Public Facilities and Services Element Table of Contents

1.0 INTRODUCTION

1.1 PURPOSE

The Public Facilities and Services Element addresses seven types of public services most directly related to the physical development of the county. These include water, wastewater management, public education, parks and recreation, fire protection, solid waste management, and utilities.

This element's purpose is to assess the current status of these services in terms of system capacity and demand and to evaluate future capacity in relation to projected growth. Tables 3-3.16, 3-3.18 through 3-3.26, and 5-8 through 5-16 of the General Plan EIR present detailed information on the current status of and future demands for most services. This element is further intended to reduce uncertainty about service availability and cost and to integrate public service concerns into land use decision making. The element is designed to assure that public services are available when needed.

1.2 RELATIONSHIP TO OTHER ELEMENTS

The Land Use and Housing Elements contain the economic and population projections which are the basis for the assessment of public service needs. Highway and public transportation needs are included in the Circulation and Transit Element. Aviation facility needs are contained in the Air Transportation Element. The Public Safety Element addresses some wildland fire protection services.

1.3 SCOPE AND ORGANIZATION

This element describes the current status of the public services in terms of service capacity and demand in relation to projected growth. With the exception of wastewater management services, the evaluations are made by planning area. The Element is divided into three sections, two which describe public services and an implementation program.

2.0 WATER AND SEWER SERVICES

2.1 WATER SERVICES

An adequate water supply is essential if Sonoma County is to sustain economic growth and serve projected increases in employment and population. The main purpose of this section is to address water supply services provided by government agencies. Small, privately owned systems are also discussed because the county is often asked to take over failing systems.

Five agencies regulate water supply, distribution and quality in Sonoma County. The California Water Resources Control Board (WRCB) issues permits for the use of surface water. Two Regional Water Quality Control Boards (RWQCBs) enforce federal and state water quality standards for surface waters and groundwater. The California Department of Health Services (DOHS) approves, inspects and enforces federal and state water quality standards for water systems with 200 or more service connections.

The California Public Utilities Commission (PUC) regulates privately owned water companies. The Sonoma County Department of Public Health (DPH) approves, inspect and enforces federal and state water quality standards for water systems with 5-199 service connections.

LARGE WATER SYSTEMS. Large water systems (200+ service connections) serve six of the county's cities as well as the larger unincorporated communities. Their main source of water is the Russian River water system, operated by the Sonoma County Water Agency (SCWA). Most systems also have supplemental sources. As of 1986, the only large systems with significant supply, quality or operational problems were those serving Penngrove, Camp Meeker and Guerneville. Table 3-3.16 of the General Plan EIR summarizes information on these systems.

The Russian River water system stores runoff from rainfall in the Eel and Russian River watersheds in the Lake Mendocino and Lake Sonoma reservoirs. The Russian River serves as the first stage of the transmission system. Releases from the reservoirs into the river system are diverted for delivery through pumps and aqueducts. SWRCB permits control the amount of water which must remain in the basin for riparian habitats, agriculture and recreation.

Annual water diversions increased from 31,300 acre feet in 1980 to over 43,400 acre feet in 1985. As a result, the SCWA in 1986 requested and obtained an additional water allocation from the WRCB (Decision 1610). The WRCB found that the allocation of 75,000 acre feet was adequate to serve projected growth within the SCWA's service area through 2005. However, the following concerns remain:

(1)	urban population projections for 2005 cited in Decision 1610 are about 7,000 persons less than those in this plan.
(2)	Average annual rainfall rates were used in modeling future supply/demand, raising the concern that drought conditions could require some curtailment of domestic and agricultural water use in areas north of the Dry Creek/Russian River confluence.
(3)	SCWA analyses of 1980-87 water use trends show that use is growing at a faster rate than population growth.

Although the SWCA has indicated that the maximum sustained yield of the Lake Sonoma reservoir (about 110,000 acre feet per year) is adequate to serve projected growth through 2010, there is a need for better coordination of water demand and growth projections of the county and the cities served by the SCWA. Planning for greater use of groundwater should begin as soon as possible, in anticipation of post-2010 water needs.

