MARIN COUNTY LOCAL AGENCY FORMATION COMMISSION Regional Service Planning / Subdivision of the State of California COUNTYWIDE WATER SERVICE STUDY Municipal Service Review / Government Code Section 56430 Affected Governmental Agencies Bolinas Community Public Utility District Inverness Public Utility District Marin Municipal Water District Muir Beach Community Services District North Marin Water District - Novato and Point Reyes Station Stinson Beach County Water District Final Report / Pending Commission Action December 2015 Marin LAFCO Countywide Water Municipal Service Review December 2015 Blank for Photocopying Purposes TC‐2 | Page Marin LAFCO Countywide Water Municipal Service Review December 2015 TABLE OF CONTENTS SECTION PAGE CHAPTER ONE: INTRODUCTION 1.1 LOCAL AGENCY FORMATION COMMISSIONS (LAFCO) 1-1 A. AUTHORITY AND OBJECTIVES 1-1 B. REGULATORY RESPONSIBILITIES 1-1 C. PLANNING RESPONSIBILITIES 1-1 D. LAFCO COMPOSITION 1-5 E. PRESCRIPTIVE FUNDING 1-6 1.2 MARIN LAFCO 1-6 A. ADOPTED POLICIES AND PROCEDURES 1-6 B. COMMISSION ROSTER 1-6 C. CONTACT INFORMATION 1-7 CHAPTER TWO: EXECUTIVE SUMMARY 2.1 OVERVIEW 2-1 A. STUDY PURPOSE 2-1 B. KEY ASSUMPTIONS AND BENCHMARKS 2-1 C. STUDY ORGANIZATION 2-5 D. AFFECTED PUBLIC AGENCIES 2-5 E. STUDY REVIEW OPPORTUNITIES 2-5 2.2 STUDY SUMMARY 2-6 A. GENERAL CONCLUSIONS 2-6 B. RECOMMENDATIONS 2-11 2.3 WRITTEN DETERMINATIONS 2-13 A. GROWTH AND POPULATION PROJECTIONS 2-14 B. LOCATION/CHARACTERISTICS OF DISADVANTAGED COMMUNITIES 2-16 C. CAPACITY OF FACILITIES AND INFRASTRUCTURE NEEDS / DEFICIENCIES 2-17 D. AGENCIES’ FINANCIAL ABILITY TO PROVIDE SERVICES 2-25 E. STATUS AND OPPORTUNITIES FOR SHARED FACILITIES AND RESOURCES 2-28 F. LOCAL ACCOUNTABILITY AND GOVERNMENT RESTRUCTURE OPTIONS 2-29 H. MATTERS OF LOCAL INTEREST AS REQUIRED BY LOCAL POLICY 2-31 CHAPTER THREE: SERVICE CHARACTERISTICS 3.1 SERVICE AREAS 3-1 A. POPULATION TRENDS 3-1 B. RESIDENCY TYPES 3-3 C. RESIDENTIAL TRENDS 3-4 D. DEMOGRAPHICS / SOCIAL AND ECONOMIC FACTORS 3-6 E. JURISDICTIONAL BOUNDARIES 3-8 3.2 POTABLE WATER SYSTEMS 3-8 A. SUPPLIES 3-8 1.0 OVERALL / MAXIMUM CONDITIONS 3-9 2.0 AGENCY / MAXIMUM CONDITIONS 3-10 3.0 OVERALL / DROUGHT CONDITIONS 3-12 4.0 AGENCY / DROUGHT CONDITIONS 3-13 TC‐3 | Page Marin LAFCO