Agenda packet — Vacaville City Council, September 22, 2026 (part 1 of 2)

City of Vacaville Agenda for the City Council,
Successor Agency to the Redevelopment Agency, Housing Authority, Groundwater Sustainability Agency and Public Financing Authority Tuesday, September 22, 2026
Regular Meeting: 06:00 PM
Vacaville City Hall Council Chamber
650 Merchant Street
Entrance to the council Chamber is located
in the parking area off of Walnut Avenue
___________________________________________________________________________ City Council In-Person and Virtual Meeting
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1. Closed Session - None
Pursuant to California Government Code Section 54950, et seq.

Roll Call for the Regular Meeting - 6:00 pm
Mayor/Chair John Carli
Vice Mayor/Vice-Chair Michael Silva, District 3
Council/Agency/Authority Member Roy Stockton, District 1 Council/Agency/Authority Member Greg Ritchie, District 2 Council/Agency/Authority Member Sarah Chapman, District 4 Council/Agency/Authority Member Ted Fremouw, District 5 Council/Agency/Authority Member Jeanette Wylie, District 6 Moment of Silence followed by the Pledge of Allegiance
Report out of Closed Session - None
Approval of Agenda
Reports of the City Council
Update on Recent Attended Boards, Commissions, and Committee Meetings Reports of City Manager
Presentations
Proclamation for Public Works Director Brian Oxley in Honor of His Retirement Consent Calendar
Items on the Consent Calendar are routine business items that require no discussion and are acted upon in one motion. However, any item on the Consent Calendar can be removed and discussed separately upon request.

Resolution to Accept Public Improvements for the Villages at Vanden Meadows Unit 1B Subdivision
(Staff Contact: Jacob Smith, Engineering Manager (707) 449-5429) Individual Action: By simple motion, adopt the subject resolution.

Fiscal Impact:

Amount Requested: There are no funds requested for this item.

Funding Source: Public Works - Land Development Inspection (2028) Budget Distribution: The budget for any expenses related to this item is included in the Public Works - Land Development Inspection annual operating budget.

Strategic Plan Goal:

Quality of Life
Public Safety and Infrastructure
Subject to Levine Act: Yes
Resolution to Authorize the City Manager or Designee to File an Application with the

2. 3.

4. 5.

6. 6.a

7. 8.

8.a

9. 9.a

9.b
Tuesday, September 22, 2026
Metropolitan Transportation Commission for the Allocation of Transportation Development Act Funds for Fiscal Year 2026-2027 in the Amount of $7,968,826 for Vacaville City Coach Transit Operations and Capital Projects (Staff Contact: Lori DaMassa, Transit Manager (707) 469-6575) Individual Action: By simple motion, adopt the subject resolution.

Fiscal Impact:

Amount Requested: $7,968,826
Funding Source: Transit Operating Funds (5201-5205.4611) and Transportation Development (4004) Funds
Budget Distribution: The budget related to Public Works Transit annual operating funds are included in the current Citywide annual operating budget (5201.4611-5205.4611). Furthermore, any approved TDA Capital (4004) projects will be amended in the City's annual Capital Improvement Program budget at a future date.

Strategic Plan Goal:

Fiscal Health
Public Safety and Infrastructure
Subject to Levine Act: No
Resolution to Amend the Fiscal Year 2026-27 Capital Improvement Program Budget in the amount of $5,817,320; Award the Butcher Road Reservoirs #1 and #2 Rehabilitation Project to the Lowest Responsive Bidder, Koch & Koch, Inc, and Authorize the Director of Utilities to Execute the Contract in the Amount of $4,561,200
(Staff Contact: Timothy Hawkins, Assistant Director of Utilities (707) 469-6412) Individual Action: By simple motion, adopt the subject resolution.

Fiscal Impact:

Amount Requested: $5,817,320
Funding Source: This project is funded by Water - Facilities Rehab (5102).

Budget Distribution: If approved by Council, the CIP budget will be amended by $5,817,320 and the budget for project #860128 - Butcher 1 & 2 Reservoir Improvements will be increased. The costs of staff time associated with this item are covered within the existing Utilities project budget.

Strategic Plan Goal:

Public Safety and Infrastructure
Subject to Levine Act: No
Resolution Supporting the Association of California Water Agencies’ (ACWA) Vision for Our Water Future Initiative and Authorize City Staff to Communicate the City’s Support for the Initiative
(Staff Contact: Justen Cole, Director of Utilities (707) 469-6404) Individual Action: By simple motion, adopt the subject resolution.

Fiscal Impact:

Amount Requested: There are no funds requested for this item.

Funding Source: Water Operations (5101)
Budget Distribution: The costs of staff time associated with this item are covered within the existing Utilities Department operating budget.

Strategic Plan Goal: Public Safety and Infrastructure

9.c

9.d
Tuesday, September 22, 2026
Subject to Levine Act: No
Resolution to Initiate Proceedings, Providing Intention to Levy Assessments, Preliminarily Approving Engineer's Report, and Providing Notice of Hearing for the Annexation of the Harmony Village Property into the Trower Neighborhood Park Assessment District No. 10, Villages on Vine Street Setback Landscaping Assessment District No. 107, And Villages on Vine Street Lighting Assessment District No. 108
(Staff Contact: Chris Gioia, Public Works Engineering Manager (707) 449-5160) Individual Action: By simple motion, adopt the subject resolution.

Fiscal Impact:

Amount Requested: There are no funds requested for this item.

Funding Source: Public Works - Development Engineering (2028) Budget Distribution: The budget for any expenses related to this item is included in the Public Works - Development Engineering annual operating budget.

Strategic Plan Goal:

Fiscal Health
Quality of Life
Subject to Levine Act: Yes
Resolution Accepting the Grant and Appropriating Funds Related to the State of California Office of Traffic Safety Through the National Highway Traffic Safety Administration Regional Crash Response and Extrication improvement Program and Authorizing the Implementation of the Grant Objectives; and Approval of a Budget Adjustment to the 2026-27 Fiscal Year Operating Budget in the Amount of $60,000 (Staff Contact: Ryan Purnell, Deputy Fire Chief (707) 449-4285) Individual Action: By simple motion, adopt the subject resolution.

Fiscal Impact:

Amount Requested: There is no matching requirement associated with this grant; therefore, there are no funds requested for this item.

Funding Source: California Office of Traffic Safety (OTS) through the Regional Crash Response and Extrication Improvement Program grant
Budget Distribution: If approved by Council, the Fire Department's FY 2026-27 operating budget will be amended to include a new special revenue fund to track related expenditures and revenues.

Strategic Plan Goal: Public Safety and Infrastructure
Subject to Levine Act: No
Resolution Approving the acceptance and Appropriation of State of California Office of Traffic Safety Selective Traffic Enforcement Program Fiscal Year 2026-27 Grant Funding for Traffic Safety Enforcement and Training; and approval of a budget adjustment to the 2026-27 fiscal year operating budget in the amount of $102,400 (Staff Contact: Rob Meyers, Police Lieutenant (707) 469-4769) Individual Action: By simple motion, adopt the subject resolution.

Fiscal Impact:

Amount Requested: $102,400

9.e

9.f

9.g
Tuesday, September 22, 2026
Funding Source: Police Department's OTS STEP Grant (2056). The grant funding is provided by the California Office of Traffic Safety (OTS) through the Selective Traffic Enforcement Program (STEP) grant.

Budget Distribution: If approved by Council, the Police Department's FY 2026-2027 operating budget will be amended by $102,400, with the related revenues and expenditures tracked in an existing special revenue fund.

Strategic Plan Goal: Public Safety and Infrastructure
Subject to Levine Act: No
Approval of Minutes – Approve the Minutes for the Meeting of September 8, 2026 (Staff Contact: Michelle Thornbrugh, City Clerk (707) 449-5100) Individual Action: By simple motion, approve the minutes.

Fiscal Impact:

Amount Requested: There are no funds requested for this item.

Funding Source: Not applicable
Budget Distribution: The costs of staff time associated with this item are covered within the existing City Clerk's operating budget.

Strategic Plan Goal:

Organizational Culture
Subject to Levine Act: No
Approval of Accounts Payable and Payroll Payment of Claims for the Weeks Ending September 4, 2026; and September 11, 2026
(Staff Contact: Ken Matsumiya, Director of Finance (707) 449-5180) Individual Action: By simple motion, approve the item.

Fiscal Impact:

The claims for the period total $7,693,869.18
Amount Requested: There are no funds requested for this item.

Funding Source: Various
Budget Distribution: The costs associated with staff time for this item are fully supported within the Finance Department's operating budget.

Strategic Plan Goal:

Fiscal Health
Subject to Levine Act: No
Resolution Approving Five (5) Agreements and Contract Amendments Totaling $2,159,342 Supporting Essential City Operations, Capital Projects, Regulatory Compliance, and Organizational Services
(Staff Contact: GeorgeAnne Meggers-Smith, Assistant City Manager (707) 449-5651) Individual Action: By simple motion, adopt the subject resolution.

Fiscal Impact:

Amount Requested: No additional appropriations are requested. Funding for the agreements identified in Attachment 1 is included in the adopted FY 2026-27 Budget.

Funding Source: Funding for the agreements identified in Attachment 1 is included in the department budgets in the adopted FY 2026-27 Budget.

Budget Distribution: Funding for each of these contract is included in the FY 2026-27 budget,

9.h

9.i

9.j
Tuesday, September 22, 2026
approved by City Council on June 23, 2026.

Strategic Plan Goal:

Organizational Culture
Economic Development
Quality of Life
Public Safety and Infrastructure
Fiscal Health
Subject to Levine Act: Yes
Business from the Floor
This is the time to address the Council with issues that are not on the agenda that are within the Council’s subject matter jurisdiction. With certain exceptions, the City Council may not discuss or take action on items that are not on the agenda. Members of the audience wishing to address a specific agendized item are encouraged to offer their public comment during consideration of that item.

Comment is limited to three minutes per speaker or group spokesperson per Government Code §54954.3(a); VMC §2.04.130.

Public Hearings - None
Business
Resolution Approving Negotiated Terms for a Fiber-Optic Network Between the City of Vacaville and Intrepid Fiber Networks and a Budget Augmentation in the Amount of $150,000 and Adding a Full-Time Traffic Signal Technician in Public Works (Staff Contact: Rica Guidry, Program Manager (707) 449-5134) Recommended Action: By simple motion, adopt the subject resolution.

Fiscal Impact:

Amount Requested: $150,000
Funding Source: General Fund (1001) $75,000; Broadband - Intrepid (New) $75,000 Budget Distribution: If approved by Council, the budget would be loaded into the FY 2026-27 operating budget in a new Special Revenue Fund for the City Manager's Office to track all related revenues, expenditures and deposits.

Strategic Plan Goal:

Public Safety and Infrastructure
Subject to Levine Act: Yes
Resolution to Approve Community Development Block Grant Program Year 2025- 2026 Consolidated Annual Performance and Evaluation Report (Staff Contact: Matilda Horace, Housing Services Administrator (707) 449-5038) Recommended Action: By simple motion, adopt the subject resolution.

Fiscal Impact:

Amount Requested: There are no funds requested for this item.

Funding Source: Department of Housing and Urban Development, Community Development Block Grant Entitlement funding (2002)
Budget Distribution: The budget for any expenses related to this item is included in the existing Housing and Community Services Department operating budget.

Strategic Plan Goal: Quality of Life

10. 11.

12. 12.a

12.b
Tuesday, September 22, 2026
Subject to Levine Act: No
Adjournment
All public records relating to an open session item that are not exempt from disclosure pursuant to the Public Records Act and that are distributed to a majority of the City Council will be available for public inspection during normal business hours at the City Administration Counter at City Hall, 650 Merchant Street. The City may charge customary photocopying charges for requested copies of such documents.

This agenda and related materials are also available on the City's website under Agendas and Minutes To view City Council meetings, tune in to cable Channel 26, the City's YouTube channel, or on the City's website at www.cityofvacaville.gov. If you have any questions, please contact the City Clerk's office at (707) 449-5100.

I declare that the agenda for the Regular Meeting of the City Council/Successor Agency to the Redevelopment Agency/Groundwater Sustainability Agency/Public Financing Authority was posted and available for review by the time and place prescribed by law. ______________________________
Michelle A. Thornbrugh, City Clerk

13. Tuesday, September 22, 2026

Adopt a resolution accepting the public improvements for the Villages at Vanden Meadows Unit 1B Subdivision as complete in accordance with the approved plans, specifications, and Subdivision Improvement Agreement.

Recommendations:

By simple motion, adopt the subject resolution.

Background:

Under the California Subdivision Map Act and the Vacaville Municipal Code, after the City Council approves a subdivision final map and the City and developer execute a Subdivision Improvement Agreement, the developer may construct the public infrastructure required to serve the subdivision, including water and sewer facilities, storm drainage, streets, and sidewalks. Building permits may be issued once the required improvements are sufficiently complete. After construction is complete and City staff confirms that the improvements substantially conform to the approved plans, City standards, and agreement, the City Council considers accepting the public improvements for City ownership and maintenance.

The Subdivision Improvement Agreement for the Villages at Vanden Meadows Unit 1B Subdivision was approved by City Council on November 9, 2021.

Discussion:

The Villages at Vanden Meadows Unit 1B subdivision is an 84-unit single-family development on approximately 16.4 acres. The developer is Meritage Homes of California, Inc., a California corporation. The subdivision is located west of Leisure Town Road, south of Redstone Parkway and east of Vanden Road (Attachment 1 – Project Vicinity Map). Consistent with the Subdivision Improvement Agreement, the developer has completed all required public improvements, Item 9.a
including water and sewer facilities, storm drainage, streets, sidewalks, and related appurtenances, in accordance with the approved plans and specifications. The improvements are now ready for acceptance by the City Council (Attachment 2 – Project Completion Photos).

Public Works staff inspected the completed improvements and determined that the improvements were constructed in substantial conformance with the approved improvement plans, City standards, and the Subdivision Improvement Agreement. Upon acceptance, ownership and long-term maintenance responsibility for the public improvements will transfer to the City of Vacaville.

The required public improvements were limited to onsite subdivision infrastructure improvements, and no offsite public improvements were constructed as part of this development.

Environmental Impact:

The Environmental Impact Report for the subject development was certified by City Council on September 24, 2013. The acceptance of public improvements for the subdivision is within the scope of the previously approved project, and no additional environmental review is required pursuant to the California Environmental Quality Act (CEQA).

Fiscal Impact:

The cost of Public Works staff time to process the acceptance of this project is covered by fees paid by the developer.

Amount Requested: There are no funds requested for this item.

Funding Source: Public Works - Land Development Inspection (2028).

Budget Distribution: The budget for any expenses related to this item is included in the Public Works-Land Development Inspection annual operating budget.

Alternatives:

The City Council could choose not to accept the improvements; however, doing so would be inconsistent with the subdivision improvement agreement and the City’s Standard Specifications.

Strategic Plan Goal/Initiative:

Quality of Life
Public Safety and Infrastructure
Levine Act:

Yes – No campaign contributions disclosed (Attachment 3 - Levine Act Disclosure Form).

Item 9.a
Attachments:

Resolution - Action Item
Attachment 1: Project Vicinity Map
Attachment 2: Project Completion Photos
Attachment 3: Levine Act Disclosure Form
Item 9.a

CITY OF VACAVILLE
RESOLUTION NO. 2026-
Resolution of the City Council of the City of Vacaville to Accept Public Improvements for the Villages at Vanden Meadows Unit 1B Subdivision Whereas, the City Council approved the Final Map for the Villages at Vanden Meadows Unit 1B Subdivision and entered into a Subdivision Improvement Agreement with Meritage Homes of California, Inc., on November 9, 2021, for the construction of required public improvements associated with the subdivision; and
Whereas, the Environmental Impact Report for the Villages at Vanden Meadows Unit 1B Subdivision was certified by the City Council on September 24, 2013, and the acceptance of the public improvements is within the scope of the previously approved project under the California Environmental Quality Act (CEQA); and
Whereas, Meritage Homes of California, Inc. has completed construction of the required public improvements in accordance with the approved plans, specifications, and Subdivision Improvement Agreement; and
Whereas, the Director of Public Works has determined that the public improvements have been completed in substantial conformance with the approved plans, specifications, and Subdivision Improvement Agreement and recommends acceptance of the improvements by the City Council; and
Now, therefore, be it resolved by the City Council of the City of Vacaville as follows:

Section One: The foregoing recitals are true and correct and are incorporated herein by this reference.

Section Two: The City Council hereby accepts the public improvements for the Villages at Vanden Meadows Unit 1B Subdivision as complete in and in substantial conformance with the approved plans, specifications, and Subdivision Improvement Agreement.