These factors have implications for the SCWA's distribution system. With one exception, the completed system will have sufficient capacity to deliver its allocated 75,000 acre feet per year to its customers. Construction of a second aqueduct to serve the Sonoma Valley is under study. However, should the SCWA need to deliver more water, other distribution systems would need to be reviewed and possibly expanded. Long range facility needs of the SCWA are addressed in the agency's "Water Transmission Capital Expenditure Program."

SMALL WATER SYSTEMS. Small systems (199 or fewer connections) supply water to a wide variety of uses such as rural businesses, residences and schools, mobile home parks and small unincorporated communities. Most are owned by private companies or mutual companies. A few are owned by special districts. These systems have small revenue bases and relatively high per capita costs. They frequently are unable to finance major capital investments needed to replace aging facilities or accommodate growth. All but one of the forty small systems subject to moratoria on new service connections in 1984 were under private or mutual ownership. Table 3-3.15 of the General Plan EIR provides summary data on existing small water systems.

Most existing small water systems are not designed to accommodate substantial growth. Issues are how water supply, quality, and distribution problems can be resolved and how new small systems can avoid such problems. Planning for improvements occurs on a case-by-case basis as deficiencies in existing systems are discovered.

2.2 SEWER SERVICES

Untreated or improperly treated wastewater contains bacteria, viruses, chemicals and nutrients that can cause human diseases, kill or injure plants, animals and fish, and produce surface waters that are discolored or odorous. Since all wastewater is eventually returned to the environment, the public has a vital interest in assuring proper wastewater management.

Two agencies regulate wastewater systems. The Regional Water Quality Control Boards enforce clean water standards, issue permits for wastewater facilities, and develop and enforce wastewater discharge requirements. The DOHS provides technical assistance to RWQCBs in developing wastewater facilities and waste discharge requirements. Wastewater management services are provided by various types of agencies, including county service areas (CSAs), county sanitation districts (CSDs), municipal agencies, and independent sewer districts.

The estimates of future wastewater flows indicate only the approximate scale of needed improvements. Precise facility needs can vary considerably and are best addressed by detailed master facility plans.

Historically, federal and state Clean Water Act funds have been used to pay for the major share of the cost of treatment facilities. Since future funds are likely to be less available, local funding sources such as sewer connection fees will be needed.

Goal PF-1: Assure that water supply and wastewater management facilities are adequate to meet projected needs and are provided in a manner that preserves riparian habitats, supports water dependent resources, enhances recreational opportunities, and preserves and enhances water quality and the environment.

Objective PF-1.1: Plan for healthful water supplies and wastewater facilities adequate to serve the growth projected in the general plan.

Objective PF-1.2: Operate County water and wastewater facilities in compliance with applicable state and federal standards.

Objective PF-1.3: Help resolve water problems resulting from proliferation of small water systems.

Objective PF-1.4: Manage groundwater resources in order to avoid withdrawals which exceed the replenishment of affected groundwater basins.

The following policies, in addition to those in the Resource Conservation Element, shall be used to achieve these objectives:

PF-1a: Plan, design and construct sewer and water services in accordance with projected growth except as provided in policy LU-4d on page 36.

PF-1b: Prepare or encourage the preparation of master facilities plans for all water supply and wastewater management systems. Design and construct all facilities in accordance with the general plans of applicable jurisdictions. In the event that a master plan or subsequent monitoring fails to show adequate facilities or supplies for planned growth, consider moratoria on plan amendments, zoning changes, building permits, or other entitlements in order to protect services to existing residents. The minimum contents necessary for an adequate master plan are:
1) maps showing service area boundaries,
2) a forecast of growth,
3) projected service and facility needs,
4) estimated costs of and revenues for needed improvements,
5) system design parameters and assumptions.

PF-1c: Require as part of discretionary project applications within a water or sewer service area written certification that either existing services are available or needed improvements will be made prior to occupancy.

