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GROWTH WITHIN BOUNDS Report of the Commission on Local Governance for the 21St Century Cover Photograph STATE OF CALIFORNIA GROWTH WITHIN BOUNDS Report of the Commission on Local Governance for the 21st Century Cover photograph: Oak Park subdivision in Ventura County Permission granted by Richard Ross, Photographer All rights reserved Growth Within Bounds Planning California Governance for the 21st Century Report of the Commission on Local Governance for the 21st Century Susan Golding, Chair Ruben Barrales, Vice-Chair Jacqueline Bacharach Marian Bergeson Patricia Clarke Cody Cluff Michael Colantuono Robert Hunt Nicholas Petris Timothy Raney Carolyn Ratto William D. Ross John Schatz Larry Zarian January 2000 Commission on Local Governance for the 21st Century , • , - -- • -- • ... Gray Davis January 2000 Susan Golding Dear Governor Davis and Members of the California Legislature: Ruben Barrales In 1997, AB 1484, authored by Assemblyman Robert Hertzberg and enacted as Chapter 943, established the Commission on Local Governance for the 21st Century. In August 1998, the Commission held its first meeting in Sacramento. I was honored to be elected Jacki Bacharach Chair at that meeting. As our first order of business, plans were laid out and a timeline was Marian Bergeson adopted for completing a study on local governance in California. Patricia Clarke Cody Cluff The legislation directed the Commission to review current statutes and, where appropriate, Michael Colantuono recommend revisions to the laws that govern city, county, and special district boundary Robert Hunt changes. My fellow commissioners and I believe this task cannot be undertaken in isola- Nicholas Petris tion. Consequently, we also looked at general governance issues that need to be addressed Timothy Raney by the Legislature and Governor. Carolyn Ratto William Ross Over a period of 16 months, we held 25 days of public hearings throughout the state, heard John Schatz testimony from more than 160 individuals and groups, received over 100 recommendations, Larry Zarian and had nearly 90,000 visits to the commission’s website, www.cla2l.ca.gov. Based upon this extensive input and our deliberations on the information received, we are pleased to present the attached report and recommendations. The report concludes with a strategic plan for its implementation. We urge you to adopt all of the actions recommended. It is our goal that this report bring about reforms to governance in California and help make California government more accessible, responsive, and transparent to the people who support it and depend upon it. We thank you for this opportunity to serve the people of California. Sincerely, Susan Golding Chair iv Growth Within Bounds: Planning California Governance for the 21st Century Growth Within Bounds: Planning California Governance for the 21st Century v Commission Members Commission Staff Susan Golding, Chair Ben Williams Mayor, City of San Diego Executive Director San Diego Jolena Voorhis Ruben Barrales, Vice-Chair Assistant Executive Director President, Joint Venture Silicon Valley Dara Wheeler San Jose Associate Governmental Program Analyst Jacqueline Bacharach Owner, Jacki Bacharach and Associates Maria Delk Rancho Palos Verdes Staff Services Analyst Marian Bergeson Christine Sproul Member, State Board of Education Commission Counsel Newport Beach (Deputy Attorney General, Department of Justice) Patricia Clarke Nick Vogel Supervisor, Shasta County Board of Supervisors Student Assistant Anderson Bernetta K. Reade Cody Cluff Editor President, Entertainment Industry Development Corporation Bill McGuire Hollywood Graphic Designer Michael Colantuono (Office of Planning and Research) Attorney, Richards, Watson & Gershon Los Angeles Robert Hunt Attorney, Service Employees International Union, Local 347 Los Angeles Nicholas Petris Retired Legislator Oakland Timothy Raney Owner, Raney Planning & Management Mayor of Citrus Heights Carolyn Ratto Councilwoman, City of Turlock Turlock William D. Ross Attorney, Law Offices of William D. Ross Palo Alto John J. Schatz General Counsel, Santa Margarita Water District Rancho Santa Margarita Larry Zarian Radio Show Host Former Glendale City Councilman Glendale Herbert Boeckmann (resigned August 1999) President, Galpin Motors, Inc. Northridge vi Growth Within Bounds: Planning California Governance for the 21st Century Acknowledgments The Commission on Local Governance for the 21st Century would like to acknowledge and thank the many individuals whose contributions were so important to this report. Collectively, the Commission heard testimony from over 160 individuals represent- ing state and local government, businesses, non-profit organizations, and the public. The Commission appreciates the support of Assemblyman Robert Hertzberg, the author of the legislation