Section Three: This Resolution shall take effect immediately upon its adoption.

I hereby certify that the foregoing resolution was introduced and passed at the regular meeting of the City Council of the City of Vacaville held on the 22nd day of September 2026 by the following vote:

Ayes:

Noes:

Absent:

Item 9.a
Attest:
_____________________________

Michelle A. Thornbrugh, City Clerk
Item 9.a
Item 9.a

DEPARTMENT OF

PUBLIC WORKS
VILLAGES AT VANDEN MEADOWS UNIT 1B
ATTACHMENT 1 (1 OF 2)

PROJECT VICINITY MAP

PROJECT

LOCATION
Item 9.a

DEPARTMENT OF

PUBLIC WORKS
VILLAGES AT VANDEN MEADOWS UNIT 1B
ATTACHMENT 1 (2 OF 2)

PROJECT VICINITY MAP
Item 9.a

DEPARTMENT OF PUBLIC WORKS
VILLAGES AT VANDEN MEADOWS UNIT 1B
ATTACHMENT 2 (1 OF 2)

PROJECT COMPLETION PHOTOGRAPH
Item 9.a

DEPARTMENT OF PUBLIC WORKS
VILLAGES AT VANDEN MEADOWS UNIT 1B
ATTACHMENT 2 (2 OF 2)

PROJECT COMPLETION PHOTOGRAPH
Item 9.a
Item 9.a
Item 9.a

CITY OF VACAVILLE
City Council
Staff Report
Meeting Date: September 22, 2026
To: Honorable Mayor and City Council Members
Attention: Savita Chaudhary, City Manager
From: Brian Oxley, Director of Public Works
(Staff Contact: Lori DaMassa, Transit Manager (707) 469-6575) Subject: Resolution of the City Council of the City of Vacaville to Authorize the City Manager or Designee to File an Application with the Metropolitan Transportation Commission for the Allocation of Transportation Development Act Funds for Fiscal Year 2026-2027 in the Amount of $7,968,826 for Vacaville City Coach Transit Operations and Capital Projects
Actions for Consideration:

Authorize the submittal of the annual Transportation Development Act application to fund Vacaville City Coach public transit for Fiscal Year 2026-2027 operations and capital projects.

Recommendations:

By simple motion, adopt the subject resolution.

Background:

The Vacaville City Coach public transit program is managed through the Public Works Department. City Coach is funded through collected passenger fares, Federal Transit Administration (FTA) grants, and State of California Transportation Development Act (TDA) funds, which are generated through local sales and fuel taxes. To access the State TDA funding, each year, eligible agencies must submit a formal TDA claim to the Metropolitan Transportation Commission (MTC). TDA funds are used to support City Coach operational and capital needs.

For the previous Fiscal Year 2025-2026, the City’s TDA allocated distribution was $5.9 million.

The City’s TDA claim is based on extensive financial analysis of prior year actual expenses, current as well as anticipated costs, and other programmatic adjustments to ensure City Coach delivers the highest quality public transit services to citizens and visitors of the City of Vacaville.

Item 9.b
Discussion:

City Coach operates several public transportation services, comprised of the following:
• Fixed Route. Large buses operating along a predetermined route and schedule with vehicles stopping at designated locations to pick up and drop off passengers. • City Coach Direct Microtransit. First in Solano County, City Coach Direct is an Uberstyle service that provides point-to-point transportation based on the patron’s origin and desired destination within the city limits of Vacaville. • Paratransit. Provides origin-to-destination transportation for eligible individuals with disabilities who are unable to use the regular fixed route service due to their disability.
• Local Subsidized Taxi Program. Local (within Vacaville) subsidized taxi service for qualified seniors and disabled individuals.
• Intercity Subsidized Taxi Program. In partnership with the cities of Solano County and the Solano Transportation Authority, City Coach participates in the funding of a countywide subsidized taxi service program which provides transportation services between the cities of Solano County for qualified seniors and disabled individuals.

For Fiscal Year 2026-2027, the total TDA operating funds request is $7,968,826, comprised of $3,638,826 in operating funds and $4,330,000 in capital funds.

City Coach TDA capital funding needs for Fiscal Year 2026-2027 include the following projects:

Project Description Amount
Project 1: Procure Transit Amenities $150,000
Project 2: Replace 10 aged CNG buses $2,850,000
Project 3: Fixed Route Transit Fleet Improvements & Spare Parts $550,000 Project 4: Replace Transit Staff CNG Vehicle $30,000
Project 5: Repair Transit Bus Yard Storm Drain $450,000 Project 6: Repair and Replace Real-Time Arrival Signage and Technology $300,000 Total FY 2026-2027 Capital Projects $4,330,000
Capital Project Descriptions:

Project #1. Procure Transit Amenities
TDA Project Request $150,000
This project consists of the procurement of various transit amenities, including bus shelters and bus stop improvements. Additionally, this funding will also allow for improvements in Transit traffic signal priority system upgrades.

Project #2. CNG Bus Replacements
TDA Project Request $2,850,000
This project consists of purchasing 10 Ford F650 vehicles to replace 10 CNG vehicles that have reached or exceeded their useful lives.

Item 9.b
Project #3. Transit Fleet Improvements & Spare Parts
TDA Project Request $550,000
This project consists of various improvements to the City’s existing transit fleet, including the purchase of spare parts.

Project #4. Replacement of the Transit Staff CNG Vehicle TDA Project Request $30,000
This project will fund the replacement of the 2012 CNG Honda Civic used by transit staff. It is important to note that the CNG tank is set to expire in February 2027, necessitating its replacement.

Project #5. Transit Bus Yard Storm Drain Repair
TDA Project Request $450,000
This project will provide funding to repair the damaged storm drain in the transit bus yard.

Project #6. Replacement of Real-Time Arrival Signage and Technology TDA Project Request $300,000
This project will provide funding to replace the real-time arrival signage and technology at the transit hubs, allowing for an improved rider experience.

MTC estimates that Vacaville is eligible for approximately $5.9 million in FY 2026-27 TDA funds.

The City’s total TDA balance available for potential allocation this year is $11,309,770, which includes both the $5.9 million in anticipated 2026-27 TDA funds, and the City’s additional available funds that have been carried over (unexpended) from past years of TDA allocations.

Any remaining TDA balance not allocated during the fiscal year remains in the City’s TDA account for future replacement of transit vehicles and the ongoing maintenance of transit facilities and infrastructure.

Adoption of an authorizing resolution by City Council is required to submit a claim for the City’s allocation of TDA operating and capital funds for fiscal year 2026-2027 Environmental Impact:

This action is exempt from the California Environmental Quality Act (CEQA) because it is not a project that has the potential to result in either a physical change in the environment or a reasonably foreseeable indirect physical change in the environment, pursuant to California Code of Regulations Title 14 Section 15378(b)(5).

Fiscal Impact:

There will be no impact on the City’s General Fund as a result of this action. Vacaville City Coach is funded through State Transportation Development Act (TDA) funding, Federal Transit Administration (FTA) funding, and collected fare revenue. The requested $7,968,826 in TDA Item 9.b
funding (comprised of $3,638,826 in operating funds and $4,330,000 in capital funds) will be used to continue City Coach operations and enhance public transit amenities and services.

Amount Requested: $7,968,826
Funding Source: Transit Operating Funds (5201-5205.4611) and Transportation Development Act (4004) Funds
Budget Distribution: The budget related to Public Works Transit annual operating funds are included in the current Citywide annual operating budget (5201.4611-5205.4611). Furthermore, any approved TDA Capital (4004) projects will be amended in the City’s annual Capital Improvement Program budget at a future date.

Alternatives:

The City Council could choose not to authorize the submittal of the annual Transportation Development Act application for operating funds to the Metropolitan Transportation Commission. The result will be that the City’s public transit system, Vacaville City Coach, will cease operations.

Strategic Plan Goal/Initiative:

Fiscal Health
Public Safety and Infrastructure
Levine Act:

No
Attachments:

Resolution – Action Item
Item 9.b

CITY OF VACAVILLE
RESOLUTION NO. 2026-
Resolution of the City Council of the City of Vacaville Authorizing the City Manager or Designee to File an Application with the Metropolitan Transportation Commission for Allocation of Transportation Development Act Funds for Fiscal Year 2026-27 in the Amount of $7,968,826 for Vacaville City Coach Transit Operations and Capital Projects Whereas, the Transportation Development Act (TDA) (Public Utilities Code Section 99200 et seq.) provides for the disbursement of funds from the Local Transportation Fund (LTF) of the County of Solano for use by eligible applicants for transit services, planning, and streets and roads projects; and
Whereas, pursuant to the provisions of the TDA, and pursuant to the applicable rules and regulations thereunder (21 Cal. Code of Regs. Section 6600 et seq.), a prospective applicant wishing to receive an allocation from the LTF must file its claim with the Metropolitan Transportation Commission (MTC); and
Whereas, the State Transit Assistance (STA) fund is created pursuant to Public Utilities Code (PUC) Section 99310 et seq.; and
Whereas, the STA fund makes funds available pursuant to Public Utilities Code Section 99313.6 for allocation to eligible applicants to support approved transit projects; and Whereas, TDA funds from the LTF of Solano County will be required by the applicant in Fiscal Year 2026-27 for transit services and capital projects; and Whereas, the City of Vacaville is an eligible applicant for TDA and/or STA funds pursuant to PUC Section(s) 99400, as attested by the Opinion of Counsel dated March 10, 2026.

Now, therefore, be it resolved by the City Council of the City of Vacaville that the City Manager or designee is authorized to execute and file appropriate TDA applications, together with all necessary supporting documents, with the MTC for an allocation of TDA funds in Fiscal Year 2026-27 in the amount of $7,968,826, and to take such actions as necessary to effectuate the intent of applying for said funds.

Be it further resolved that a copy of this resolution be transmitted to MTC in conjunction with the filing of the claim, and the MTC be requested to grant the allocations of funds as specified herein.

I HEREBY CERTIFY that the foregoing resolution was introduced and passed at a regular meeting of the City Council of the City of Vacaville, held on the 22nd day of September 2026, by the following vote:

Ayes:

Noes:

Item 9.b

Absent:

ATTEST:
_____________________________
Michelle A. Thornbrugh, City Clerk
Item 9.b
Item 9.b

CITY OF VACAVILLE

CITY COUNCIL

STAFF REPORT
Meeting Date: September 22, 2026
To: Honorable Mayor and City Council Members
Attention: Savita Chaudhary, City Manager
From: Justen Cole, Utilities Department
(Timothy Hawkins, Assistant Director of Utilities (707) 469-6412) Subject: Resolution of the City Council of the City of Vacaville to Amend the Fiscal Year 2026-27 Capital Improvement Program Budget in the amount of $5,817,320; Award the Butcher Road Reservoirs #1 and #2 Rehabilitation Project to the Lowest Responsive Bidder, Koch & Koch, Inc., and Authorize the Director of Utilities to Execute the Contract in the Amount of $4,561,200.

Actions for Consideration:

Approve a budget amendment adding $5,817,320 to the fiscal year 2026-27 Capital Improvement Program Budget; award the Butcher Road Reservoirs #1 and #2 Rehabilitation Project construction contract to the lowest responsive bidder, Koch & Koch, Inc., of Grass Valley, California; and authorize the Director of Utilities to execute the contract in the amount of $4,561,200.

Recommendations:

By simple motion, adopt the subject resolution.

Background:

The Butcher Road Reservoirs site includes two potable water storage tanks, which hold two (2) million gallons and four (4) million gallons, respectively. The interior coatings of both steel reservoirs have reached the end of their useful service life and require rehabilitation. In addition, water quality and operational improvements are necessary to maintain the water system’s reliability, provide operational flexibility, and maximize available storage during peak demand conditions. The proposed improvements will also proactively address total trihalomethane (TTHM) formation and help ensure compliance with the State’s Maximum Contaminant Level (MCL) for TTHMs.

Project improvements include sandblasting the existing interior coatings of both reservoirs and replacing them with new coatings, improvements to Butcher #1’s valve vault, installation of a Item 9.c
chlorine dosing system to serve both reservoirs, safety upgrades including guard railing and staircases on the outside of the tanks, electrical upgrades, vent improvements, and the installation of a THM Removal System (TRS) in both reservoirs. Together, these improvements will provide safer workspaces for City staff, proactively address water quality concerns, and provide greater operational flexibility to manage storage and water quality under varying flow and demand conditions.

The new interior coatings will restore the protective lining of both steel reservoirs and extend their service life. The proposed water quality improvements, including the TRS and chlorine dosing system, will support more consistent water quality and provide the City with additional operational tools to manage TTHM formation. These improvements will enhance the reliability, safety, and long-term functionality of the Butcher Road Reservoirs while supporting the City’s ability to meet current and future water system demands.

On June 23, 2026, the City Council approved the fiscal year 2026-27 CIP budget in the amount of $39,055,810 and amended that budget on July 28, 2026, to reflect an adjusted amount of $42,815,290.00.

Based on the bids received and the anticipated costs for construction management, inspection, testing, and contingency, additional funding is required to fully fund the project.

Discussion:

The Project was advertised on July 14, 2026, and five (5) bids were received by the submittal deadline of August 20, 2026, for the Butcher Road Reservoirs #1 and #2 Rehabilitation Project.

A Deductive Bid Alternative was included to allow the City to remove the work on Butcher #1’s valve vault in the event bids came back higher than anticipated. The lowest responsive, responsible bidder was determined based on the Base Bid Total.

The bids received are summarized below:

ENGINEER’S ESTIMATE: $5,300,000
BID
NO.

CONTRACTOR TOTAL BID AMOUNT
1 Euro Style Management* $4,422,000.00
2 SoCal Pacific Construction Corp. dba
National Coating & Lining Company
$4,574,086.11
3 Corcus Construction, Inc. $5,312,200.00
4 Koch & Koch, Inc. $4,561,200.00
5 Valentine Corp. $5,929,369.00
*Was considered non-responsive after Staff review
The California Public Contract Code states that the public agency awarding the project shall do so to the bidder who submitted the lowest responsive, responsible bid package. At the time of submittals, the apparent low bidder was Euro Style Management, of Sacramento, California, with a total bid of $4,422,000, which is 17% below the Engineer’s Estimate of $5,300,000. In the bid Item 9.c
specifications package, bidders were made aware that the City is providing 145 working days for the project. The City also provided responses in Addendum No. 2, sent to all bidders, explaining that the project is estimated to start in October 2026 and is to be completed during the winter of 2026 and spring of 2027 while water demands are low.

After opening and reviewing all bids received, the City has deemed the apparent low bidder Euro Style Management as non-responsive due to a stated Earliest Available Mobilization Date, on the face of the bid, of May 1, 2027. This date is inconsistent with the project schedule established in the bid documents. Section 6.3 of the City’s General Conditions also states that the Contractor shall begin work no later than fifteen (15) calendar days after the Contract has been approved by the City.

Apart from the City’s non-responsiveness determination as to Euro Style Management, the City also received a bid protest from another bidder on the project, SoCal Pacific Construction Corp. dba National Coating & Lining Company. The City followed its standard bid protest procedure as outlined by the bid documents for this project and applicable laws, and the protested bidder was able to (and did) submit a written response to the protest. Because the City made an independent determination, running in parallel but unrelated to the bid protest process, that Euro Style Management was nonresponsive due to a stated mobilization date that did not meet the City’s documented expectation in the bid package and addenda, the outcome is the same: staff recommends award of the project to the next lowest responsive and responsible bidder, Koch & Koch, Inc., of Grass Valley, with a bid in the amount of $4,561,200.00.

This overall Budget Amendment will increase the CIP Budget by $5,817,320 which reflects the lowest responsive, responsible bid amount of $4,561,200.00 plus a 27.5 percent for construction management, inspection and testing, and contingency ($5,817,320.00). The contingency is included to address unforeseen conditions and other potential costs that may arise during construction and overall project implementation. This Council action will adjust the fiscal year 2026-27 CIP Budget to $48,632,610.00.

Environmental Impact:

This action is exempt from the California Environmental Quality Act (“CEQA”) pursuant to CEQA Guidelines Section 15301(b), as this action qualifies as operation, repair, maintenance, and/or minor alteration of an existing public structure, facility, and mechanical equipment, involving negligible or no expansion of the existing use.

Fiscal Impact:

The amount of $5,817,320.00 will adjust the overall fiscal year 2026-27 CIP Budget total from $42,815,290.00 to $48,632,610.00. The budget for this project is included in the Capital Improvement Project budget #860128. There is no fiscal impact on the General Fund from this proposed action.

Amount Requested: $5,817,320.00
Funding Source: This project is funded by Water – Facilities Rehab (5102).