PF-1d: Avoid extension of sewer or water service outside of a sphere of influence or urban service area. Consider exceptions to this policy only:

1)	where necessary to resolve a public health hazard resulting from existing development, or
2)	where a substantial overriding public benefit authorized by policy OS-1c or OS-2c on pages 171 and 174 would result, unless LAFCO has adopted a "no annexation" policy.
3)	Water service only may be approved for a property which is located within a water district boundary in existence as of March 1989.

F-1e: Use the following guidelines for any exception allowed by PF-1d:

1)	the property must adjoin the urban service boundary, and where water service is requested, the property must be located within a water district boundary in existence as of March 1989.
2)	size facilities to serve development consistent with the general plan,
3)	include written certification that service capacity is available,
4)	give preference to out of service area agreements rather than annexations,
5)	require dedications of scenic easements to the extent allowed by law,
6)	ensure that any offered term of easement is coterminus with the duration of service.

PF-1f: Use water effectively and reduce water and wastewater system demand by:

1)	requiring water conserving design and equipment in new construction,
2)	encouraging water conserving landscaping and other conservation measures.
3)	encouraging retrofitting with water conserving devices,
4)	designing wastewater systems to minimize inflow and infiltration to the extent economically feasible.

PF-1g: Initiate a review of any water or sewer systems when they persistently fail to meet applicable standards. If necessary to assure that standards are met, the County may deny new development proposals or impose moratoria on building and other permits that would result in a substantial increase in demand and may impose strict monitoring requirements.

PF-1h: When considering formation of new water service agencies, favor systems owned and operated by a governmental entity over privately or mutually owned systems. Continue to authorize new privately or mutually owned systems only if system revenues and water supplies are adequate to serve existing and projected growth for the life of the system. Ensure this through agreements or other mechanisms setting aside funds for long term capital improvements and operation and maintenance costs.

PF-1i: Consider approval of new wastewater management systems in unincorporated areas only when it is necessary to resolve an existing public health hazard. Avoid new small wastewater treatment systems which serve multiple uses under separate ownership on separate parcels.

PF-1j: Monitor groundwater usage in order to prevent overdrafting of groundwater supplies.

PF-1k: Encourage pretreatment of commercial and industrial wastes prior to their connection to sewer systems.

PF-1l: Notwithstanding Policy LU-3c on page 35, and policies PF-1d, and PF-1e, above, the Forestville County Water District may annex a parcel which is not contiguous to its boundary provided that such parcel was previously a retail customer of the Sonoma County Water Agency.

3.0 OTHER PUBLIC SERVICES

3.1 PARK AND RECREATION SERVICES

Outdoor recreation contributes to the tourism economy, enhances the quality of life for county residents and visitors, and conserves unique natural and cultural resources. The various types of parklands found in Sonoma County are classified based upon the National Recreation and Parks Association (NRPA) category recommendations. Federal Recreation Areas and State Parks provide recreation opportunities intended to serve national or statewide populations. Regional parks provide opportunities for a broad range of recreational activities generally within a 30-60 minute drive from urban areas at a rate of 20 acres per 1,000 persons. Community parks are large enough to accommodate a variety of activities within a 30 minute drive of population centers at a rate of 2.5 acres per 1,000 persons. Neighborhood parks are smaller, multi-use facilities within one half mile of the population serviced. The standard is 2.5 acres per 1,000 persons.

Tables 3-3.18 through 3-3.26 and 5.8 through 5.16 of the General Plan EIR present detailed data on park and recreation services. Potential future state acquisitions total 1,600 acres. Proposed additions to the county regional park system (5,923 acres), would result in a ratio of about 19 acres per 1,000 population in 2005. The ratio is substantially higher when region serving state parks are included. Up to 290 acres of community and neighborhood parks are proposed, which would result in a ration of 5.7 acres per 1,000 population in unincorporated areas by year 2005.

3.2 PUBLIC EDUCATION SERVICES

Sonoma County has 41 school districts whose attendance areas are wholly contained within the county, and five districts which provide facilities outside of the county. Each district has its own revenue base, elected board, and administration. The Sonoma County Office of Education provides some administrative and business services to all districts.