that created the Commission, and Christopher Carlisle, Assemblyman Hertzberg’s Legislative Director. We appreciate the help and energy given by Mike Gotch, former Executive Director, and S.R. Jones, Executive Officer of California Local Agency Formation Commission (CALAFCO). Their contributions were essential to understanding LAFCOs statewide. LAFCO members and officers throughout the state graciously provided information about LAFCO operations and assistance with meeting logistics. At the risk of omitting an important contributor, special thanks is extended to: Jim Colangelo (Monterey), Dana Smith (Orange), George Spilliotis (Riverside), Jim Roddy (San Bernardino), Michael Ott and Shirley Anderson (San Diego), Autumn Arias (Santa Clara), Patrick McCormick (Santa Cruz), Julie Howard (Shasta), and Bob Braitman (Ventura). The following individuals were also instrumental in advising the Commission on local governance issues: Peter Detwiler, Chief Consultant, California State Senate Local Government Committee; Hugh Bower, former Consultant, Assembly Local Government Committee; Dan Carrigg, Legislative Representative, League of Cities; Pat Leary, Legislative Representative, California State Association of Counties; Catherine Smith, Executive Director, California Special Districts Association; and Robert Reeb, Legisla- tive Director, Association of California Water Agencies. Other individuals like: Fred Silva, Visiting Policy Analyst, Public Policy Institute of California; Nancy Lyons, Deputy Executive Director, Little Hoover Commission; Paul Antilla, Deputy Legislative Counsel, Office of Legislative Counsel; Pedro Reyes, Principal Program Budget Analyst, Department of Finance; Holly King, Agricultural Programs Manager, Great Valley Center; and Erik Vink, California Field Director, American Farmland Trust were of great assistance throughout the life of the Commission. Vital to the final production were Kathy Mitchell and Dave Dickey of the Office of State Publishing. An unsung hero, OPR graphic artist Bill McGuire, contributed long hours and Herculean efforts to complete the graphics and layout under intense time pressures. Perhaps most helpful to the Commission, were the real life experiences provided by the numerous LAFCO representatives, local government officials, and individual citizens who testified before the Commission. A complete list of all of the individuals can be found in Appendix B. Growth Within Bounds: Planning California Governance for the 21st Century vii Table of Contents Executive Summary ES-1 Chapter 1: Outlook for California: 2000, 2020, and Beyond 1 Chapter 2: Local Government in California 11 Chapter 3: LAFCO Reform 25 Chapter 4: Forming New Cities and Changing Municipal and District Boundaries 49 Chapter 5: Special Districts — Tailor-Made Government for Californians 69 Chapter 6: LAFCO and the Prevention of Sprawl 87 Chapter 7: Reform of Local Government 103 Chapter 8: Government Of the People, By the People, and For the People 117 Chapter 9: Implementing the Commission’s Vision 131 Appendices: Photograph and Graphic Reproduction Credits 135 References Consulted 136 Appendix A: Commissioner Biographies 141 Appendix B: Meeting Locations and Presenters 145 Appendix C: Detailed Recommendations and Draft Statutory Changes 149 Appendix D: Outline of Proposed Restructuring of Local Government Reorganization Act 171 Appendix E: Summaries of Local Agency Reorganization Bills Introduced Since 1963 173 Appendix F: Local Government Functions and Organization in Other States 195 Appendix G: Analysis of LAFCO Survey 203 Executive Summary Growth Within Bounds: California Governance in the 21st Century ES-1 Report of the Commission on Local Governance for the 21st Century Growth Growth Within Bounds: Within Planning California Governance for the 21st Century Bounds Executive Summary hroughout the world, California important first step towards managing and symbolizes success, achievement, and visualizing the future role of government. The T prosperity. We are the incubator of Commission’s report and recommendations many of today’s leading industries, including are intended to provide new tools to enable entertainment, aerospace, computer and California to cope with growth in a rational communications technology, and genetic manner, in part by making better use of the Faced with surging engineering. California has been the nation’s often invisible LAFCOs in each county. We growth, dynamic leading agricultural producer for five decades, have also worked to improve the procedural despite having only three percent of the framework outlined in the Local Government change, and greater nation’s farmland. The Golden State is the Reorganization Act which should assist diversity than the premier destination point worldwide for Californians in organizing more
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