Item 9.c
Budget Distribution: If approved by Council, the CIP budget will be amended by $5,817,320 and the budget for Project #860128 – Butcher 1 & 2 Reservoir Improvements will be increased. The costs of staff time associated with this item are covered within the existing Utilities project budget.

Alternatives:

Council could take the following actions:
• Award the bid and amend the CIP budget; or,
• Reject all bids received and rebid the project; or
• Reject all bids and CIP budget amendment and not build the project.

Rejecting all bids and rebidding the project would delay implementation and result in additional costs associated with readvertising and rebidding the project, with no assurance that future bids would be lower than the Engineer’s Estimate. Rejecting all bids and not proceeding with the project would forfeit the City’s investment in the project to date. None of these alternatives are recommended because they would delay implementation of the project and reduce the City’s ability to increase water quality in the distribution system.

Strategic Plan Goal:

Public Safety and Infrastructure
Subject to Levine Act:

No
Attachments:

Resolution – Action Item
Item 9.c

CITY OF VACAVILLE
RESOLUTION NO. 2026-
Resolution of the City Council of the City of Vacaville to amend the Fiscal Year 2026-2027 Capital Improvement Program Budget in the amount of $5,817,320.00, award the Butcher Road Reservoirs #1 and #2 Rehabilitation Project to the lowest responsive and responsible bidder, Koch & Koch, Inc., and authorize the Director of Utilities to execute the contract in the amount of $4,561,200.00.

Whereas, the Butcher Road Reservoirs site includes two potable water storage reservoirs with capacities of two million gallons and four million gallons, respectively; and Whereas, the interior coatings of both steel reservoirs have reached the end of their useful service life and require rehabilitation, and additional water quality and operational improvements are necessary to maintain water system reliability, and provide operational flexibility; and Whereas, the Butcher Road Reservoirs #1 and #2 Rehabilitation Project (“Project’) includes interior coating rehabilitation and related water quality, safety, electrical, operational, and valve vault improvements, including chlorine dosing and Total Trihalomethane Removal Systems; and
Whereas, on July 14, 2026, Utilities staff advertised an opportunity to bid on this Project, and on August 20, 2026, received five (5) bids for the Butcher Road Reservoirs #1 and #2 Rehabilitation Project; and
Whereas, Euro Style Management, of Sacramento, California, submitted the apparent low bid in the amount of $4,422,000.00, which is 17 percent below the Engineer’s Estimate of $5,300,000; and
Whereas, City staff subsequently determined the lowest apparent bidder to be nonresponsive because the Earliest Available Mobilization Date identified in its bid proposal was inconsistent with the contract requirements and Project schedule as set forth in the bid documents and addenda, provided to all bidders; and
Whereas, Koch & Koch, Inc., of Grass Valley, California, was determined to be the next lowest responsive and responsible bidder, with a bid of $4,561,200.00, which is approximately 14 percent below the Engineer’s Estimate; and
Whereas, the City requires a mid-year amendment to the Fiscal Year 2026-2027 Capital Improvement Program (CIP) Budget to add $5,817,320.00, reflecting the lowest responsible and responsive bid amount plus an additional 27.5 percent for construction management, inspection and testing, and contingency, to be funded from Water – Facilities Rehab (5102) for the project.

Now, therefore, be it resolved by the City Council of the City of Vacaville that the construction contract for the Butcher Road Reservoirs #1 and #2 Rehabilitation Project is awarded to Koch & Koch, Inc., of Grass Valley, California, in the amount of $4,561,200.00, and Item 9.c
the Director of Utilities is authorized to execute the contract and approve change orders within the limits established by City policy.

Be it further resolved that the City Council approves an amendment to the Fiscal Year 2026-2027 Capital Improvement Program Budget in the amount of $5,817,320.00 to provide additional funding for the Butcher Road Reservoirs #1 and #2 Rehabilitation Project.

Be it further resolved that an amended Capital Improvement Program (CIP) Budget of the City of Vacaville for the fiscal year 2026-2027 in the sum of $48,632,610.00 is approved and ratified in all particulars and is re-adopted as the official Capital Improvement Program Budget of the City of Vacaville for fiscal year 2026-2027.

Ayes:

Noes:

Absent:

Attest:
_____________________________
Michelle A. Thornbrugh, City Clerk
Item 9.c

CITY OF VACAVILLE

CITY COUNCIL

STAFF REPORT
Meeting Date: September 22, 2026
To: Honorable Mayor and City Council Members
Attention: Savita Chaudhary, City Manager
From: Justen Cole, Utilities Department
(Justen Cole, Director of Utilities (707) 469-6404)
Subject: Resolution of the City Council of the City of Vacaville Supporting the Association of California Water Agencies’ (ACWA) Vision for Our Water Future Initiative and Authorize City Staff to Communicate the City’s Support for the Initiative Actions for Consideration:

Adopt a resolution supporting the Association of California Water Agencies’ (ACWA) Vision for Our Water Future initiative and authorize the Mayor and City staff to communicate the City’s support for the initiative, including participation in a coordinated letter of support with other ACWA member agencies.

Recommendations:

By simple motion, adopt the subject resolution.

Background:

The Association of California Water Agencies (ACWA) serves California’s public water agencies and provides leadership and a unified voice on issues affecting the state’s water resources.

ACWA represents more than 470 public agency members and is a leading organization in the development of California water policy.

The City of Vacaville has been an ACWA member for more than two decades. During this time, Vacaville’s Utilities department staff have actively participated in ACWA through various committees, working groups, and boards, providing opportunities for the City to engage with other water agencies and contribute to statewide water policy discussions.

ACWA’s Vision for Our Water Future is a member-driven initiative intended to elevate water as a priority for California’s next Governor, legislative leadership, and state officials. With a new Governor taking office in January 2027, the initiative is intended to establish a unified set of water priorities and recommendations for the next administration.

On March 20, ACWA’s Board of Directors unanimously adopted the Vision for Our Water Future policy document. The document identifies statewide water priorities and recommendations Item 9.d
focused on safe, reliable, and affordable water supplies and emphasizes the importance of strong leadership, sustainable investment, and coordinated action among local, state, and federal partners
Discussion:

California’s water agencies face increasingly complex challenges related to water supply reliability, aging infrastructure, regulatory requirements, affordability, and the need to plan for changing water conditions. While local agencies are pursuing practical and innovative solutions, many of these challenges require coordination and partnership at the state level.

The Vision for Our Water Future provides a framework for engaging the next gubernatorial administration and state policymakers on these issues. Key priorities include maintaining safe and reliable water supplies while protecting affordability, improving regulatory and scientific frameworks, facilitating efficient delivery of critical water infrastructure projects, and modernizing water management practices.

Active participation in ACWA provides the City with an opportunity to help shape statewide water policy and advocate for policies that support the long-term interests of the City and its water customers. Continued engagement also allows Vacaville to work collaboratively with other public water agencies on issues that affect water reliability, infrastructure investment, regulatory compliance, and the cost of providing water service.

As a show of support for the Vision for Our Water Future, Vacaville will participate with other ACWA member agencies in sending a letter of support to advance the initiative and its identified priorities. Staff recommends that the City Council support the initiative as an opportunity to strengthen the City’s voice in statewide water policy discussions and promote a coordinated approach to California’s water challenges.

Environmental Impact:

This action is not a project under the California Environmental Quality Act (CEQA) because it constitutes an organizational or administrative activity of government that will not result in a direct or reasonably foreseeable indirect physical change in the environment, pursuant to California Code of Regulations, Title 14, Section 15378(b)(5). Because the action does not meet the definition of a project under Public Resources Code Section 21065 and CEQA Guidelines Section 15378, no further environmental review is required.

Fiscal Impact:

Amount Requested: There are no funds requested for this item.

Funding Source: Water Operations (5101)
Budget Distribution: The costs of staff time associated with this item are covered within the existing Utilities Department operating budget.

Item 9.d
Alternatives:

The City Council may choose not to adopt the resolution supporting ACWA’s Vision for Our Water Future initiative. Under this alternative, the City would not formally express its support for the initiative or participate in coordinated advocacy efforts with other ACWA member agencies.

Strategic Plan Goal:

Public Safety and Infrastructure
Subject to Levine Act:

No
Attachments:

Resolution – Action Item
Attachment 1 - Association of California Water Agencies Fact Sheet Attachment 2 - Letter of Support for Vision for Our Water Future Item 9.d

CITY OF VACAVILLE
RESOLUTION NO. 2026-139
Resolution of the City Council of the City of Vacaville Supporting the Association of California Water Agencies’ (ACWA) Vision for Our Water Future Initiative and Authorize City Staff to Communicate the City’s Support for the Initiative Whereas, the Association of California Water Agencies (“ACWA”) serves California’s public water agencies by providing leadership and a unified voice on issues affecting the State’s water resources, and represents more than 470 public agency members; and Whereas, the City of Vacaville has been an ACWA member for more than two decades, with Vacaville Water staff actively participating in ACWA committees, working groups, and boards; and
Whereas, California’s public water agencies face significant challenges related to water supply reliability, aging infrastructure, regulatory requirements, affordability, and the need to adapt to changing water conditions, requiring coordination and partnership among local, state, and federal agencies; and
Whereas, on March 20, 2026, the ACWA Board of Directors unanimously adopted the Vision for Our Water Future policy document to establish statewide water priorities and recommendations for engagement with California’s next gubernatorial administration, legislative leadership, and state officials; and
Whereas, the Vision for Our Water Future emphasizes the importance of safe, reliable, and affordable water supplies, sustainable investment in critical infrastructure, improved regulatory and scientific frameworks, efficient project delivery, and coordinated and adaptive water management; and
Whereas, the City of Vacaville recognizes that active engagement in statewide water policy discussions and collaboration with other public water agencies can help advance policies that support long-term water supply reliability, infrastructure investment, regulatory compliance, affordability, and the interests of the City’s water customers; Now, therefore, be it resolved by the City Council of the City of Vacaville that the City Council does hereby support ACWA's Vision for Our Water Future initiative and encourages continued City participation in efforts to advance these statewide water priorities; and Be It Further Resolved that the City Council authorizes the Mayor and City staff to communicate the City's support for the initiative, including participation in a coordinated letter of support with other ACWA member agencies.

Item 9.d
I hereby certify that the foregoing resolution was introduced and passed at the regular meeting of the City Council of the City of Vacaville held on the 22nd day of September 2026 by the following vote:

Ayes: Councilmembers Stockton, Ritchie, Chapman, Fremouw, Wylie, Vice Mayor Silva, and Mayor Carli
Noes: None

Absent: None

Attest:
_____________________________
Michelle A. Thornbrugh, City Clerk

Item 9.d
Item 9.d

IT STARTS WITH A VISION
The Association of California Water Agencies’ (ACWA) Vision for Our Water Future seeks to elevate water as a top priority for California’s next governor, legislative leadership, and state officials. It provides a clear, focused framework to secure a reliable, affordable, and modern water system that supports California’s economy, communities, and environment.

BOLD LEADERSHIP

IS NEEDED NOW
State and local water suppliers are
on the front lines of California’s water
management to sustain communities,
agricultural land and economy.

Water managers across the state
are already pursuing local, practical
and innovative solutions, but long
term, meaningful progress requires
a strong state partnership to achieve
these shared goals. Bold leadership
is needed to set a unified direction,
accelerate action and deliver
results that prepare California for an
increasingly uncertain future.

WATER IS AN ESSENTIAL RESOURCE
Catastrophic wildfires, prolonged droughts, more intense storms, land subsidence, and aging infrastructure are reshaping California’s risk landscape. Meeting these challenges demands that we acknowledge the seriousness of the threat, act with urgency and intention, and work together to advance our shared priorities.

CALIFORNIA THRIVES

WITH WATER
Water is the foundation upon which California is
built. As the world’s fourth-largest economy, the
nation’s breadbasket, a global technology leader,
and home to extraordinary ecosystems, the
prosperity of the Golden State depends on safe,
resilient, and affordable water supply — now and
into the future.

Item 9.d

KEY ELEMENTS OF A MODERN WATER SYSTEM
Designed and
upgraded for
the future
Flexible and
responsive to
changing climate
conditions
Supported by aligned
state permitting,
regulatory, & investment
frameworks
Informed by
technology,
data, & science
Grounded in long-term
affordability-term
Vision for Our Water Future is an initiative of the
Association of California Water Agencies, representing
approximately 470 public water suppliers in the state.
www.acwa.com/vision

1. LEAD ON WATER
Recognize water as an essential resource and the
infrastructure that underpins California’s economy,
housing growth, food production, environmental health,
and community resilience. Sustained executive leadership is needed to improve water supply reliability, accelerate climate resilience, and ensure coordinated action across state government.

3. DELIVER CRITICAL INFRASTRUCTURE
Future-proof California’s critical water infrastructure to ensure reliable supplies in the face of climate change, growing economic and community demands, and
escalating emergency risks. This requires strengthening the statewide water system, including both built and natural infrastructure, while advancing regional resilience to
maximize systemwide reliability.

VISION FOR

OUR WATER FUTURE

2. PROTECT AFFORDABILITY
Ensure safe and reliable water remains affordable by
strengthening sustained state investment and funding
partnerships with local, regional, and federal agencies to address rising infrastructure, climate, and regulatory costs.

California’s ratepayers fund more than 85 percent of the system. Without predictable investment, these costs will increasingly fall on households, businesses, and farmers.

4. MODERNIZE WATER MANAGEMENT
Improve California’s regulatory and operational systems so water projects can move forward reliability and efficiently, infrastructure can be operated more flexibly, and agencies can respond more rapidly to changing conditions. California’s regulatory framework should deliver clear, coordinated
decisions grounded in the best available science, while maintaining environmental protections, public transparency, and California’s existing water rights priority system.

Securing California’s water future requires more than incremental fixes — it demands a fundamental shift in how the state leads, invests, and operates. The Vision for Our Water Future provides an essential framework for our next administration to:

Item 9.d
September 22, 2026
Mr. Ernie Avila, ACWA President
ACWA
980 9th Street, Ste. 1000
Sacramento, CA 95814
Dear President Avila:

On behalf of the City of Vacaville, I am writing to express our support for the Association of California Water Agencies’ (ACWA) Vision for Our Water Future initiative and its recommendations to help guide California’s water priorities under the next governor, taking office in January 2027.

Water is foundational to California’s communities, economy, agriculture, environment and climate resilience. As California faces increasing challenges from climate extremes, aging infrastructure, regulatory complexity and affordability pressures, strong statewide leadership and coordinated action on water have never been more important.

The City of Vacaville supports the Vision for Our Water Future priorities, which call on state leaders to:
• Elevate water as a statewide priority through sustained leadership and coordinated action.
• Ensure safe and reliable water remains affordable through stable funding partnerships and streamlined investment delivery.
• Strengthen and modernize California’s water infrastructure, including both built and natural systems.
• Improve regulatory, operational and scientific frameworks to support efficient project delivery and adaptive water management.

As a local water agency, the City of Vacaville understands firsthand the importance of reliable and resilient water supplies to the people and businesses we serve. Local agencies are essential partners in implementing practical, science-based solutions that meet California’s diverse water needs.

Item 9.d
2 I appreciate ACWA’s leadership in bringing together water agencies and stakeholders from across the state to advance a collaborative vision for California’s water future. The City of Vacaville looks forward to working with state leaders and regional partners to help implement policies and investments that support long-term water reliability, affordability and resilience.

Respectfully,
John Carli
Mayor, City of Vacaville
Item 9.d

CITY OF VACAVILLE
City Council
Staff Report
Meeting Date: September 22, 2026
To: Honorable Mayor and City Council Members
Attention: Savita Chaudhary, City Manager
From: Brian Oxley, Director of Public Works
(Chris Gioia, Public Works Engineering Manager (707) 449-5160) Subject: Resolution of the City Council of the City of Vacaville Initiating Proceedings, Providing Intention to Levy Assessments,
Preliminarily Approving Engineer's Report, and Providing Notice of Hearing for the Annexation of the Harmony Village Property into the Trower Neighborhood Park Assessment
District No. 10, Villages on Vine Street Setback Landscaping Assessment District No. 107, And Villages on Vine Street Lighting Assessment District No. 108
Actions for Consideration:

To provide for future maintenance of public improvements associated with the Harmony Village residential development, the Public Works Department is requesting City Council adopt a resolution to initiate the proceedings associated with the annexation of the property into existing maintenance assessment districts.

Recommendations:

By simple motion, adopt the subject resolution.

Background:

The Harmony Village residential development project consists of 10 single-family residences located on 1.11 acres of land between Scoggins Avenue to the west, and E. Monte Vista Avenue to the south (Attachment 1 – Project Vicinity Map). The developer of the project is Solano-Napa Habitat for Humanity. As a condition of the project approval process, the property is required to be annexed into the existing Landscape Lighting and Maintenance Districts (LLMDs) for Setback Landscaping, Lighting, and Neighborhood Park (Attachment 2 – Project Site LLMD Assessment District Annexation Boundary Map).