As the county's population increases, the number of school age children also grows. During the 1970's, the rate of expansion of the school age population was slower than expected. In recent years, the rate has increased slightly. Countywide, the number of school age children is expected to increase by about 19,400 students between 1985 and 2005. The proportion attending private schools or being home educated is assumed to remain stable.

To assist in estimating the need for new school facilities, each school district provided an ideal average class size. Based upon these averages the countywide estimated need for new classrooms is 428 by 2005.

A major issue in planning for new facilities is the need for increased coordination between land use and facilities planning. Districts must be aware of the projected residential growth within their service area so that new school needs can be accurately forecast.

An important source of financing for new school facilities is the "school impact" fee on new residential construction. State law now authorizes local school districts to charge development fees for permanent facilities. However, funding will likely continue to be dependent on state sources. California law also enables a county to acquire new school sites by dedication as a condition of subdivision approval.

Existing school facilities and district owned vacant sites are shown on the land use plan maps. General locations are shown for new sites when there is a known need in an area.

3.3 FIRE PROTECTION SERVICES

Fire protection, emergency medical and rescue services are essential to the protection of life and property in Sonoma County. They are provided by four types of agencies. Eighteen fire protection districts provide services with revenues from property taxes. Nineteen volunteer companies provide local services in rural communities. Two County service areas (CSA) and a community services district (CSD) rely primarily upon volunteer staffs. The County contracts with various municipal and district fire agencies to provide backup services to volunteer companies. The County has established a Department of Fire Services to coordinate the 52 service agencies in the County. Tables 3-3.18 through 3-3.26 of the General Plan EIR include information on fire services.

Fire suppression services are highly dependent on paid call, part time and volunteer personnel. Although this dependency remains, the number of volunteer fire fighters has fallen off in recent years. While the county generally has been receiving acceptable levels of service, problems have resulted from the condition of existing equipment and matching the type of equipment and staff training to the type of fire.

Demand for increased fire suppression and emergency medical services will not be generated by housing, population or job growth alone. Increases in tourism, increases in level of service expectations, and changes in the population mix will also affect demand.

The Department of Fire Services (DFS) projects that the most pressing and costly needs involve manpower. It anticipates a shift from volunteer supported services to an even grater reliance on paid personnel. This shift will be accompanied by a trend from volunteer companies to formation of special districts.

The primary tasks with regard to fire services planning are to ensure that needed organizational changes occur in a timely and cost effective manner and to secure adequate revenue sources. Emergency medical services should also be evaluated, since growth in medical calls over the first half of the decade has consistently outpaced fire related emergencies.

3.4 SOLID WASTE MANAGEMENT SERVICES

State law requires cities and/or counties to prepare a Countywide Integrated Waste Management Plan (CoIWMP) to identify and reserve sites for solid waste facilities, and ensure that uses adjacent to or near solid waste facilities are compatible with those facilities. Sonoma County, in cooperation with the cities in the county, prepared a CoIWMP in 1994.

The CoIWMP is the principal planning document for solid waste management in the county. Solid waste management facilities located in unincorporated areas, including landfills and transfer stations, are designated in the Land Use Element. Issues pertaining to solid waste management include:

The CoIWMP contains goals, policies, and short, medium, and long range objectives, together with measures designed to guide solid waste management and disposal actions of the county and other applicable agencies. The Public Facilities Element is intended to complement the adopted policies of the CoIWMP.

3.5 PUBLIC UTILITIES

Certain public utilities, such as electricity, natural gas and telephone services, require transmission and maintenance facilities that may affect natural and scenic resources or neighborhood character.

The Land Use Element designates existing public utility facilities as Public/Quasi-Public land uses. The purpose of this element is to establish policies for the designation of needed new facilities and provide for the review of proposed facilities.

Goal PF-2: Assure that park and recreation, public education, fire suppression and emergency medical, and solid waste services, and public utility sites are available to the meet future needs of Sonoma County residents.

Objective PF-2.1: Provide an adequate supply and equitable geographic distribution of regional and local parks and recreation services, based on population projections.

Objective PF-2.2: Use the National Recreation and Parks Administration (NRPA) standards as the minimum standards for determining park needs.

Objective PF-2.3: Assist school districts in developing more precise estimates of population growth within their attendance areas.