Countywide Water Municipal Service Review December 2015 SECTION PAGE 5.0 MAXIMUM DAILY PER CAPITA ALLOWANCE AT BUILDOUT 3-17 B. DEMANDS 3-18 1.0 OVERALL DEMANDS / CURRENT PRODUCTION TRENDS 3-18 2.0 AGENCY DEMANDS / CURRENT PRODUCTION TRENDS 3-20 3.0 OVERALL DEMANDS / PROJECTIONS NEXT 10 YEARS 3-27 4.0 AGENCY DEMANDS / PROJECTIONS NEXT 10 YEARS 3-28 C. TREATMENT AND STORAGE FACILITIES 3-34 1.0 TREATMENT FACILITIES 3-34 2.0 STORAGE FACILITIES 3-35 D. INFRASTRUCTURE CAPACITY TO DEMAND RATIOS 3-36 1.0 SUPPLY CAPACITIES TO DEMANDS 3-36 2.0 TREATMENT CAPACITIES TO DEMANDS 3-42 3.0 SUPPLY CAPACITIES TO DEMANDS 3-46 3.3 FINANCIAL 3-50 A. DIRECT COSTS TO CUSTOMERS 3-50 B. AGENCY STANDING 3-54 1.0 NET ASSETS / UNRESTRICTED FUND BALANCES 3-54 2.0 LIQUIDITY, CAPITAL, AND PROFITABILITY 3-57 3.0 PENSION OBLIGATIONS 3-62 CHAPTER FOUR: AGENCY PROFILES 3.1 WEST MARIN AGENCIES 4-1 A. BOLINAS COMMUNITY PUBLIC UTILITY DISTRICT 4-1 1.0 OVERVIEW 4-1 2.0 BACKGROUND 4-2 … 2.1 COMMUNITY DEVELOPMENT 4-2 … 2.2 FORMATION PROCEEDINGS 4-3 … 2.3 POST-FORMATION ACTIVITIES AND EVENTS 4-4 … 2.4 PREVIOUS MUNICIPAL SERVICE REVIEW 4-5 3.0 COMMISSION BOUNDARIES / SERVICE AREAS 4-5 … 3.1 JURISDICTIONAL BOUNDARY 4-5 … 3.2 BOUNDARY TRENDS 4-6 … 3.3 SPHERE OF INFLUENCE 4-6 … 3.4 OUTSIDE SERVICES 4-7 … 3.5 AGENCY MAP 4-7 4.0 DEMOGRAPHICS 4-7 … 4.1 POPULATION ESTIMATES 4-7 … 4.2 RESIDENCY TYPE 4-8 … 4.3 SOCIAL AND ECONOMIC INDICATORS 4-9 5.0 ORGANIZATIONAL STRUCTURE 4-9 … 5.1 GOVERNANCE 4-9 … 5.2 ADMINISTRATION 4-11 6.0 POTABLE WATER SERVICES 4-11 … 6.1 SERVICE OVERVIEW 4-11 … 6.2 SUPPLIES 4-12 … 6.3 TREATMENT 4-15 TC‐4 | Page Marin LAFCO Countywide Water Municipal Service Review December 2015 SECTION PAGE … 6.4 WATER QUALITY 4-15 … 6.5 DISTRIBUTION AND STORAGE 4-16 … 6.6 SERVICE CONNECTIONS 4-16 … 6.7 DEMANDS 4-17 … 6.8 INFRASTRUCTURE CAPACITIES TO DEMANDS 4-18 … 6.9 CHARGES AND FEES 4-20 7.0 AGENCY FINANCES 4-21 … 7.1 FINANCIAL STATEMENTS 4-21 … 7.2 LIQUIDITY, CAPITAL, AND MARGIN 4-23 … 7.3 PENSION OBLIGATIONS 4-23 … 7.4 REVENUE AND EXPENSE TRENDS 4-25 B. INVERNESS PUBLIC UTILITY DISTRICT 4-27 1.0 OVERVIEW 4-27 2.0 BACKGROUND 4-28 … 2.1 COMMUNITY DEVELOPMENT 4-28 … 2.2 FORMATION PROCEEDINGS 4-29 … 2.3 POST-FORMATION ACTIVITIES AND EVENTS 4-29 … 2.4 PREVIOUS