Maintenance assessment districts are a tool utilized by the City to fund operation and maintenance of public landscaping, lighting, and neighborhood parks which benefit the Item 9.e
developments. Annexation as it relates to LLMDs is the process whereby a property not currently in an assessment district is joined to an existing LLMD.

The property is required to be annexed into the following existing LLMD districts:
• LLMD No. 10, Trower Neighborhood Park Assessment District to pay for the maintenance and servicing of neighborhood parks within the district. • LLMD No. 107, Villages on Vine Street Setback Landscaping Assessment District to pay for the maintenance of the setback landscaping within the annexation area. • LLMD No. 108, Villages on Vine Street Lighting Assessment District to pay for the maintenance of the streetlights within the annexation area.

Once the project is annexed into the existing assessment districts, the property owner will be required to pay the LLMD assessment levy amounts specified below on an annual basis; however, parcels in the Harmony Village development will not be levied until a building permit is issued for a given parcel. After the issuance of a building permit, the improved property rates for the fiscal year shall be applied.

Discussion:

Annexation: The project Developer hired SCI Consulting Group (SCI) to prepare an Engineer’s Report to analyze and calculate the assessment levies for the project. SCI is a local firm that the City utilizes to assist with the formation of the City’s LLMD assessment districts and the calculation of the amount of annual levy for each district.

The Engineer’s Report specifies a maximum amount for the LLMD annexations that may be assessed based on the maintenance costs of fully constructed improvements (Attachment 3 – Engineer’s Report). These maximum amounts were determined for all payers within the district, including the Harmony Village development. For Fiscal Year 2026-27, those annual maximum amounts per equivalent dwelling unit are as follows:

Trower Neighborhood Park (District #10) $108.70
Villages on Vine Street Setback Landscaping (District #107) $274.14 Villages on Vine Street Lighting (District #108) $105.25 Total Maximum Amount $488.09
An adjusting factor (to the maximum amount) contributes to the annual assessment levy calculation for this project. This adjusting factor is due to potential levy revenue surplus funds which may exist within the district(s) in which the project is being annexed.

An LLMD with a levy revenue surplus fund results in a less than maximum levy amount. This is the case with the Villages on Vine Street Setback Landscaping Assessment District No. 107 and the Villages on Vine Street Lighting Assessment District No. 108, into which the Harmony Item 9.e
Village development would annex into. In other words, if a surplus exists within a particular assessment district, the required levy to pay for maintenance in the upcoming year is reduced.

Based on the Engineers Report calculation, for the 2026-27 fiscal year, the assessment rates for the Harmony Village development are as follows:

Trower Neighborhood Park (District #10) $108.70
Villages on Vine Street Setback Landscaping (District #107) $58.00 Villages on Vine Street Lighting (District #108) $102.18 Total Maximum Amount $268.88
The first step in the LLMD annexation of the Harmony Village development, which is the purpose of this staff report and resolution, is City Council’s consideration of approval of the resolution of intention to levy assessments for FY 2026-27, granting preliminary approval of the Engineer’s Report, and providing a notice of the public hearing.

At the public hearing, which is the second step in the annexation process, City Council is asked to consider approval of the Engineer’s Report and confirm the diagram of assessment that shows all the properties that are to be included in the LLMD districts. The City Council public hearing for the annexation of the Harmony Village properties into the Trower Neighborhood Park Assessment District, Villages on Vine Street Setback Landscaping Assessment District, and Villages on Vine Street Light Assessment District is anticipated to be held at the October 13, 2026 regularly scheduled City Council meeting.

Environmental Impact:

Fiscal Impact:

The annexation process is being administered by Development Engineering staff with support from consultant services.

Amount Requested: There are no funds requested for this item.

Funding Source: Public Works-Development Engineering (2028) Budget Distribution: The budget for any expenses related to this item is included in the Public Works – Development Engineering annual operating budget.

Alternatives:

Annexation: City Council could choose not to initiate proceedings or intent to levy assessments.

City Council could also choose not to approve the Engineer’s Report or hold a public hearing Item 9.e
regarding the annexation process; however, by doing so, the project would not pay its fair share of maintenance costs for the specified landscape, lighting, and neighborhood park assessment districts.

Strategic Plan Goal:

Fiscal Health
Quality of Life
Levine Act:

Yes
Attachments:

Resolution – Action Item
Attachment 1: Project Vicinity Map
Attachment 2: Project Site LLMD Assessment District Annexation Boundary Map Attachment 3: Engineer’s Report
Attachment 4: California Levine Act Disclosure Statement Item 9.e

CITY OF VACAVILLE
RESOLUTION NO. 2026-
Resolution of the City Council of the City of Vacaville to Initiate Proceedings, Providing Intention to Levy Assessments, Preliminarily Approving Engineer's Report, And Providing Notice of Hearing for the Annexation of the Harmony Village Property into the Trower Neighborhood Park Assessment District No. 10, Villages on Vine Street Setback Landscaping Assessment District No. 107, Villages on Vine Street Lighting Assessment District No. 108 Whereas, the City of Vacaville provides for the maintenance and improvement of setback landscaping, open space, detention basins, drainage facilities, street lighting, and parks through the City’s Landscaping and Lighting Assessment Districts; and Whereas, these maintenance services and improvements provide direct and special benefits to properties in the Landscaping and Lighting Assessment Districts; and Whereas, the annexation of the property known as the Harmony Village development (the "Property") to the existing Trower Neighborhood Park Assessment District (“Assessment District 10”), Villages on Vine Street Setback Landscaping Assessment District ("Assessment District No. 107"), and Villages on Vine Street Lighting Assessment District ("Assessment District No. 108") was a condition of development; and
Whereas, these proposed Assessment District annexations would provide direct and special benefits to the Property by providing for the maintenance and improvement of parks, setback landscaping, and lighting facilities for the Property; and Whereas, the procedures for the proposed annexations of property provide owners of the Property with the opportunity to submit ballots for the proposed annexations and assessment levies that would fund the maintenance services and improvements.

Now, therefore, be it resolved by the City Council of the City of Vacaville that:

Section 1. The recitals set forth above are true and correct and are incorporated herein by this reference.

Section 2. The Council hereby proposes the annexation of Property into existing landscaping and lighting assessment districts, pursuant to Article XIIID of the California Constitution, and the Landscaping and Lighting Act of 1972 (the "Act"), Part 2 of Division 15 of the California Streets and Highways Code (commencing with Section 22500 thereof).

Section 3. The purpose of the landscaping and lighting assessment districts shall be for the maintenance and servicing of improvements to the City of Vacaville described in Section 4.

Section 4. Within the landscaping and lighting assessment districts, the existing and proposed improvements are generally described as the servicing, operations, and maintenance of street Item 9.e
lights, playground equipment, park facilities, turf, ground cover, shrubs, trees, irrigation systems, fencing, walls, trails, walkways, stormwater quality/treatment and drainage facilities, entry monuments, open space, and all necessary appurtenances, and labor, materials, supplies, utilities, and equipment, as applicable, for property owned or maintained by the City of Vacaville.

Maintenance means the furnishing of services and materials for the ordinary and usual maintenance, operation, and servicing of said improvements, including repair, removal, or replacement of all or part of any improvement; providing for the life, growth, health, and beauty of landscaping; and cleaning, sandblasting, and painting of walls and other improvements to remove or cover graffiti. Servicing means the furnishing of electric current or energy for the operation or lighting of any improvements, and water for irrigation of any landscaping or the maintenance of any other improvements.

Section 5. SCI Consulting Group is hereby designated as Engineer of Work for purposes of these proceedings and was ordered to prepare an Engineer's Report in accordance with Article 4 of Chapter 1 of the Act and Article XIIID of the California Constitution.

Section 6. The Engineer's Report has been made, filed with the City Clerk, and duly considered by the Council and is hereby deemed sufficient and preliminarily approved. The Report shall stand as the Engineer's Report for all subsequent proceedings under and pursuant to the foregoing resolution.

Section 7. The Assessment Districts consist of the lots and parcels shown on the parcel boundary maps and diagram attached as Attachment 2 to this Resolution, and reference is hereby made to such map for further particulars.

Section 8. Reference is hereby made to the Engineer's Report for a full and detailed description of the Improvements, the boundaries of the Assessment Districts, and the proposed assessments upon assessable lots and parcels of land within the Assessment Districts. The maximum assessment rate within the Assessment Districts may increase in future years by an amount equal to the annual change in the Bay Area Consumer Price Index, not to exceed 3% per year. In the event that the annual change in the CPI exceeds 3%, any percentage change in excess of 3% can be cumulatively reserved and added to the annual change in the CPI for years in which the CPI change is less than 3%. Including the authorized annual adjustment, the maximum, proposed fiscal year 2026-27 assessment rate per equivalent dwelling unit for the Trower Neighborhood Park Assessment District (“Assessment District 10”) is $108.70, Villages on Vine Street Setback Landscaping Assessment District ("Assessment District No. 107") is $274.14, and Villages on Vine Street Lighting Assessment District ("Assessment District No. 108") is $105.25.

Section 9. The public hearing for the Assessment District annexations shall be held before this Council in the City Council Chambers of the City of Vacaville, 650 Merchant Street, Vacaville, California, 95688 on October 13, 2026, at the hour of 6:00 PM, for the purpose of allowing public testimony regarding the proposed formations and annexations and for the City's final action upon the proposed assessments for Property.

Item 9.e
Section 10. The City Clerk is hereby authorized and directed to cause Notice of the Hearing ordered under Section 9 hereof to be given in accordance with law by mailing, postage prepaid, in the United States mail, and such Notice shall be deemed to have been given when so deposited in the mail. The mailed Notice shall be given to all property owners within the annexations by such mailing by name to those persons whose names and addresses appear on the last equalized secured property tax assessment rolls of the County of Solano or in the case of any public entity, the representative of such public entity at the address thereof known to the Clerk. The Notice shall include, but not be limited to, the total amount of assessment proposed to be levied in the Assessment Districts, the assessments proposed for the owner's particular parcel(s) and the duration thereof, the reason for the assessments, and the basis upon which the amount of the assessments was calculated. Each Notice shall also contain an assessment ballot, a summary of the procedures applicable to the completion, return, and tabulation of assessment ballots, and a statement that the existence of a majority protest will result in the assessment not being imposed. Since all property owners in the proposed Assessment Districts have unanimously waived their right to a 45-day balloting period, the Notice herein described shall be mailed before the date of the public hearing.

Section 11. This Resolution shall take effect immediately upon its adoption.

I HEREBY CERTIFY that the foregoing resolution was introduced and passed at a regular meeting of the City Council of the City of Vacaville, held on the 22nd day of September, 2026, by the following vote:

Ayes:

Noes:

Absent:

Attest:
_____________________________
Michelle A. Thornbrugh, City Clerk
Item 9.e

DEPARTMENT OF

PUBLIC WORKS

HARMONY VILLAGE
ATTACHMENT 1 (1 OF 2)

PROJECT VICINITY MAP

PROJECT

LOCATION
Item 9.e

DEPARTMENT OF

PUBLIC WORKS

HARMONY VILLAGE
ATTACHMENT 1 (2 OF 2)

PROJECT VICINITY MAP
Item 9.e
Item 9.e
ENGINEER’S REPORT
City of Vacaville
Annexation of Harmony Village Properties to
Trower Neighborhood Park Assessment District No. 10,
Villages on Vine Street Setback Landscaping Assessment District No. 107, and
Villages on Vine Street Lighting Assessment District No. 108 August 2026
Pursuant to the Landscaping and Lighting Act of 1972
and Article XIIID of the California Constitution
Item 9.e
City of Vacaville
Harmony Village Annexation to Existing Assessment Districts Engineer’s Report, FY 2026-27
Page I
City of Vacaville
City Council
John Carli, Mayor
Roy Stockton, Councilmember District 1
Gregory Ritchie II, Councilmember District 2
Michael Silva, Councilmember District 3
Sarah Chapman, Councilmember District 4
Ted Fremouw, Councilmember District 5
Jeanette Wylie, Councilmember District 6
Director, Public Works
Brian Oxley
City Clerk
Michelle Thornbrugh
Engineer of Work
John Bliss, M. Eng., P.E.

SCI Consulting Group

Item 9.e
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Harmony Village Annexation to Existing Assessment Districts Engineer’s Report, FY 2026-27
Page II
Table of Contents
Overview .......................................................................................................... 1 Introduction .................................................................................................................. 1 Legislative Analysis ....................................................................................................... 2 Plans & Specifications ....................................................................................... 6 Fiscal Year 2026-27 Estimate of Cost and Budget .............................................. 7 Annexation of Property to Trower Neighborhood Park Assessment District No. 10 ... 7 Annexation of Property to Villages on Vine Street Setback Landscaping Assessment District No. 107 ........................................................................................................... 10 Annexation of Property to Villages on Vine Street Lighting Assessment District No. 108 .............................................................................................................................. 13 METHOD OF APPORTIONMENT ....................................................................... 16 Discussion of Benefit .................................................................................................. 17 General versus Special Benefit ................................................................................... 19 Benefit Finding ........................................................................................................... 20 Parks Improvements .................................................................................................. 20 Other Improvements .................................................................................................. 21 Method of Assessment ............................................................................................... 23 Assessment Apportionment ....................................................................................... 24 Assessment ..................................................................................................... 27 Summary Cost Estimates ............................................................................................ 28 Appendices ..................................................................................................... 34 Appendix B – Assessment Roll, FY 2026-27 ..................................................... 37 Item 9.e
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Harmony Village Annexation to Existing Assessment Districts Engineer’s Report, FY 2026-27
Page III
List of Figures
Figure 1 – Annexation to Trower Neighborhood Park Assessment District (Assessment District No. 10) ........................................................................................................... 8 Figure 2 – Annexation to Villages on Vine Street Setback Landscaping Assessment District (Assessment District No. 107) ...................................................................... 11 Figure 3 – Annexation to Villages on Vine Street Lighting Assessment District (Assessment District No. 108) .................................................................................. 14 Figure 4 – Trower Neighborhood Park Assessment District (Assessment District No. 10) - Summary Cost Estimates .......................................................................................... 29 Figure 5 – Annexation to Villages on Vine Street Setback Landscaping Assessment District (Assessment District No. 107) - Summary Cost Estimates ........................... 30 Figure 6 – Annexation to Villages on Vine Street Lighting Assessment District (Assessment District No. 108) - Summary Cost Estimates ....................................... 31 Item 9.e
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Overview
Introduction
Annexation of the Harmony Village properties (“Property”) into the existing Trower Neighborhood Park Assessment District No. 10, Villages on Vine Street Setback Landscaping Assessment District No. 107 and Villages on Vine Street Lighting Assessment District No. 108, (the "Assessment Districts"), are proposed to provide funding for the maintenance and improvement setback landscaping improvements, streetlights and a neighborhood park to benefit the Property in the Harmony Village development that are proposed for inclusion in the Assessment Districts. The Property will consist of 10 singlefamily homes located on approximately one acre of land located on the corner of Scoggins Court and East Monte Vista Avenue. These Assessment District annexations, described in this Engineer’s Report, result from agreements or conditions of development approval between the City of Vacaville and developers of the property (Habitat for Humanity) whereby the City and the developer agreed on maintenance of setback landscaping improvements proximate to the Property to reduce the visual impact of buildings on the Property and to enhance public views and resources, maintenance of street lighting to enhance public safety and security, neighborhood park maintenance to improve the appeal of the Property and recreational amenities available to the property in the Assessment Districts.

This Engineer’s Report ("Report") was prepared to establish the budget for the services that would be funded by the proposed 2026-27 assessments and to determine the benefits received from the maintenance and improvements by the Property within the Assessment Districts and the method of assessment apportionment to lots and parcels.

This Report and the proposed assessments have been made pursuant to the Landscaping and Lighting Act of 1972, Part 2 of Division 15 of the California Streets and Highways Code (the "Act") and Article XIIID of the California Constitution (the “Article”).

Following submittal of this Report to the City of Vacaville City Council (the “Council”) for preliminary approval, the Council may, by Resolution, call for an assessment ballot proceeding, and Public Hearing on the proposed establishment of assessments for the improvements.

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If the Council approves such Resolution, a notice of assessment and assessment ballot will be mailed to the property owner within the Assessment Districts at least 45 days prior to the date of the Public Hearing. Such notice would include a description of the proposed assessments as well as an explanation of the method of voting on the assessments. Each notice would also include a postage prepaid ballot on which the property owner could mark his or her approval or disapproval of the proposed assessments.