Objective PF-2.4: Use estimates by school districts of new school site needs as the basis for applying school site designations on land use plan maps.

Objective PF-2.5: Promote cooperation among fire and emergency service agencies in the area of public education and awareness, especially in those areas isolated from emergency service providers either by distance or topography.

Objective PF-2.6: Integrate fire protection systems into new structures as a means of improving fire protection services through adoption of a county ordinance.

Objective PF-2.7: Encourage more effective use of existing fire protection services by emphasizing an integrated countywide response system.

Objective PF-2.8: Continue to coordinate fire protection services and planning with all other related agencies.

Objective PF-2.9: Use the County Integrated Waste Management Plan as the policy document for solid waste management in the county.

Objective PF-2.10: Locate and design public utility transmission, distribution, and maintenance facilities to minimize adverse effects on natural and scenic resources.

The following policies, in addition to those of the Open Space Element, shall be used to carry out the above objectives:

PF-2a: Plan, design, and construct park and recreation, fire and emergency medical, public education, and solid waste services and public utilities in accordance with projected growth, except as provided in policy LU-4d on page 36.

PF-2b: Work with the cities to provide park and recreation, public education, fire and emergency medical, and solid waste services, and public utilities. Use proposed annexations, redevelopment agreements, revenue sharing agreements, and the CEQA process as tools to ensure that incorporated development pay its fair share toward provision of these services.

PF-2c: Use the following standards for determination of park needs. Twenty acres of regional parks per 1,000 residents county wide and five acres of local and community parks per 1,000 residents in unincorporated areas. A portion of state parklands may be included to meet the standard for regional parks.

PF-2d: Provide community parks as needed in urban unincorporated areas until the area incorporates, is annexed, or another service-providing entity is established.

PF-2e: In the event that a proposed park or school site is designated on the land use or open space map, consider the designation as an applying to a general area rather than a particular parcel. Unless and until a particular site is acquired for public use development authorized by the land use plan may be approved.

PF-2f: Require dedication of land or in-lieu fees as a means of funding park and fire services and facilities.

PF-2g: Consider establishing a land acquisition reserve fund to purchase park or recreation lands in areas lacking adequate park facilities.

PF-2h: Consider user fees in County park areas where special facilities are available. Offer discounts to county residents.

PF-2i: Where there is an unmet need for local park facilities, encourage the formation of county service areas or other special districts to meet the need, if economically feasible.

PF-2j: Assist school districts in estimating the amount, rate and location of projected population growth within their attendance areas.

PF-2k: If a school district has established a need for interim facilities or obtaining sites for new schools, consider adopting an ordinance requiring the reservation or dedication of land, the payment of fees, or both, as a condition of approval of discretionary projects within that district as allowed by state law.

PF-2l: Coordinate issuance of building permits for new development within a school district which has adopted an ordinance pursuant to Government Code Section 65974.

PF-2m: Prepare a Fire Services Master Plan for urban and rural areas in cooperation with the cities, state, and other fire service agencies. The minimum contents necessary for an adequate master plan are:
1) a statement of objectives, policies and programs,
2) a forecast of growth,
3) projected fire and emergency medical service needs,
4) a level of service assessment.

PF-2n: Require prior to discretionary project approval written certification that fire and related services customarily provided to comparable uses are available or will be available prior to occupancy for projects within the service area of an applicable fire agency.

PF-2o: The Department of Fire Service shall review and comment on any proposed changes in the boundaries of areas of state and local responsibility for wildland fire protection and the service boundaries of local fire districts and volunteer companies.

PF-2p: Review projects on or near designated solid waste facilities sites for compatibility with such facilities.

PF-2q: Encourage application of sludge generated in Sonoma County to agricultural lands in the County. Consider sludge application projects as designated in the Land Use Element of the General Plan for purposes of compliance with Section 66796.41 of the Government Code if they meet all of the following criteria. In the event that one or more of the criteria are not met, a general plan amendment shall be required.