MUNICIPAL SERVICE REVIEW 4-31 3.0 COMMISSION BOUNDARIES / SERVICE AREAS 4-31 … 3.1 JURISDICTIONAL BOUNDARY 4-31 … 3.2 BOUNDARY TRENDS 4-32 … 3.3 SPHERE OF INFLUENCE 4-32 … 3.4 OUTSIDE SERVICES 4-32 … 3.5 AGENCY MAP 4-33 4.0 DEMOGRAPHICS 4-33 … 4.1 POPULATION ESTIMATES 4-33 … 4.2 RESIDENCY TYPE 4-34 … 4.3 SOCIAL AND ECONOMIC INDICATORS 4-34 5.0 ORGANIZATIONAL STRUCTURE 4-35 … 5.1 GOVERNANCE 4-35 … 5.2 ADMINISTRATION 4-36 6.0 POTABLE WATER SERVICES 4-37 … 6.1 SERVICE OVERVIEW 4-37 … 6.2 SUPPLIES 4-38 … 6.3 TREATMENT 4-41 … 6.4 WATER QUALITY 4-42 … 6.5 DISTRIBUTION AND STORAGE 4-42 … 6.6 SERVICE CONNECTIONS 4-43 … 6.7 DEMANDS 4-43 … 6.8 INFRASTRUCTURE CAPACITIES TO DEMANDS 4-45 … 6.9 CHARGES AND FEES 4-47 7.0 AGENCY FINANCES 4-48 … 7.1 FINANCIAL STATEMENTS 4-48 … 7.2 LIQUIDITY, CAPITAL, AND MARGIN 4-49 … 7.3 PENSION OBLIGATIONS 4-50 … 7.4 REVENUE AND EXPENSE TRENDS 4-52 TC‐5 | Page Marin LAFCO Countywide Water Municipal Service Review December 2015 SECTION PAGE C. MUIR BEACH COMMUNITY SERVICES DISTRICT 4-53 1.0 OVERVIEW 4-53 2.0 BACKGROUND 4-54 … 2.1 COMMUNITY DEVELOPMENT 4-54 … 2.2 FORMATION PROCEEDINGS 4-55 … 2.3 POST-FORMATION ACTIVITIES AND EVENTS 4-56 … 2.4 PREVIOUS MUNICIPAL SERVICE REVIEW 4-58 3.0 COMMISSION BOUNDARIES / SERVICE AREAS 4-58 … 3.1 JURISDICTIONAL BOUNDARY 4-58 … 3.2 BOUNDARY TRENDS 4-59 … 3.3 SPHERE OF INFLUENCE 4-59 … 3.4 OUTSIDE SERVICES 4-59 … 3.5 AGENCY MAP 4-60 4.0 DEMOGRAPHICS 4-60 … 4.1 POPULATION ESTIMATES 4-60 … 4.2 RESIDENCY TYPE 4-61 … 4.3 SOCIAL AND ECONOMIC INDICATORS 4-62 5.0 ORGANIZATIONAL STRUCTURE 4-62 … 5.1 GOVERNANCE 4-62 … 5.2 ADMINISTRATION 4-64 6.0 POTABLE WATER SERVICES 4-64 … 6.1 SERVICE OVERVIEW 4-64 … 6.2 SUPPLIES 4-65 … 6.3 TREATMENT 4-68 … 6.4 WATER QUALITY 4-69 … 6.5 DISTRIBUTION AND STORAGE 4-69 … 6.6 SERVICE CONNECTIONS 4-70 … 6.7 DEMANDS 4-70 … 6.8 INFRASTRUCTURE CAPACITIES TO DEMANDS 4-72 … 6.9 CHARGES AND FEES 4-74 7.0 AGENCY FINANCES 4-75 … 7.1 FINANCIAL STATEMENTS 4-75 … 7.2 LIQUIDITY, CAPITAL, AND MARGIN 4-77 … 7.3 PENSION OBLIGATIONS 4-77 … 7.4 REVENUE AND EXPENSE TRENDS 4-77 D. STINSON BEACH COUNTY WATER DISTRICT 4-79 1.0 OVERVIEW 4-79 2.0 BACKGROUND 4-80 … 2.1 COMMUNITY DEVELOPMENT 4-80 … 2.2 FORMATION PROCEEDINGS 4-81 … 2.3 POST-FORMATION ACTIVITIES AND