserves, uses fund accounting, and demonstrates transparency in its financial transactions. The descriptive information provided to LAFCO is clear and understandable. 7.2 The City uses a budget procedure and competitive bidding process to ensure avoidance of unnecessary costs associated with obtaining outside services and capital improvements construction. 7.3 The City periodically reviews rates and fees related to each department as a part of the budget process to ensure that rates and user fees remain reasonable while providing adequate revenue to support and maintain the services for which they are charged. 7.4 The City Council has established a policy of maintaining an operating reserve in the General Fund equal to at least 15% of ongoing operating expenditures, or approximately 3 months of operating cash flow. The reserve is at 17.5% of operating expenses or approximately equal to four months of operating cash flow. 7.5 While the city has experienced shortfalls in past years and has used reserves to balance the budget, reserves are now at or above the desired levels. 7.6 City of Vacaville does not levy a utility user s tax and maintains a lower tax burden on its citizens than some other cities. 8: Status and Opportunities for Shared Facilities 8.1 To enhance service efficiency and delivery, the city participates in numerous cooperative agreements with other government entities. 8.2 Mutual aid and automatic aid agreements for fire protection and suppression are in place and help ensure coordination between the city fire department and other fire providers. If not already in practice, compatibility of physical firefighting systems (equipment, connections, fittings, etc.) and communications/radio devices are encouraged. 8.3 The Police Department has agreements with nearby law enforcement agencies to provide mutual aid.

12 8.4 The North Bay Regional Water Treatment Plant, which is located in Fairfield, provides potable water to the Cities of Fairfield and Vacaville. This plant is co-owned by both cities and is operated by the City of Fairfield. 8.5 Vacaville has a city dispatch center for emergency and non-emergency calls. The county has a centralized dispatch center and agreements with other agencies will be needed to improve dispatch coordination. Centralized dispatch services for the region will provide higher levels of service efficiency. The City is encouraged to participate in centralized dispatch for emergency services. 8.6 In this report, the City notes potential groundwater issues related to other ground water basin users. The City is urged to collaborate with other agencies on the resolution of groundwater system management issues and facilitate regional cooperation among the parties. 8.7 Cities, including Vacaville, cooperatively maintain open space and buffers. 8.8 The City and county public works departments are encouraged to collaboratively establish more orderly road maintenance service through the use of written agreements where possible. 8.9 As residential growth continues, integrated transit services will become a critical component in transporting individuals throughout Solano County and beyond. The City of Vacaville is encouraged to collaborate with other agencies to improve coordination of transit services. 9: Government Structure and Accountability 9.1 The City of Vacaville has a comprehensive program of public communication, accessibility, outreach and transparency across departments. 9.2 The government structure is orderly and consistent with the services provided.

13 RESOLUTION NO RESOLUTION OF THE LOCAL AGENCY FORMATION COMMISSION OF SOLANO COUNTY AMENDING AND UPDATING THE SPHERE OF INFLUENCE OF THE CITY OF VACAVILLE WHEREAS, pursuant to the Cortese/Knox/Hertzberg Local Government Reorganization Act, commencing with 56000, et seq. of the Government Code, and specifically in accordance with and the adopted Sphere of Influence (SOI) Policy of the Solano; and WHEREAS, a comprehensive municipal services review has been completed as of May 8, 2017 and is found by LAFCO to be adequate and complete for review and update of the city SOI; and WHEREAS, and the municipal service review describes and discloses the information required for the review and update of Sphere of Influence of the City of Vacaville; and WHEREAS, the update and amendment of the sphere of influence is initiated by the City of Vacaville pursuant to adopted Resolution , with changes as shown in the attached Map (Exhibit A); and WHEREAS, land under active Williamson Act contract, APN: , are included in the proposed sphere amendment area and designated by the City of Vacaville as part of its long term sphere of influence; and WHEREAS, the City of Vacaville acting as the lead agency under the California Environmental Quality Act prepared and certified the Final Environmental Impact Report (State Clearing House # for the General Plan Update, which discloses and addresses potential environmental impacts within the proposed sphere area, adopted a Statement of Overriding Considerations and approved a Mitigation Monitoring and Reporting Program in Resolution Aug 11, 2015 and filed a Notice of Determination; and, WHEREAS, at the times and in the form and manner required by law, Executive Officer has given notice of the hearing by this Commission, and WHEREAS, upon the date, time and place specified in said notice of hearing and in any order or orders containing such hearing, the Commission has received, heard, discussed and considered all oral and written testimony related to the sphere of influence, including but not limited to comments, objections, the Executive Officer s written and oral report and recommendation, the environmental documents and determination, and the municipal services review.