After the ballots are mailed to the property owner in the Assessment Districts, a minimum 45-day time period must be provided for the return of the assessment ballots. (However, the property owner may waive their right to the 45 day ballot period in order to expedite annexation to the Assessment Districts, by so signing the ballot in agreement to this effect.) Following the ballot period, a public hearing must be held for the purpose of allowing public testimony regarding the proposed assessments. This hearing is scheduled for October 13, 2026 at 6:00 p.m. At this hearing, the public will have the opportunity to speak on this issue, and returned ballots will be tabulated.

If it is determined at the public hearing that the assessment ballots submitted in opposition to the proposed assessments do not exceed the assessment ballots submitted in favor of the assessments (weighted by the proportional financial obligation of the property for which ballots are submitted), the Council may take action to authorize the annexations.

Charges for the Assessment Districts will not be levied until a building permit is issued for the parcels. After issuance of a building permit, the full applicable rates for the fiscal year shall be applied as provided herein.

Legislative Analysis
Proposition 218
This assessment was formed consistent with Proposition 218, The Right to Vote on Taxes Act, which was approved by the voters of California on November 6, 1996, and is now Article XIIIC and XIIID of the California Constitution. Proposition 218 provides for benefit assessments to be levied to fund the cost of providing services, improvements, as well as maintenance and operation expenses to a public improvement which benefits the assessed property.

Proposition 218 describes a number of important requirements, including a propertyowner balloting, for the continuation of assessments, and these requirements are satisfied by the process used to establish this assessment.

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Silicon Valley Taxpayers Association, Inc. v Santa Clara County Open Space Authority
In July of 2008, the California Supreme Court issued its ruling on the Silicon Valley Taxpayers Association, Inc. v. Santa Clara County Open Space Authority (“SVTA vs.

SCCOSA”). This ruling is the most significant legal document in further legally clarifying Proposition 218. Several of the most important elements of the ruling included further emphasis that:
 Benefit assessments are for special, not general, benefit  The services and/or improvements funded by assessments must be clearly defined
 Special benefits are directly received by and provide a direct advantage to property in the assessment district
This Engineer’s Report and the assessments are consistent with the SVTA vs. SCCOSA decision and with the requirements of Article XIIIC and XIIID of the California based on the following factors:

1. The assessment revenue derived from real property in each Assessment District is extended only on specifically identified improvements and/or maintenance and servicing of those improvements in that Assessment District and other improvements in the Assessment District that confer special benefits to property in that Assessment District.

2. The use of Assessment Districts ensures that the improvements constructed and maintained with assessment proceeds are located in close proximity to the real property subject to the assessment, and that such improvements provide a direct advantage to the property in the Assessment Districts.

3. Due to their proximity to the assessed parcels, the improvements and maintenance thereof financed with assessment revenues in each Assessment District benefit the property in that Assessment District in a manner different in kind from the benefit that other parcels of real property in the City derive from such improvements, and the benefits conferred on such property in each Assessment District are more extensive and direct than a general increase in property values.

4. The assessments paid in each Assessment District are proportional to the special benefit that each parcel within that Assessment District receives from such improvements and the maintenance thereof because:

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a. The Engineer’s Report specifically identifies the permanent public improvements that the assessments will finance;
b. The costs of such improvements are estimated and calculated; and c. Such improvement and maintenance costs in each Assessment District are allocated to each property within each Assessment District based upon the estimated special benefits received from the improvements.

Dahms v. Downtown Pomona Property
On June 8, 2009, the 4th District Court of Appeals amended its original opinion upholding a benefit assessment for property in the downtown area of the City of Pomona. On July 22, 2009, the California Supreme Court denied review. Hence Dahms is good law and binding precedent for assessments. In Dahms the Court upheld an assessment that was 100% special benefit (i.e., 0% general benefit) on the rationale that the services and improvements funded by the assessments were directly provided to property in the Assessment District. The Court also upheld discounts and exemptions from the assessment for certain properties.

Bonander v. Town of Tiburon
On December 31, 2009, the 1st District Court of Appeals overturned a benefit assessment approved by property owners to pay for placing overhead utility lines underground in an area of the Town of Tiburon. The Court invalidated the assessments on the grounds that the assessments had been apportioned to assessed property based in part on relative costs within sub-areas of the assessment district instead of proportional special benefits.

Beutz v. County of Riverside
On May 26, 2010 the 4th District Court of Appeals issued a decision on the Steven Beutz v.

County of Riverside (“Beutz”) appeal. This decision overturned an assessment for park maintenance in Wildomar, California, primarily because the general benefits associated with improvements and services were not explicitly calculated, quantified and separated from the special benefits.

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Golden Hill Neighborhood Association v. City of San Diego On September 22, 2011, the San Diego Court of Appeals issued a decision on the Golden Hill Neighborhood Association v. City of San Diego appeal. This decision overturned an assessment for street and landscaping maintenance in the Greater Golden Hill neighborhood of San Diego, California. The court described two primary reasons for its decision. First, like in Beutz, the court found the general benefits associated with services were not explicitly calculated, quantified and separated from the special benefits. Second, the court found that the City of San Diego had failed to record the basis for the assessment on its own parcels.

Compliance with Current Law
This Engineer’s Report is consistent with the requirements of Article XIIIC and XIIID of the California Constitution and with the SVTA decision because the improvements to be funded are clearly defined; the improvements are directly available to and will directly benefit property in the Assessment Districts; and the improvements provide a direct advantage to property in the Assessment Districts that would not be received in absence of the assessments.

This Engineer’s Report is consistent with Beutz, Dahms and Greater Golden Hill because the improvements will directly benefit property in the Assessment Districts and the general benefits have been explicitly calculated and quantified and excluded from the assessments. The Engineer’s Report is consistent with Bonander because the assessments have been apportioned based on the overall cost of the improvements and proportional special benefit to each property.

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Plans & Specifications
The work and improvements proposed to be undertaken by the City of Vacaville and the annexation of the Harmony Village properties into the Villages on Vine Setback Landscaping Assessment District, Villages on Vine Lighting Assessment District, and the Trower Neighborhood Park Assessment District (the "Assessment Districts"), and the costs thereof paid from the levy of the annual assessments, provide special benefit to Assessor Parcels within the Assessment Districts as defined in the Method of Assessment herein. Consistent with the Landscaping and Lighting Act of 1972, (the “Act”) the work and improvements are generally described as follows:

Installation, maintenance and servicing of public improvements, including but not limited to, street lights, playground equipment, park facilities, turf, ground cover, shrubs, trees, irrigation systems, fencing, walls, trails, walkways, stormwater quality/treatment and drainage facilities, entry monuments, open space, and all necessary appurtenances, and labor, materials, supplies, utilities and equipment, as applicable, for property within the Assessment Districts that is owned or maintained by the City of Vacaville (the “Improvements”). Any plans and specifications for these improvements will be filed with the City Engineer of the City of Vacaville and are incorporated herein by reference.

As applied herein, “maintenance” means the furnishing of services and materials for the ordinary and usual maintenance, operation and servicing of any improvement, including repair, removal or replacement of all or any part of any improvement; providing for the life, health, and beauty of landscaping, including cultivation, irrigation, trimming, spraying, fertilizing, or treating for disease or injury; the removal of trimmings, rubbish, debris, and other solid waste; the cleaning, sandblasting, and painting of walls and other improvements to remove or cover graffiti.
“Servicing” means the furnishing of electric current, or energy, gas or other illuminating agent for any public lighting facilities or for the lighting or operation of any other improvements; or water for the irrigation of any landscaping, or the maintenance of any other improvements.

Incidental expenses include all of the following: (a) The costs of preparation of the report, including plans, specifications, estimates, diagram, and assessment; (b) the costs of printing, advertising, and the giving of published, posted, and mailed notices; (c) compensation payable to the County for collection of assessments; (d) compensation of any engineer or attorney employed to render services in proceedings pursuant to this part; (e) any other expenses incidental to the construction, installation, or maintenance and servicing of the Improvements; pursuant to Streets & Highways Code Section 22662.5.

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Fiscal Year 2026-27 Estimate of Cost and Budget
Annexation of Property to Trower Neighborhood Park Assessment District No. 10
Description of Improvements
Maintenance, improvement, and servicing of Trower neighborhood park including but not limited to approximately 1.5 acres of turf, landscaping, irrigation system, lighting, site furnishings, pathways, picnic areas, one 2-5 and one 5-12 year old play structure, and basketball court.

Additional maintenance costs for Fiscal Year 2026-27 allocated to annexed Property total $1,087, equating to $108.70 per single-family dwelling unit.

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Figure 1 – Annexation to Trower Neighborhood Park Assessment District (Assessment District No. 10)
Estimate of Cost 2026-27

DIRECT COSTS
Salaries & Benefits $52,036
Part Time Costs $8,502
Equipment Replacement $0
Lease Payments $239
Central Garage $5,941
Services & Supplies $7,085
Capital Improvement Projects $0
Subtotal $73,802

ADMINISTRATION COSTS
Equipment Insurance $0
Liability Insurance $2,006
County Collection Charges $60
Financial Management Fees $446
Subtotal $2,512

LEVY BREAKDOWN
Total Direct and Admin. Costs $76,314
Contribution to/(from) Reserve Fund $0
Contribution to/(from) Cap. Improv. Fund $0
Total Benefit of Improvements & Services $76,314
Total EDU Units 55.00
Benefit received per EDU $1,387.53
Less
General Fund Contribution for General Benefits ($7,631) General Fund Contribution toward Special Benefits ($62,704) Balance to Levy $5,979
Budget to Assessment
Total Budget $5,979
Additional Budget Amount to be Paid by Annexation $1,087.00 Total EDU Units 10.00
Rate per EDU Unit $108.70
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*The budget allows a 3% CPI adjustment based on the highest allowable rate based on assessments previously charged for the Assessment District. The assessment for 2026-27 is the maximum allowable rate, including the authorized annual adjustment, the maximum proposed fiscal year 2026-27 assessment rate per equivalent dwelling unit for the Trower Neighborhood Park Assessment District is $108.70 per EDU unit. These are the maximum rates for fiscal year 2026-27 that may be levied. Parcels shall not be levied until a building permit is issued for the parcel. After issuance of a building permit the improved property rate for the fiscal year shall be applied, as increased annually by the CPI adjustment.

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Annexation of Property to Villages on Vine Street Setback Landscaping Assessment District No. 107
Description of Improvements
Maintenance and servicing of one soundwall adjacent to East Monte Vista Avenue and the Harmony Village development.

The budget depicted in the table on the following page reflects estimated costs for Fiscal Year 2026-27. Total maintenance costs for Fiscal Year 2026-27 for parcels currently in the Villages on Vine Street Setback Landscaping Assessment District are anticipated to total $4,582. Additional maintenance costs for Fiscal Year 2026-27 allocated to annexed Property total $580, equating to $58.00 per equivalent dwelling unit.

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Figure 2 – Annexation to Villages on Vine Street Setback Landscaping Assessment District (Assessment District No. 107)
Estimate of Cost 2026-27

DIRECT COSTS
Salaries & Benefits $4,610
Part Time Costs $1,500
Equipment Replacement $0
Lease Payments $0
Central Garage $403
Services & Supplies $0
Capital Improvement Projects $0
Subtotal $6,513

ADMINISTRATION COSTS
Equipment Insurance $0
Liability Insurance $178
County Collection Charges $46
Financial Management Fees $342
Subtotal $566

LEVY BREAKDOWN
Total Direct and Admin. Costs $7,079
Contribution to/(from) Reserve Fund $0
Contribution to/(from) Cap. Improv. Fund ($2,497)
Total Benefit of Improvements & Services $4,582
Total EDU Units 79.00
Benefit received per EDU $58.00
Less
General Fund Contribution for General Benefits $0
General Fund Contribution toward Special Benefits $0
Balance to Levy $4,582
Budget to Assessment
Total Budget $4,582
Additional Budget Amount to be Paid by Annexation $580
Total EDU Units 10.00
Rate per EDU Unit $58.00
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*The budget allows a 3% CPI adjustment based on the highest allowable rate based on assessments previously charged for the Assessment District. The assessment for 2026-27 is below the maximum allowable rate, including the authorized annual adjustment, the maximum, proposed fiscal year 2026-27 assessment rate per equivalent dwelling unit for the Villages on Vine Street Setback Landscaping Assessment District is $274.14 per EDU unit. These are the maximum rates for fiscal year 2026-27 that may be levied. Parcels shall not be levied until a building permit is issued for the parcel. After issuance of a building permit the improved property rate for the fiscal year shall be applied, as increased annually by the CPI adjustment.

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Annexation of Property to Villages on Vine Street Lighting Assessment District No. 108
Description of Improvements
Maintenance and servicing of two standard cobra head streetlights within the Harmony Village development.

Additional maintenance costs for Fiscal Year 2026-27 allocated to annexed Property total $1,021.80, equating to $102.18 per equivalent dwelling unit.

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Figure 3 – Annexation to Villages on Vine Street Lighting Assessment District (Assessment District No. 108)
Estimate of Cost 2026-27

DIRECT COSTS
Salaries & Benefits $606
Part Time Costs $0
Equipment Replacement $0
Lease Payments $1,232
Central Garage $23
Services & Supplies $2,042
Capital Improvement Projects $0
Subtotal $3,904

ADMINISTRATION COSTS
Equipment Insurance $0
Liability Insurance $23
County Collection Charges $81
Financial Management Fees $602
Subtotal $706

LEVY BREAKDOWN
Total Direct and Admin. Costs $4,610
Contribution to/(from) Reserve Fund $2,000
Contribution to/(from) Cap. Improv. Fund $1,463
Total Benefit of Improvements & Services $8,072
Total EDU Units 79.00
Benefit received per EDU $102.18
Less
General Fund Contribution for General Benefits $0
General Fund Contribution toward Special Benefits $0
Balance to Levy $8,072
Budget to Assessment
Total Budget $8,072
Additional Budget Amount to be Paid by Annexation $1,021.80 Total EDU Units 10.00
Rate per EDU Unit $102.18
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*The budget allows a 3% CPI adjustment based on the highest allowable rate based on assessments previously charged for the Assessment District. The assessment for 2026-27 is below the maximum allowable rate, including the authorized annual adjustment, the maximum, proposed fiscal year 2026-27 assessment rate per equivalent dwelling unit for the Villages on Vine Street Lighting Assessment District is $105.25 per EDU unit. These are the maximum rates for fiscal year 2026-27 that may be levied. Parcels shall not be levied until a building permit is issued for the parcel. After issuance of a building permit the improved property rate for the fiscal year shall be applied, as increased annually by the CPI adjustment.

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METHOD OF APPORTIONMENT
This section of the Engineer's Report includes an explanation of the benefits to be derived from the installation, maintenance and servicing of setback landscaping, street lighting and neighborhood parks and the methodology used to apportion the total assessment to properties within the Assessment Districts.

The method used for apportioning the assessment is based upon the relative special benefits to be derived by the properties in the Assessment Districts over and above general benefits conferred on real property or to the public at large. The assessment is apportioned to lots and parcels in proportion to the relative cost of the special benefits from the Improvements. Special benefit is calculated for each parcel in the Assessment Districts using the following process:

1. Identification of all benefit factors derived from the Improvements

2. Calculation of the proportion of these benefits that are general

3. Determination of the relative special benefit within different areas within the Assessment Districts

4. Determination of the relative special benefit per property type

5. Calculation of the specific assessment for each individual parcel based upon special vs. general benefit; location, property type, property characteristics, improvements on property and other supporting attributes The parcels proposed for annexation to the Villages on Vine Street Setback Landscaping Assessment District, Villages on Vine Street Lighting District and Trower Neighborhood Park Assessment District consist of all Assessor Parcels within the boundaries as defined by the Assessment Diagrams included within this Report and the Assessor Parcel Numbers listed within the included Assessment Roll. The method used for apportioning the assessments is based upon the proportional special benefits to be derived by the properties in the Villages on Vine Street Setback Landscaping Assessment District, Villages on Vine Street Lighting District and Trower Neighborhood Park Assessment District, over and above general benefits conferred on real property or to the public at large. The apportionment of special benefit is a two-step process: the first step is to identify the types of special benefit arising from the improvements, and the second step is to allocate the assessments to property based on the estimated relative special benefit for each type of property.

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Discussion of Benefit
In summary, the assessments can only be levied based on the special benefit to property.