1)	The project's primary purpose is to enhance agricultural use. The rate of sludge application shall be designed to enhance existing agricultural operations or designed in conjunction with a detailed management plan for proposed agricultural use.
2)	The rate of sludge application shall not result in any future limitations on the potential agricultural use of the area of application.
3)	The project shall be subject to the approval of the applicable Regional Water Quality Control Board.
4)	A use permit and, if necessary, a solid waste facility permit, shall be obtained.
5)	A permit shall be obtained from the local solid waste enforcement agency (Public Health Department).
6)	The project and any permits approved for the project shall specifically provide that waste disposal is limited solely to the approved Sonoma County sludge source.
7)	The project shall include provisions for periodic review and evaluations of long term impacts on soils, water, and agricultural production.

Notwithstanding this policy, lime treated sludge from the Vallejo Sanitation District may be applied to Tubbs Island, a 2500 acre site. (APN 068-180-008, 004, 005, 006, 011, 013; 068-190-005, 007, 008, 013, 017)

PF-2r: In the event that sludge generated within the County is inadequate to address the agricultural demand for sludge, the County may consider general plan amendments for application of sludge generated outside of the County provided that all of the criteria set forth in policy PF-2q are met (disregarding "Sonoma County" in criterion #6) and that:

a)	The applicant can satisfy local public health officials that the method of production and content of the sludge will not be detrimental to public health.
b)	The applicant demonstrates that traffic and other impacts of the proposed project are no greater than impacts associated with sludge generated within the County.
c)	The applicant demonstrates that there are no alternative sources of sludge within the County.

Notwithstanding this policy, lime treated sludge from theVallejo Sanitation District may be applied to Tubbs Island, a 2500 acre site. (APN 068-180-008, 004, 005, 006, 011, 013; 068-190-005, 007, 008, 013, 017)

PF-2s:Public utility facilities other than transmission line corridors may be designated as "Public/Quasi-Public" on the land use map. Allow consideration of minor facilities in any land use category where they are compatible with neighborhood character and preservation of natural and scenic resources.

PF-2t: Review proposals for new transmission lines or acquisition of easements for new transmission lines for consistency with general plan policies. Request wherever feasible that such facilities not be located within areas designated as community separators or biotic resource areas. Give priority to use of existing utility corridors over new corridors.

PF-2u: Review proposals for public and private telecommunication facilities for consistency with general plan policies and adopted siting and design criteria. In order for a public telecommunication facility to be found consistent with this plan, it must meet the standards and siting and design criteria of the applicable zoning district.

PF-2v: Consider requiring the undergrounding of new electrical transmission and distribution lines where appropriate in designated open space areas and in selected urban areas. Where feasible and under the Public Utility Commission (PUC) rules, convert existing overhead lines to underground facilities in urban areas.

PF-2w: Encourage consolidation of multiple utility lines into common utility corridors wherever practicable.

PF-2x: Utilize development fees to require that new development pay for its share of needed infrastructure as identified in existing and future Capital Improvement Plans prepared by the county.

4.0 PUBLIC FACILITIES IMPLEMENTATION PROGRAM:

Public Services Program 1: Public Facility Master Plans.

Program Description: Prepare and submit for adoption master facilities plans for the Sonoma County Water Agency and all county wastewater management districts.

Public Services Program 2: Capital Improvements Program.

Program Description: Prepare and maintain annually updated five year plans and budget for facility improvements for the Sonoma County Water Agency and all county wastewater management districts, parks and other facilities.

Public Services Program 3: School Facility Planning Program.

Program Description: Provide maps, data and technical assistance, as resources permit, to school districts to assist in estimating the amount, rate and locations of projected population growth.

Public Services Program 4: Ordinances authorizing development fees and/or dedication of land for public facilities.

Program Description: Prepare ordinances enabling the county to require the payment of fees and/or the dedication of lands for public facilities as a condition of approval for development projects.

Public Services Program 5: Fire Service Master Plan.

Program Description: Prepare a fire services master plan.

Public Services Program 6: Radio Transmission Tower Siting and Design Criteria.

Program Description: Prepare specific criteria for the siting and design of radio, telephone or other communication or transmission towers for inclusion in the county's Design Review Manual.