14 NOW, THEREFORE, BE IT HEREBY RESOLVED, DETERMINED AND ORDERED as follows: 1. Pursuant to Section of the CEQA Guidelines, LAFCO has considered the environmental documents adopted by City of Vacaville as the Lead Agency, which contain measures that fully mitigate all potential negative environmental impacts except for those impacts for which a Statement of Overriding Considerations has been made. LAFCO hereby adopts such mitigation measures and Statement of Overriding Considerations as approved by the Lead Agency and the Statement of Overriding Considerations, mitigations, mitigation monitoring plans and conditions of approval are made a part of this action. 2. The sphere of influence of the City of Vacaville is determined and approved as shown on the attached map marked "Exhibit A", and includes all territory within the City's boundaries. 3. Determinations with respect to the Sphere of Influence for the City of Vacaville are set forth and described in the attached "Exhibit B" and are incorporated herein by this reference. 4. Any roadway segments adjoining and contiguous with the sphere of influence line are included within the sphere amendment to allow subsequent annexation of the road s into the City of Vacaville. 5. The Executive Officer is hereby directed to file a Notice of Determination in compliance with the California Environmental Quality Act and local ordinances implementing the same. The foregoing resolution was duly passed and adopted by the Local Agency Formation Commission of the County of Solano at a regular meeting thereof, held on the 8th day of May, 2017, by the following vote: AYES: Len Augustine, Harry Price, Nancy Shopay, Jim Spering, and John Vasquez NOES: none ABSENT: Pete Sanchez ABSTAIN: none npaa'h~ Nancy Shopay,~- Presiding Officer Michelle Mcintyre, Commission C Solano Local Agency Formation Commission

15 Nut Tree Rd Figure 4.4-4: Annexation Areas Boundaries Orchard Ave at Fruitvale Rd 1 Urban Growth Boundary 2015 Planned Sphere of Influence Urban Service Area Boundary City Limits 2 Farrell Rd W Monte Vista Av Merchant St Alamo Dr Browns Valley Pkwy Peabody Rd Allison Dr Harbison Dr Vaca Valley Pkwy E Mo n te Vista Av Burton Dr Ulatis Dr %&'( 505 Elmira Rd %&'( 80 North Village Pkwy Orange Dr Leisure Town Rd Hawkins Rd 4 Locke Paddon Area of Interest Maple Rd at Leisure Town Rd Future Development at Leisure Town Rd and Hawkins Rd 5 ± Pierson Property Alamo Dr Brighton Landing City Detention Basin Lagoon Valley Rd Foxboro Pkwy Proposed Roberts' Ranch Residential Development 3 Near Term Annexation Areas Long Term Annexation Areas subject to subsequent MSR updates Source: City of Vacaville Miles Areas outside of Urban Growth Boundary subject to annexation under specific circumstances (See Section 4.5)

16 RESOLUTION NO EXHIBIT B - DETERMINATIONS RESOLUTION OF THE LOCAL AGENCY FORMATION COMMISSION OF SOLANO AMEDING AND APPROVING THE SPHERE OF INFLUENCE UPDATE OF THE CITY OF VACAVILLE 1. The present and planned land uses in the area, including agricultural and open space lands. The present and planned land uses within the area for the sphere of influence the City of Vacaville City are consistent with the city s land use vision as contained in the city s General Plan documents. Lands included within the sphere of influence are designated agriculture by Solano County and are expected to continue in agricultural uses until annexed. Lands designated open space and non-urban open space are, including greenbelt areas within the sphere, remain unchanged and are appropriately included in the city s sphere and will continue in open space use. The Commission recognizes that Williamson Act lands are included within the city s sphere of influence. Lands subject to active Williamson Act Contract, including APN: are added to the City s long term sphere of influence. The landowner does not object to the parcel being included within the long-term sphere. Including this territory to the sphere will facilitate planned, orderly, and efficient patterns of land use or provision of services, and the public interest in the change substantially outweighs the public interest in the current continuation of the contract beyond its current expiration date. The change is not likely to adversely affect the continuation of the contract beyond its current expiration date. Policies and implementation measures adopted by the city or county relative to the continuation of agriculture or other uses allowable under the contract will ensure the continuation of agriculture during the contract period 2. The present and probable need for public facilities services in the area. The municipal service review, the City s General Plan and related specific plans identify the likelihood of substantial growth in and around Vacaville in the coming 5-10 years and beyond. The sphere amendment will assist the City to maintain an adequate supply of developable residential land, including residential uses. Proposed and anticipated development will require municipal services from the City of Vacaville. 3. The present capacity of public facilities and adequacy of public services that the agency provides or is authorized to provide. The City has the capacity to provide services within the sphere of influence, including the proposed sphere amendment area.

17 4. The existence of any social or economic communities of interest in the area if the commission determines that they are relevant to the agency. Communities of social and economic interest include the Locke Paddon area, English Hills, Elmira, and Allendale are noted and not determined to be relevant to the sphere of influence. The sphere will not affect these communities. 5. For an update of a sphere of influence of a city or special district that provides public facilities or services related to sewers, municipal and industrial water, or structural fire protection, that occurs pursuant to subdivision (g) on or after July 1, 2012, the present and probable need for those public facilities and services of any disadvantaged unincorporated communities within the existing sphere of influence. The proposed unincorporated sphere area does not include, and is not contiguous to, disadvantaged unincorporated communities.