This benefit is received by property over and above any general benefits. Moreover, such benefit is not based on any one property owner’s use of the Assessment District's setback landscaping, neighborhood parks or street lights, or a property owner’s specific demographic status. With reference to the requirements for assessments, Section 22573 of the Landscaping and Lighting Act of 1972 states:
"The net amount to be assessed upon lands within an assessment district may be apportioned by any formula or method which fairly distributes the net amount among all assessable lots or parcels in proportion to the estimated benefits to be received by each such lot or parcel from the Improvements." Proposition 218, as codified in Article XIIID of the California Constitution, has confirmed that assessments must be based on the special benefit to property:
"No assessment shall be imposed on any parcel which exceeds the reasonable cost of the proportional special benefit conferred on that parcel." The following benefit categories summarize the types of special benefit to residential, commercial, industrial and other lots and parcels resulting from the installation, maintenance and servicing of setback landscaping, street lights and parks to be provided with the assessment proceeds. These categories of special benefit are derived from the statutes passed by the California Legislature and other studies which describe the types of special benefit received by property from maintenance and improvements such as those proposed by the City of Vacaville and the Villages on Vine Street Setback Landscaping Assessment District, Villages on Vine Street Lighting District and the Trower Neighborhood Park Assessment District. These types of special benefit are summarized as follows:

A. Proximity to Improved Landscaped Areas and Other Permanent Public Improvements within or adjacent to the Assessment Districts.

B. Access to Improved landscaped areas and Other Permanent Public Improvements within or adjacent to the Assessment Districts.

C. Improved Views within or adjacent to the Assessment Districts.

D. Extension of a property’s outdoor areas and Landscaped Areas for properties within close proximity to the Improvements.

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E. Creation of individual lots for residential and commercial use that, in absence of the assessments, would not have been created.

F. Security and sound reduction provided by the soundwall.

G. Security and enhanced access provided by the streetlights.

These benefit factors, when applied to property in the Assessment Districts, specifically increase the value of the land within the Assessment Districts. For example, the assessments will provide funding to improve and maintain the soundwall adjacent to the properties in the Assessment Districts. Such improved and well-maintained soundwalls enhance the overall quality, desirability and safety of the properties. In turn, property values are specifically enhanced by the noise reduction, increased security and privacy provided by the soundwall. In addition, well maintained street lighting provides specific value to the properties in the Assessment Districts by improving the safety, security and access of the properties. This is the fundamental special benefit to properties in the Assessment Districts.

In this case, the recent the SVTA v. SCCOSA decision provides enhanced clarity to the definitions of special benefits to properties from similar public improvements in three distinct areas:
 Proximity
 Expanded or improved access
 Views
The SVTA v. SCCOSA decision also clarifies that a special benefit is a service or improvement that provides a direct advantage to a parcel and that indirect or derivative advantages resulting from the overall public benefits from a service or improvement are general benefits. The SVTA v. SCCOSA decision also provides specific guidance that park improvements are a direct advantage and special benefit to property that is proximate to a park that is improved by an assessment:

The characterization of a benefit may depend on whether the parcel receives a direct advantage from the improvement (e.g. proximity to a park) or receives an indirect, derivative advantage resulting from the overall public benefits of the improvement (e.g. general enhancement of the district’s property values).

Proximity, improved access and views, in addition to the other special benefits listed herein further strengthen the basis of these assessments.

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City of Vacaville
Harmony Village Annexation to Existing Assessment Districts Engineer’s Report, FY 2026-27

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General versus Special Benefit
In absence of the assessments, the Improvements in each Assessment District would not be provided, so the Improvements are “over and above” what otherwise would be provided. Many of the parcels would not even exist if the assessments were not established because an assessment for the specific Improvements within the Assessment Districts was a condition of development approval.

All of the Assessment proceeds derived from each Assessment District will be utilized to fund the cost of providing a level of tangible “special benefits” in the form of proximate parks, landscaping, and other permanent public improvements. The Assessments are also structured to provide specific Improvements within each Assessment District, further ensuring that the Improvements funded by the Assessments are of specific and special benefit to property within each Assessment District.

Although these Improvements may be available to the general public at large, the public landscaping and other public improvements in each Assessment District were specifically designed, located and created to provide additional and improved public resources for the direct advantage of property inside the Assessment District, and not the public at large. Other properties that are either outside an Assessment District or within an Assessment District and not assessed, do not enjoy the unique proximity, access, views and other special benefit factors described previously. Moreover, many of the homes and other improvements on parcels in the Assessment Districts would not have been built if the Assessments were not established because an assessment for public landscaping, and parks was a condition of development approval.

Item 9.e
City of Vacaville
Harmony Village Annexation to Existing Assessment Districts Engineer’s Report, FY 2026-27

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Benefit Finding
In summary, real property located within the boundaries of the Assessment Districts distinctly and directly benefits from closer proximity, access and views of Improvements funded by the Assessments, the creation of developable parcels and from the extension of usable land area provided by the assessments. The Improvements are specifically designed to serve local properties in each Assessment District, not other properties or the public at large. The Assessment Districts have been narrowly drawn to include those parcels that receive a direct advantage from the Improvements. The public at large and other properties outside the Assessment Districts receive only limited benefits from the Improvements because they do not have proximity, good access or views of the Improvements. These are special benefits to property in the Assessment Districts in much the same way that sewer and water facilities, sidewalks and paved streets enhance the utility and desirability of property and make them more functional to use, safer and easier to access.

Without the Assessments, the public improvements within the Assessment Districts would not be constructed or maintained. If this happened, it would create a significant and material negative impact on the desirability, utility and value of property in the Assessment Districts. The Improvements are, therefore, clearly above what otherwise would be provided. In fact, it is reasonable to assume that if Assessments were not collected and the Improvements were not maintained as a result, properties in the Assessment Districts would decline in desirability, utility and value by significantly more than the amount of the Assessments. We therefore conclude that all the Improvements funded by the Assessments are of special benefit to the identified benefiting properties located within the Assessment Districts and that the value of the special benefits from such Improvements to property in the Assessment Districts reasonably exceeds the cost of the Assessments for every assessed parcel in the Assessment Districts. (In other words, as required by Proposition 218: the reasonable cost of the proportional special benefit conferred on each parcel reasonably exceeds the cost of the assessments.) Parks Improvements
Although the analysis summarized above concludes that the benefits are solely special, as described above, consideration is made for a portion of the benefits from park and recreation Improvements being general because such improvements can be used by the public at large. Therefore, a more conservative approach for park and recreation Improvements is to estimate a percentage of general benefits from such Improvements and establish a requirement for funding from other sources to cover any general benefits from in the Assessment Districts with park and recreation Improvements.

Item 9.e
City of Vacaville
Harmony Village Annexation to Existing Assessment Districts Engineer’s Report, FY 2026-27

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One measure of general benefits from park and recreation Improvements is the percentage of time such park and recreation Improvements are used by individuals who are not residents, employees, customers or property owners in the Assessment Districts.

Field surveys conducted by SCI in many other similar communities in California have found that for similar local parks such as those within certain Assessment Districts, typically 5% of the park users do not live or work within the Assessment District. This is a measure of the general benefits to the public at large. When people outside the Assessment Districts use parks, they diminish the availability of parks for property within the Assessment Districts. Therefore, another 5% of general benefits are allocated for any general benefit to property within the Assessment Districts and any other benefits to property outside of the Assessment Districts. Combining these two measures of general benefits, we conclude that 10% of the benefits from the park and recreation Improvements may be general benefits.

For each Assessment District funding parks and recreation Improvements, the City will contribute from sources other than the assessments, a minimum of 10% to cover any general benefits. These contributions will serve to offset any general benefits.

Other Improvements
Quantification of General Benefit
Although the analysis used to support these assessments concludes that the benefits are solely special, as described above, consideration must be made that a portion of the benefits from the assessments for Improvements other than parks are general. General benefits cannot be funded by these assessments - the funding must come from other sources.

The maintenance and servicing of such Improvements are also partially funded, directly and indirectly from other sources including property owners, City of Vacaville, the County of Solano and the State of California. This funding comes in the form of grants, development fees, special programs, and general funds, as well as direct maintenance and servicing of ancillary facilities (e.g., curbs, gutters, streets, drainage systems, etc.).

This funding from other sources more than compensates for general benefits, if any, received by the properties within such Assessment Districts.

Item 9.e
City of Vacaville
Harmony Village Annexation to Existing Assessment Districts Engineer’s Report, FY 2026-27

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As noted earlier, in the 2009 Dahms case, the Court upheld an assessment that was 100% special benefit on the rationale that the services funded by the assessments were directly provided within the assessment district. It is also important to note that the improvements and services funded by the assessments in the Dahms case are similar to the improvements and services funded by the Assessments described in this Engineer’s Report, which the Court in Dahms found to be 100% special benefit. Also, similar to the assessments in Dahms, the Assessments described in this Engineer’s Report fund improvements and services directly provided within the Assessment Districts and every benefiting property in the Assessment Districts enjoys proximity and access to the Improvements. Therefore, Dahms establishes a basis for minimal or zero general benefits from the Assessments.

The General Benefits from these assessments may be quantified as illustrated in the following table.

TABLE 1 – GENERAL BENEFIT FACTORS
As a result, the City will contribute at least 1.2% of the total budget from sources other than the assessments. This contribution offsets any general benefits from the Assessment Services.

This general benefit contribution is the sum of the following components:

Relative
Relative General Benefit General
Benefit Factor Weight Contribution Benefit
Creation of parcels 90 0% 0
Access and extension of open space 2 10% 0.2
Noise reduction and improved security from soundwalls 2 10% 0.2 Improved views 4 10% 0.4
Improved nighttime visibility and safety from streetlights 2 20% 0.4 100 1.2
Total Calculated General Benefit = 1.2%
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The City owns, maintains, rehabilitates and replaces curb and gutter along the border of the Assessment District improvements. This curb and gutter serves to support, contain, retain, manage irrigation flow and growth, and provide a boundary for the improvements.

The contribution from the City towards general benefit from the maintenance, rehabilitation and replacement of the curb and gutter is conservatively estimated to be 1%.

The City owns and maintains local public streets along the border of the Assessment District improvements. These public streets provide access to the improvements for its enjoyment as well as efficient maintenance. The contribution from the City towards general benefit from the maintenance local public streets is conservatively estimated to be 1%.

The value of the construction of the improvements can be quantified and monetized as an annuity. Since this construction was performed and paid for by non-assessment funds, this “annuity” can be used to offset general benefit costs, and is conservatively estimated to contribute 25%.

Therefore the total General Benefit is conservatively quantified at 1.2% which is more than offset by the total non-assessment contribution towards general benefit of 27%.

Method of Assessment
The second step in apportioning assessments is to determine the relative special benefit for each property. This process involves determining the relative benefit received by each property in relation to a single family home, or, in other words, on the basis of Equivalent Dwelling Units (EDU). This EDU methodology is commonly used to distribute assessments in proportion to estimated special benefit and is generally recognized as providing the basis for a fair and appropriate distribution of assessments. For the purposes of this Engineer’s Report, all properties are designated an EDU value, which is each property’s relative benefit in relation to a single family home on one parcel. In this case, the "benchmark" property is the single family detached dwelling which is one Equivalent Dwelling Unit or one EDU.

Item 9.e
City of Vacaville
Harmony Village Annexation to Existing Assessment Districts Engineer’s Report, FY 2026-27

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Assessment Apportionment
The assessments are apportioned among all lots and parcels within the Assessment Districts on the basis of Equivalent Dwelling Units (EDU). This EDU methodology is commonly used to distribute assessments in proportion to estimated special benefit and is generally recognized as providing the basis for a fair and appropriate distribution of assessments. For the purposes of this Engineer’s Report, all properties are designated an EDU value, which is each property’s relative benefit in relation to a single family home on one parcel. The "benchmark" property is the single family detached dwelling which is equal to one Equivalent Dwelling Unit benefit factor.

The proposed assessments for Property proposed to be included in Trower Neighborhood Park Assessment District, Villages on Vine Street Setback Landscaping Assessment Districtand Villages on Vine Street Lighting Assessment District, would provide direct and special benefit to Properties in these Assessment Districts. The Harmony Village development consisting of single-family homes, with the annexation area consisting of 10 projected single-family units.

Therefore, the Engineer has determined that the appropriate method of apportionment of the benefits derived by all residential parcels is on an equivalent dwelling unit basis, and the appropriate method of apportionment of the benefits derived by all commercial/industrial parcels is on an acreage unit basis. All improved properties or properties proposed for development are assigned an EDU factor equal to the number of dwelling units developed or planned for the property, as shown in the table below. The assessments are listed on the Assessment Roll in Appendix B.

TABLE 2 – LAND USE/BENEFIT USE FACTORS
Property Type-Land Use EDU per Acre or Unit
Code
Single Family Residential 1.00
Multi-Family Residential 0.70
Vacant Land 0.30
Commercial & Industrial 1.00
Government & Non-taxable 0.00
Residential Properties
All improved residential properties that represent a single residential dwelling unit are assigned one Equivalent Dwelling Unit or 1.0 EDU. Traditional houses, zero-lot line houses, townhomes, and duplexes are included in this category.

Item 9.e
City of Vacaville
Harmony Village Annexation to Existing Assessment Districts Engineer’s Report, FY 2026-27

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The special benefits derived from the Landscaping and Lighting Assessment Districts are conferred on property and are not based on any one property owner’s use of the improvements. However, it is ultimately people who enjoy the special benefits described above, use the City’s grounds and facilities and control property values by placing a value on special benefits to be provided by the Districts. Therefore, the assessments are proportionately related to the relative number of people who live on, work at or otherwise use a property.

Properties with more than one residential unit are designated as multi-family residential properties. These properties benefit from the improvements in proportion to the number of dwelling units that occupy each property and the average number of people who reside in multi-family residential units versus the average number of people who reside in a single family home. The demographic factors for the City of Vacaville, as depicted below, provide the basis for determining the EDU factors for residential properties. Using the total population in the City of Vacaville from the 1990 Census (the most recent Census available at the outset of the City of Vacaville’s Landscaping and Lighting Assessment District formations) and dividing it by the total number of households, approximately 2.91 persons occupy each single family residence, whereas an average of 2.16 persons occupy each multi-family residence. Using the ratio of one EDU for each single-family residence, which equates to one EDU for every 2.91 persons, 0.7 EDU would equate to one multifamily unit or 0.7 EDU for every 2.16 persons.

Table 3 - Residential Assessment Factors
Total Persons EDU
Population Households per Household Factor

Single-Family Residential 49,371 16,954 2.91 1.0
Multi-Family Residential 11,761 5,442 2.16 0.7

Source: 1990 Census, City of Vacaville
Commercial/Industrial Properties
The EDU values for commercial and industrial land uses are based on the equivalence of special benefit on a land area basis between single family residential property and the average commercial/industrial property. In general, the variation in benefits received by a parcel, respectively, from the various improvements may be said to be proportional to the size of the parcel. Therefore, Commercial and Industrial parcels are assigned one Benefit Unit Factors (EDUs) per acre of land.

Item 9.e
City of Vacaville
Harmony Village Annexation to Existing Assessment Districts Engineer’s Report, FY 2026-27

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Vacant Residential Land
It is the Engineer’s determination that approximately 30% of the benefit from the Districts flows to the underlying land and approximately 70% of the benefit passes on the improvements made to each parcel. Therefore, vacant residential land is assigned 0.30 EDU per parcel, until the parcel is subdivided and improvements have commenced.

Parcels in the Harmony Village development shall not be levied until a building permit is issued for the parcel. After issuance of a building permit the improved property rates for the fiscal year shall be applied.

Other Properties
All properties that are benefited are assessed. Agricultural properties without living units, utilities, certain parcels owned by public agencies, church properties, common area parcels, cemeteries and schools are generally available to provide recreational, scenic or other benefits to the community. As such, they tend to provide similar benefits as the City’s properties that would be improved by the Landscaping and Lighting Assessment Districts. Any benefits they could receive are generally offset by the same benefits they provide. Moreover, parcels owned by a public agency or charitable organization have no assessed value and therefore do not receive the special benefit of specifically increased property values from the Landscaping and Lighting Districts. These parcels are, therefore, not specially benefited and are not assessed.

Item 9.e
City of Vacaville
Harmony Village Annexation to Existing Assessment Districts Engineer’s Report, FY 2026-27

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Assessment
WHEREAS, the City Council of the City of Vacaville, County of Solano, California, pursuant to the provisions of the Landscaping and Lighting Act of 1972 and Article XIIID of the California Constitution (collectively “the Act”), adopted its Resolution Initiating Proceedings for the annexation of the Harmony Village development (“Property”) to the Villages on Vine Street Setback Landscaping Assessment District, Villages on Vine Street Lighting Assessment District and Trower Neighborhood Park Assessment District; WHEREAS, said Resolution directed the undersigned Engineer of Work to prepare and file a report presenting an estimate of costs, a diagram for the Assessment Districts and an assessment of the estimated costs of the improvements upon all assessable parcels within the Assessment Districts, to which Resolution and the description of said proposed improvements therein contained, reference is hereby made for further particulars; NOW, THEREFORE, the undersigned, by virtue of the power vested in me under said Act and the order of the City Council of said City of Vacaville, hereby make the following assessments to cover the portion of the estimated cost of said improvements, and the costs and expenses incidental thereto to be paid by the Assessment Districts.