EVENTS 4-82 … 2.4 PREVIOUS MUNICIPAL SERVICE REVIEW 4-83 3.0 COMMISSION BOUNDARIES / SERVICE AREAS 4-84 … 3.1 JURISDICTIONAL BOUNDARY 4-84 … 3.2 BOUNDARY TRENDS 4-84 … 3.3 SPHERE OF INFLUENCE 4-85 … 3.4 OUTSIDE SERVICES 4-85 TC‐6 | Page Marin LAFCO Countywide Water Municipal Service Review December 2015 SECTION PAGE … 3.5 AGENCY MAP 4-85 4.0 DEMOGRAPHICS 4-86 … 4.1 POPULATION ESTIMATES 4-86 … 4.2 RESIDENCY TYPE 4-87 … 4.3 SOCIAL AND ECONOMIC INDICATORS 4-87 5.0 ORGANIZATIONAL STRUCTURE 4-88 … 5.1 GOVERNANCE 4-88 … 5.2 ADMINISTRATION 4-89 6.0 POTABLE WATER SERVICES 4-89 … 6.1 SERVICE OVERVIEW 4-89 … 6.2 SUPPLIES 4-90 … 6.3 TREATMENT 4-94 … 6.4 WATER QUALITY 4-95 … 6.5 DISTRIBUTION AND STORAGE 4-95 … 6.6 SERVICE CONNECTIONS 4-96 … 6.7 DEMANDS 4-96 … 6.8 INFRASTRUCTURE CAPACITIES TO DEMANDS 4-98 … 6.9 CHARGES AND FEES 4-100 7.0 AGENCY FINANCES 4-101 … 7.1 FINANCIAL STATEMENTS 4-101 … 7.2 LIQUIDITY, CAPITAL, AND MARGIN 4-102 … 7.3 PENSION OBLIGATIONS 4-103 … 7.4 REVENUE AND EXPENSE TRENDS 4-105 3.2 EAST MARIN AGENCIES 4-107 A. MARIN MUNICIPAL WATER DISTRICT 4-107 1.0 OVERVIEW 4-107 2.0 BACKGROUND 4-108 … 2.1 COMMUNITY DEVELOPMENT 4-108 … 2.2 FORMATION PROCEEDINGS 4-110 … 2.3 POST-FORMATION ACTIVITIES AND EVENTS 4-110 … 2.4 PREVIOUS MUNICIPAL SERVICE REVIEW 4-112 3.0 COMMISSION BOUNDARIES / SERVICE AREAS 4-113 … 3.1 JURISDICTIONAL BOUNDARY 4-113 … 3.2 BOUNDARY TRENDS 4-114 … 3.3 SPHERE OF INFLUENCE 4-114 … 3.4 OUTSIDE SERVICES 4-114 … 3.5 AGENCY MAP 4-115 4.0 DEMOGRAPHICS 4-115 … 4.1 POPULATION ESTIMATES 4-115 … 4.2 RESIDENCY TYPE 4-116 … 4.3 SOCIAL AND ECONOMIC INDICATORS 4-117 5.0 ORGANIZATIONAL STRUCTURE 4-118 … 5.1 GOVERNANCE 4-118 … 5.2 ADMINISTRATION 4-119 6.0 POTABLE WATER SERVICES 4-119 … 6.1 SERVICE OVERVIEW 4-119 TC‐7 | Page Marin LAFCO Countywide Water Municipal Service Review December 2015 SECTION PAGE … 6.2 SUPPLIES 4-120 … 6.3 TREATMENT 4-126 … 6.4 WATER QUALITY 4-128 … 6.5 DISTRIBUTION AND STORAGE 4-128 … 6.6 SERVICE CONNECTIONS 4-130 … 6.7 DEMANDS 4-130 … 6.8 INFRASTRUCTURE CAPACITIES TO DEMANDS 4-132 … 6.9 CHARGES AND FEES 4-134 7.0 AGENCY FINANCES 4-135 … 7.1 FINANCIAL STATEMENTS 4-135 … 7.2 LIQUIDITY, CAPITAL, AND MARGIN 4-137 … 7.3 PENSION OBLIGATIONS 4-137 … 7.4 REVENUE AND EXPENSE TRENDS 4-139 B.