WHEREAS, the undersigned Engineer of Work has prepared and filed a report presenting an estimate of costs, a diagram for the Assessment Districts and an assessment of the estimated costs of the improvements upon all assessable parcels within the Assessment Districts;
NOW, THEREFORE, the undersigned, by virtue of the power vested in me under said Act and the order of the City Council of the City of Vacaville, County of Solano, California, hereby make the following assessment to cover the portion of the estimated cost of said improvements, and the costs and expenses incidental thereto to be paid by the Assessment Districts.

Item 9.e
City of Vacaville
Harmony Village Annexation to Existing Assessment Districts Engineer’s Report, FY 2026-27

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Summary Cost Estimates
The amount to be paid for improvements and expenses incidental thereto, that would have been paid by the annexation of Properties to the Trower Neighborhood Park Assessment District, Villages on Vine Street Setback Landscaping Assessment District and Villages on Vine Street Lighting Assessment District, for the Fiscal Year 2026-27, are fully detailed in the Engineer’s Report for the City of Vacaville Landscape and Lighting Assessment Districts. Reference is hereby made to said Report for further particulars regarding said annexations. Following are the current Assessment District budgets for Fiscal Year 2026-27. Assessments to properties in the Assessment Districts shall be in addition to the budget totals shown in the tables on the following pages.

Item 9.e
City of Vacaville
Harmony Village Annexation to Existing Assessment Districts Engineer’s Report, FY 2026-27

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Figure 4 – Trower Neighborhood Park Assessment District (Assessment District No. 10) - Summary Cost Estimates

FY 2026-27
BUDGET
Direct Costs $73,802
Administrative & Incidental Costs $2,512
Contribution to/(from) Reserve Fund $0
Contribution to/(from) Cap. Improv. Fund $0
General Fund Contribution for General Benefits ($7,631) General Fund Subsidy ($62,704)
TOTAL BUDGET $5,979
Budget to Assessment
Total Budget $5,979
Additional Budget Amount to be Paid by Annexation $1,087 Total EDU Units 10.00
*Rate per EDU Unit $108.70
*Including the authorized annual adjustment, the maximum, proposed fiscal year 2026-27 assessment rate per equivalent dwelling unit for the Trower Neighborhood Landscaping Assessment District is $108.70.

Item 9.e
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Figure 5 – Annexation to Villages on Vine Street Setback Landscaping Assessment District
(Assessment District No. 107) - Summary Cost Estimates

FY 2026-27
BUDGET
Direct Costs $6,513
Administrative & Incidental Costs $566
Contribution to/(from) Reserve Fund $0
Contribution to/(from) Cap. Improv. Fund ($2,497)
General Fund Contribution toward Special Benefits $0
TOTAL BUDGET $4,582
Budget to Assessment
Total Budget $4,582
Additional Budget Amount to be Paid by Annexation $580
Total EDU Units 10.00
*Rate per EDU Unit $58.00
*Including the authorized annual adjustment, the maximum, proposed fiscal year 2026-27 assessment rate per equivalent dwelling unit for the Villages on Vine Setback Landscaping Assessment District is $274.14.

Item 9.e
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Figure 6 – Annexation to Villages on Vine Street Lighting Assessment District (Assessment District No. 108) - Summary Cost Estimates
FY 2026-27
BUDGET
Direct Costs $3,904
Administrative & Incidental Costs $706
Contribution to/(from) Reserve Fund $2,000
Contribution to/(from) Cap. Improv. Fund $1,463
General Fund Contribution toward Special Benefits $0
General Fund Contribution toward General Benefits $0
TOTAL BUDGET $8,072
Budget to Assessment
Total Budget $8,072
Additional Budget Amount to be Paid by Annexation $1,022 Total EDU Units 10.00
*Rate per EDU Unit $102.18
*Including the authorized annual adjustment, the maximum, proposed fiscal year 2026-27 assessment rate per equivalent dwelling unit for the Villages on Vine Lighting Assessment District is $105.25.

Item 9.e
City of Vacaville
Harmony Village Annexation to Existing Assessment Districts Engineer’s Report, FY 2026-27

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As required by the Act, an Assessment Diagram is hereto attached and made a part hereof showing the exterior boundaries of said Trower Neighborhood Park Assessment District, Villages on Vine Street Setback Landscaping Assessment District and Villages on Vine Street Lighting Assessment District. The distinctive number of each parcel or lot of land in said property proposed for annexation into existing City of Vacaville Assessment Districts, is its Assessor Parcel Number appearing on the Assessment Roll.

And I do hereby assess and apportion said net amount of the cost and expenses of said improvements, including the costs and expenses incident thereto, upon the parcels and lots of land within said Trower Neighborhood Park Assessment District, Villages on Vine Street Setback Landscaping Assessment District and Villages on Vine Street Lighting Assessment District, in accordance with the special benefits to be received by each parcel or lot from the improvements, and more particularly set forth in the Cost Estimate and Method of Assessment hereto attached and by reference made a part hereof.

The assessments are made upon the parcels or lots of land within Trower Neighborhood Park Assessment District, Villages on Vine Street Setback Landscaping Assessment District and Villages on Vine Street Lighting Assessment District, in proportion to the special benefits to be received by the parcels or lots of land, from said improvements.

The assessments are subject to an annual adjustment tied to the Consumer Price Index for the San Francisco Bay Area as of December of each succeeding year, with the maximum annual adjustment not to exceed 3%. In the event that the annual change in the CPI exceeds 3%, any percentage change in excess of 3% can be cumulatively reserved and can be added to the annual change in the CPI for years in which the CPI change is less than 3%. Including the authorized annual adjustment, the maximum, proposed fiscal year 2026-27 assessment rate per equivalent dwelling unit for the Trower Neighborhood Park Assessment District (Assessment District #10) is $108.70, Villages on Vine Street Setback Landscaping Assessment District (Assessment District #107) is $274.14 and Villages on Vine Street Lighting Assessment District (Assessment District #108) is $105.25.

Each parcel or lot of land is described in the Assessment Roll by reference to its parcel number as shown on the Assessor's Maps of the County of Solano for the fiscal year 2026-

27. For a more particular description of said property, reference is hereby made to the deeds and maps on file and of record in the office of the County Recorder of said County.

Item 9.e
City of Vacaville
Harmony Village Annexation to Existing Assessment Districts Engineer’s Report, FY 2026-27

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I hereby place opposite the Assessor Parcel Number for each parcel or lot within the Assessment Roll, the amount of the assessment for the fiscal year 2026-27 for each parcel or lot of land within the Trower Neighborhood Park Assessment District, Villages on Vine Street Setback Landscaping Assessment District and Villages on Vine Street Lighting Assessment District.

Dated: August 27, 2026
Engineer of Work
By .

John Bliss, License No. C52091
Item 9.e
City of Vacaville
Harmony Village Annexation to Existing Assessment Districts Engineer’s Report, FY 2026-27

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Appendices
Appendix A – Assessment Diagram
Appendix B – Assessment Roll, FY 2026-27
Item 9.e
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Appendix A – Assessment Diagram
The boundaries of the Property proposed to be annexed into the Trower Neighborhood Park Assessment District, Villages on Vine Street Setback Landscaping Assessment District and Villages on Vine Street Lighting Assessment District are displayed on the following Assessment Diagram.

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City of Vacaville
Harmony Village Annexation to Existing Assessment Districts Engineer’s Report, FY 2026-27

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Appendix B – Assessment Roll, FY 2026-27
The Assessment Roll (a listing of all parcels proposed to be included in the Trower Neighborhood Park Assessment District, Villages on Vine Street Setback Landscaping Assessment District and Villages on Vine Street Lighting Assessment District, and the amount of the assessments) will be filed with the City Clerk and is, by reference, made part of this report and is available for public inspection during normal office hours. The Assessment Roll is shown below.

Each lot or parcel listed on the Assessment Roll is shown and illustrated on the latest County Assessor records and these records are, by reference made part of this report.

These records shall govern for all details concerning the description of the lots or parcels.

Note: The assessments listed above are based on the following improved property rates per equivalent dwelling unit (EDU) for Fiscal Year 2026-27 for the existing Assessment Districts:

Trower Neighborhood Park Assessment District #10 $108.70 Vine Street Setback Landscaping Assessment District #107 $58.00 Vine Street Lighting Assessment District #108 $102.18
These rates do not include the allowable escalation factor for future years. Including the allowable escalation factor, the maximum amounts that could be levied for fiscal year 2026-27 are depicted on the following table.

2026-27 2026-27 2026-27
Developed Developed Developed
Property Property Property
Assessment Assessment Assessment
Parcel Owner 10 107 108
0129-310-360 SOLANO-NAPA HABITAT FOR HUMANITY INC $0.00 $0.00 $0.00 0129-310-370 SOLANO-NAPA HABITAT FOR HUMANITY INC $108.70 $58.00 $102.18 0129-310-400 SOLANO-NAPA HABITAT FOR HUMANITY INC $217.40 $116.00 $204.36 0129-310-230 SOLANO-NAPA HABITAT FOR HUMANITY INC $217.40 $116.00 $204.36 0129-310-250 SOLANO-NAPA HABITAT FOR HUMANITY INC $217.40 $116.00 $204.36 0129-310-240 SOLANO-NAPA HABITAT FOR HUMANITY INC $108.70 $58.00 $102.18 0129-310-260 SOLANO-NAPA HABITAT FOR HUMANITY INC $217.40 $116.00 $204.36 $1,087.00 $580.00 $1,021.80
Item 9.e
City of Vacaville
Harmony Village Annexation to Existing Assessment Districts Engineer’s Report, FY 2026-27

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The assessments listed above are based on the following improved property rates per equivalent dwelling unit (EDU) for Fiscal Year 2026-27:

Trower Neighborhood Park Assessment District # 10 $108.70 Vine Street Setback Landscaping Assessment District #107 $274.14 Vine Street Lighting Assessment District #108 $105.25
These are the maximum rates for fiscal year 2026-27 that may be levied. Parcels shall not be levied until a building permit is issued for the parcel. After issuance of a building permit the improved property rate for the fiscal year shall be applied, as increased annually by the CPI adjustment.
2026-27 2026-27 2026-27
Developed Developed Developed
Property Property Property
Assessment Assessment Assessment
Parcel Owner 10 107 108
0129-310-360 SOLANO-NAPA HABITAT FOR HUMANITY INC $0.00 $0.00 $0.00 0129-310-370 SOLANO-NAPA HABITAT FOR HUMANITY INC $108.70 $274.14 $105.25 0129-310-400 SOLANO-NAPA HABITAT FOR HUMANITY INC $217.40 $548.28 $210.50 0129-310-230 SOLANO-NAPA HABITAT FOR HUMANITY INC $217.40 $548.28 $210.50 0129-310-250 SOLANO-NAPA HABITAT FOR HUMANITY INC $217.40 $548.28 $210.50 0129-310-240 SOLANO-NAPA HABITAT FOR HUMANITY INC $108.70 $274.14 $105.25 0129-310-260 SOLANO-NAPA HABITAT FOR HUMANITY INC $217.40 $548.28 $210.50 $1,087.00 $2,741.40 $1,052.50
Item 9.e
Item 9.e
Item 9.e

CITY OF VACAVILLE

CITY COUNCIL

STAFF REPORT
Meeting Date: September 22, 2026
To: Honorable Mayor and City Council Members
Attention: Savita Chaudhary, City Manager
From: Frank Drayton, Fire Chief
(Ryan Purnell, Deputy Fire Chief (707) 449-4285)
Subject: Resolution of the City Council of the City of Vacaville Accepting the Grant and Appropriating Funds Related to the State of California Office of Traffic Safety Through the National Highway Traffic Safety Administration Regional Crash
Response and Extrication Improvement Program and
Authorizing the Implementation of the Grant Objectives; and Approval of a Budget Adjustment to the 2026-27 Fiscal Year Operating Budget in the Amount of $60,000
Actions for Consideration:

Consider a resolution accepting grant funding awarded by the State of California Office of Traffic Safety (“OTS”), through the National Highway Traffic Safety Administration, for the purchase of extrication equipment, which will enhance the Vacaville Fire Department’s ability to reduce extrication times and improve survivability for crash victims.

Recommendations:

By simple motion, adopt the subject resolution.

Background:

Each federal fiscal year, the OTS, through the National Highway Traffic Safety Administration, offers grant funding to fire departments through the Regional Crash Response and Extrication Improvement Program. The program supports equipment purchases and training to enhance emergency responses to traffic collisions, with an emphasis on extrication capabilities.

Extrication equipment is a critical tool in improving patient outcomes following motor vehicle crashes. In 2025 alone, the Vacaville Fire Department responded to more than 530 motor vehicle accidents - nearly a 20% increase in the last five years. As collisions grow in frequency and Item 9.f
severity, it is imperative that the Vacaville Fire Department is equipped with the necessary tools to provide swift and effective response operations.

Grant applications submitted to OTS are evaluation and ranked using the Empirical Bayesian Ranking Method, which considers population size, vehicle miles traveled, crash data, and collision trends. Approved grant applications are forwarded to the California State Transportation Agency for final consideration and funding approval.

Vacaville was selected as a recipient of this competitive grant and has received a final grant agreement. Upon City Council approval and execution of the agreement, staff will initiate implementation of the program objectives. A detailed program timeline will be established, and a financial tracking system will be implemented to ensure compliance with OTS grant guidelines.

Discussion:

The OTS has tentatively awarded the Vacaville Fire Department sixty thousand dollars ($60,000) in grant funding for fiscal year 2026-2027 under the Regional Crash Response and Extrication Improvement Program.

The grant will fund the purchase of one fully equipped extrication system and battery packs. The Vacaville Fire Department will also conduct training for personnel to ensure safe and effective use of the new equipment. Additionally, the equipment will be showcased during traffic safety and public education events, helping to increase community awareness about its role in life-saving emergency response.

Environmental Impact:

Fiscal Impact:

There is no matching requirement associated with this grant; therefore, there is no fiscal impact of the General Fund.

Amount Requested: $60,000
Funding Source: Fire Department OTS Grant (2929). The grant funding is provided by the California Office of Traffic Safety (OTS) through the Regional Crash Response and Extrication Improvement Program grant.

Budget Distribution: If approved by Council, the Fire Department’s FY 2026-2027 operating budget will be amended by $60,000, with the related revenues and expenditures tracked in an existing special revenue fund.

Item 9.f
Alternatives:

The City Council may choose to reject the grant. However, staff do not recommend this option, as doing so would forgo funding that supports critical life-saving extrication equipment and training, which is essential for improving emergency response and survivability for traffic collision victims.

Strategic Plan Goal:

Public Safety and Infrastructure
Subject to Levine Act:

No
Attachments:

Subject Resolution
Attachment 1: State of California Office of Traffic Safety Grant Agreement – Grant Number EM27021
Item 9.f

CITY OF VACAVILLE
RESOLUTION NO. 2026-
Resolution of the City Council of the City of Vacaville Accepting the Grant and Appropriating Funds Related to the State of California Office of Traffic Safety Through the National Highway Traffic Safety Administration Regional Crash Response and Extrication Improvement Program and Authorizing the Implementation of the Grant Objectives; and Approval of a Budget Adjustment to the 2026-27 Fiscal Year Operating Budget in the Amount of $60,000 Whereas, the State of California Office of Traffic Safety (OTS) through the National Highway Traffic Safety Administration offers grant funding to fire departments through the Regional Crash Response and Extrication Improvement Program to support the acquisition of extrication equipment and related training; and
Whereas, the Vacaville Fire Department submitted a grant application and was selected to receive funding in the amount of $60,000 for the purchase of extrication equipment, including one fully equipped extrication system and associated equipment; and Whereas, the grant does not have an associated matching requirement and no funds are requested for this item; and
Whereas, the City Council desires to accept the grant and authorize staff to implement the objectives and expenditures as outlined in the grant agreement, in compliance with the OTS grant guidelines.

Now, therefore, be it resolved by the City Council of the City of Vacaville that the City Council does hereby

1. Accept the grant award of $60,000 from the California Office of Traffic Safety through the National Highway Traffic Safety Program.

2. The City Manager, or their designee, is hereby authorized to execute the California Office of Traffic Safety Regional Crash Response and Extrication Improvement Program grant agreement and directed to implement the grant objectives.

3. The Finance Director is authorized to establish a special revenue fund to track grant expenditure and to make all necessary budget adjustments to appropriate the funds in accordance with the grant guidelines.

Ayes:

Noes:

Item 9.f

Absent:

Attest:
_____________________________
Michelle A. Thornbrugh, City Clerk
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Item 9.f

CITY OF VACAVILLE

CITY COUNCIL

STAFF REPORT
Meeting Date: September 22, 2026
To: Honorable Mayor and City Council Members
Attention: Savita Chaudhary, City Manager
From: Chris Polen, Police Chief
(Staff Contact, Rob Myers, Police Lieutenant (707) 469-4769) Subject: Resolution of the City Council of the City of Vacaville approving the acceptance and Appropriation of State of
California Office of Traffic Safety Selective Traffic Enforcement Program Fiscal Year 2026-27 Grant Funding for Traffic Safety Enforcement and Training; and approval of a budget
adjustment to the 2026-27 fiscal year operating budget in the amount of $102,400
Actions for Consideration:

Adoption of the subject resolution to approve the acceptance and appropriation of the State of California Office of Traffic Safety Selective Traffic Enforcement Program (STEP) Fiscal Year 2026-27 grant funding in the amount of $102,400 for the enforcement of traffic-related laws to reduce injury and fatal traffic collisions.

Recommendations:

By simple motion, adopt the subject resolution.

Background:

Each federal fiscal year, the State of California Office of Traffic Safety (OTS) makes grant funding available for law enforcement agencies through the Selective Traffic Enforcement Program by way of an application process.

The awarded State of California Office of Traffic Safety Selective Traffic Enforcement Program grant funding for the 2026-2027 fiscal year for Vacaville will be $102,400. Awarded grant funds must supplement and not supplant existing funding for law enforcement services.

The funds must be used to develop best practice strategies to reduce the number of persons killed and injured in crashes involving alcohol and other primary collision factors. The funded strategies Item 9.g
may include impaired driving enforcement, enforcement operations focusing on primary collision factors, distracted driving, night-time seat belt enforcement, special enforcement operations encouraging motorcycle safety, enforcement, and public awareness in areas with a high number of bicycle and pedestrian collisions, and educational programs. These strategies are designed to earn media attention thus enhancing the overall deterrent effect. Funds can also be used to cover costs associated with training staff in the detection and enforcement of impaired driving.

Discussion:

The Vacaville Police Department applied for a state of California Office of Traffic Safety Selective Traffic Enforcement Program (STEP) grant to enhance the safety of motorists and community members in the City of Vacaville. Each year the Office of Traffic Safety reviews all applications submitted and ranks them accordingly. Then rankings, which are developed using the Empirical Bayesian Ranking or EB Method, factors in not only population and daily vehicle mile traveled but also crash records and trends. The OTS then sends each application to the California State Transportation Agency for approval. Vacaville was selected as a grant recipient and provided a tentative grant agreement. Subsequently, the grant agreement is executed and approved by the Council. Therefore, we start implementing the proposed operations and activities. A schedule of the specific operations and activities is put in place and a timeline is established. A financial tracking system is created to ensure all expenditures regarding the grant comply with the OTS STEP grant guidelines. At this point, the operations and activities are initiated. A quarterly claim and quarterly progress report is submitted.

The funding from the OTS will be used for numerous programs, including:
• DUI/driver's license checkpoints;
• DUI saturation patrols targeting drivers suspected of operating a vehicle while impaired by alcohol and/or drugs;
• High-visibility distracted driving enforcement operations targeting violations of California's hands-free cell phone laws;
• Traffic enforcement operations targeting primary collision factors, including speeding, unsafe turns, failure to obey traffic signals and stop signs, right-of-way violations, and other dangerous driving behaviors;
• Bicycle and pedestrian safety enforcement operations targeting violations by drivers, bicyclists, and pedestrians that contribute to traffic collisions; • Collaborative traffic enforcement operations conducted in partnership with neighboring law enforcement agencies;
• Traffic safety education and community outreach addressing impaired driving, distracted driving, speeding, and bicycle and pedestrian safety; and • Approved officer training related to impaired-driving detection, traffic enforcement, and other OTS-approved traffic safety programs.

Item 9.g
Environmental Impact:

Fiscal Impact:

There is no matching funds required for this grant resulting in no fiscal impact to the General Fund.

Amount Requested: $102,400
Funding Source: Police Department’s OTS STEP Grant (2056). The grant funding is provided by the California Office of Traffic Safety (OTS) through the Selective Traffic Enforcement Program (STEP) grant.

Budget Distribution: If approved by Council, the Police Department’s FY 2026-2027 operating budget will be amended by $102,400, with the related revenues and expenditures tracked in an existing special revenue fund.

Alternatives:

The Council could choose not to accept the grant and associated funding; however, this is not recommended as rejection of the grant would eliminate funding allocated to promote traffic safety.

Strategic Plan Goal:

Public Safety and Infrastructure
Subject to Levine Act:

No
Attachments:

Resolution – Action Item
Attachment 1: State of California Office of Traffic Safety Grant Agreement (draft)– Grant Number PT27167
Item 9.g

CITY OF VACAVILLE
RESOLUTION NO. 2026-
Resolution of the City Council of the City of Vacaville approving the acceptance and Appropriation of State of California Office of Traffic Safety Selective Traffic Enforcement Program Fiscal Year 2026-27 Grant Funding for Traffic Safety Enforcement and Training; and approval of a budget adjustment to the 2026-27 fiscal year operating budget in the amount of $102,400
Whereas, the State of California Office of Traffic Safety Selective Traffic Enforcement Program funding to the City of Vacaville is $102,400 to be used for traffic safety enforcement and training; and
Whereas, awarded grant funds must supplement and not supplant existing funding for law enforcement services; and
Whereas, the funding from the OTS will be used for numerous programs, including:
• DUI/driver's license checkpoints;
• DUI saturation patrols targeting drivers suspected of operating a vehicle while impaired by alcohol and/or drugs;
• High-visibility distracted driving enforcement operations targeting violations of California's hands-free cell phone laws;
• Traffic enforcement operations targeting primary collision factors, including speeding, unsafe turns, failure to obey traffic signals and stop signs, right-of-way violations, and other dangerous driving behaviors;
• Bicycle and pedestrian safety enforcement operations targeting violations by drivers, bicyclists, and pedestrians that contribute to traffic collisions; • Collaborative traffic enforcement operations conducted in partnership with neighboring law enforcement agencies;
• Traffic safety education and community outreach addressing impaired driving, distracted driving, speeding, and bicycle and pedestrian safety; and • Approved officer training related to impaired-driving detection, traffic enforcement, and other OTS-approved traffic safety programs.

Now, therefore, be it resolved by the City Council of the City of Vacaville that the City Council does hereby .

Ayes:

Noes:

Item 9.g

Absent:

Attest:
_____________________________
Michelle A. Thornbrugh, City Clerk
Item 9.g

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MINUTES OF THE JOINT REGULAR MEETING OF THE CITY COUNCIL,

SUCCESSOR AGENCY TO THE REDEVELOPMENT AGENCY,

GROUNDWATER SUSTAINABILITY AUTHORITY

AND PUBLIC FINANCING AUTHORITY

OF THE CITY OF VACAVILLE
Tuesday, September 08, 2026

1. Roll Call for Closed Session - 5:00 pm
The Mayor called the Closed Session Meeting of the City Council to order at 5:00 pm in the Vacaville Council Chamber located at 650 Merchant St.

Present:

John Carli, Mayor
Michael Silva, Vice Mayor, District 3
Roy Stockton, District 1 - arrived at 5:17pm
Greg Ritchie, District 2
Sarah Chapman, District 4
Ted Fremouw, District 5
Jeanette Wylie, District 6

Absent: None

1.a Public Employment (Pursuant to Government Code Section 54957(b)(1)) Position:

Fire Chief

1.b Conference with Legal Counsel - Anticipated Litigation

2. Roll Call for the Regular Meeting - 6:00 pm
The Mayor called the Regular Meeting of the City Council to order at 6:00 pm in the Vacaville Council Chamber located at 650 Merchant St.

Present:

John Carli, Mayor
Michael Silva, Vice Mayor, District 3
Roy Stockton, District 1
Greg Ritchie, District 2
Sarah Chapman, District 4
Ted Fremouw, District 5
Jeanette Wylie, District 6

Absent: None

3. Moment of Silence followed by the Pledge of Allegiance A moment of silence was observed, and Councilmember Chapman led the Pledge of Allegiance.

4. Report out of Closed Session
Item 1.b Conference with Legal Counsel - The City Council met in closed session pursuant to Government Code Section 54956.9 to discuss with legal counsel regarding the initiation of litigation Item 9.h
seeking appointment of a receiver for the property located at 107 Almanor Drive, Vacaville, California. By a vote of 7-0, the City Council authorized the City Attorney's Office to initiate litigation seeking the appointment of a receiver for the property at 107 Almanor Drive pursuant to health and safety code section 107980.7 due to substandard and unsafe building conditions, code violations and public nuisance.

5. Approval of Agenda
On a motion by Councilmember Fremouw, seconded by Councilmember Stockton, the Council unanimously approved the agenda of the regular meeting as written.

6. Reports of the City Council

6.a Update on Recent Attended Boards, Commissions, and Committee Meetings Councilmember Stockton encouraged the community to attend upcoming events: Saturday, September 12th the Downtown Shakedown Car Show and Friday, September 18th the National POW/MIA recognition day and a ceremony at the Veteran's Memorial outside of Vacaville City Hall.

Mayor Carli will be attending the Solano Transportation Authority (STA) meeting as well as a joint meeting of two specific committees. He also mentioned that he recently attended the opening of The Club at 3777 Vaca Valley Parkway. They are open 24 hours a day and offer full service for league play for pickleball and badminton. They have a membership component, but they are looking to partner with other community groups.

Councilmember Chapman reported that the Citizens Advisory Committees continue to do good work with the incarcerated community and they have 35 inmates completing the new Bachelor's degree program which was recently highlighted in the newspaper. They also have many career technical programs in the making. Lastly, Councilmember Chapman thanked the Mayor, Vice Mayor, and Councilmember Stockton for attending and speaking on behalf of the Council at the recent community meeting on battery energy storage systems (BESS).

Councilmember Wylie mentioned that she recently attended a League of California Cities meeting in American Canyon. It featured guest speakers that focused on the impacts of HR1 in the medical realm, the effect on residents and how to prepare. She also mentioned that the Yolo Solano Air Quality Management District Meeting is this week.

7. Reports of City Manager
CM Chaudhary announced that applications are being accepted for the Sales Tax Citizen's Oversight Committee. For more information, the community can visit https://www.cityofvacaville.gov/government/city-commissions-committees/sales-tax-citizens-oversightcommittee.

8. Presentations

8.a I-80 Solano Express Lanes Operations and Weekend Pilot Update Council received a presentation on I-80 Solano Express Lanes Operations and Weekend Pilot from Nick Burton, Director of Projects, Solano Transportation Authority.

9. Consent Calendar
On a motion by Councilmember Chapman, seconded by Councilmember Ritchie, the Council Item 9.h
unanimously approved the agenda of the regular meeting as written.

9.a Resolution Updating the City of Vacaville Standard Conflict of Interest Code Approved Resolution No. 2026-132; Resolution Updating the City of Vacaville Standard Conflict of Interest Code

9.b Approval of Minutes – Approve the Minutes for the Meeting of August 25, 2026 Approved; Approval of Minutes – Approve the Minutes for the Meeting of August 25, 2026

9.c Approval of Accounts Payable and Payment of Payroll Claims for the Weeks Ending August 21, 2026; and August 28, 2026; and Wire and ACH Disbursements for the Month of August 2026
Approved; Approval of Accounts Payable and Payment of Payroll Claims for the Weeks Ending August 21, 2026; and August 28, 2026; and Wire and ACH Disbursements for the Month of August 2026

9.d Resolution Approving Two (2) Agreements and Contract Amendments Totaling $1,122,911.31 Supporting Essential City Operations, Capital Projects, Regulatory Compliance, and Organizational Services
Approved Resolution No. 2026-133; Resolution Approving Two (2) Agreements and Contract Amendments Totaling $1,122,911.31 Supporting Essential City Operations, Capital Projects, Regulatory Compliance, and Organizational Services

10. Business from the Floor
Click on the link to listen to public comment on items within the Council's jurisdiction but not listed on the agenda. Topics include: upcoming Air Quality Summit on Sat Oct 17, proposed data center in Fairfield industrial park, Councilmember Ritchie's comments at previous meeting regarding proposed park, Malaquias Montoya Community Center, and recent BESS meeting,

11. Public Hearings - None

11.a Resolution Adopting the 2026 Agricultural and Avian Species Impact Mitigation Fee Study Update; Updating the Agricultural and Avian Species Foraging Habitat Mitigation Fee Schedule by Increasing the Agriculture-Only Mitigation Fee from $4,687 per acre to $8,800 per acre, Maintaining the Avian-Only Mitigation Fee at $7,832 per acre, and Maintaining the Agriculture and Avian Species (Stacked) Mitigation Fee at $12,832 per acre
Motion: Vice Mayor Silva
Second: Councilmember Wylie
Action: Approve Resolution No. 2026-134 Adopting the 2026 Agricultural and Avian Species Impact Mitigation Fee Study Update; Updating the Agricultural and Avian Species Foraging Habitat Mitigation Fee Schedule by Increasing the Agriculture-Only Mitigation Fee from $4,687 per acre to $8,800 per acre, Maintaining the Avian-Only Mitigation Fee at $7,832 per acre, and Maintaining the Agriculture and Avian Species (Stacked) Mitigation Fee at $12,832 per acre
Ayes (7): Mayor Carli, Councilmember Stockton, Councilmember Ritchie, Vice Mayor Silva, Councilmember Chapman, Councilmember Fremouw, and Councilmember Wylie Item 9.h
Vote Approved (7 to 0)

12. Business

12.a Resolution to Authorize an Exclusive Negotiating Rights Agreement with Community Development Partners for Development of Affordable Housing on City-Owned Property Located North of and Adjacent to the Vacaville Transportation Center on Allison Drive to Implement the Housing Element of the General Plan and Advance Transit-Oriented Development Objectives within the Allison Priority Development Area
Motion: Vice Mayor Silva
Second: Councilmember Ritchie
Action: Approve Resolution No. 2026-135 to Authorize an Exclusive Negotiating Rights Agreement with Community Development Partners for Development of Affordable Housing on City-Owned Property Located North of and Adjacent to the Vacaville Transportation Center on Allison Drive to Implement the Housing Element of the General Plan and Advance Transit-Oriented Development Objectives within the Allison Priority Development Area
Ayes (7): Mayor Carli, Councilmember Stockton, Councilmember Ritchie, Vice Mayor Silva Councilmember Chapman, Councilmember Fremouw, and Councilmember Wylie Vote Approved (7 to 0)

13. Adjournment
There being no further business, the regular meeting was adjourned at 7:54 p.m.

Item 9.h

CITY OF VACAVILLE

CITY COUNCIL

STAFF REPORT
Meeting Date: September 22, 2026
To: Honorable Mayor and City Council Members
Attention: Savita Chaudhary, City Manager
From: Ken Matsumiya, Director of Finance
(Crystal Fair Welty, Management Analyst II (707) 449-5121) Subject: Approval of Accounts Payable and Payroll Payment of Claims for the Weeks Ending September 4, 2026; and September 11, 2026
Actions for Consideration:

Approval of payments drawn in accordance with the City’s approved budget.

Recommendations:

By simple motion, adopt the subject resolution.

Background:

The City’s Finance Department is responsible for ensuring the financial obligations of the City are met in a timely and efficient manner. Accounts Payable processes payments to external vendors on a weekly basis and employee payroll is processed biweekly while any payments requiring remittance by wire transfer are paid on an as-needed basis throughout the month.

Pursuant to California Government Code Section 37208, payments drawn in accordance with the City’s approved budget need not be ratified by the legislative body prior to payment. The payment of claims registers shall be presented to the legislative body for ratification and approval at the first meeting after delivery of the checks. The Finance Director has submitted the register(s) showing the payment of claims for the timeframe above for approval by the City Council.

Environmental Impact:

Item 9.i
Fiscal Impact:

The claims paid for the period total $7,693,869.18
Amount Requested: There are no funds requested for this item.

Funding Source: Various
Budget Distribution: The costs of staff time associated with this item are covered within the existing Finance Department operating budget.

Alternatives:

No alternative recommendation.

Strategic Plan Goal:

Fiscal Health
Subject to Levine Act:

No
Attachments:

Attachment 1: Affidavit of Finance Director
Item 9.i
Affidavit of Finance Director Attachment 1
Accounts Payable Check Register(s) for Week Ending: Register Total(s) September 4, 2026 $ 4,238,235.76
September 11, 2026 $ 1,110,166.67
Payroll Check Register(s) for Week Ending: Register Total(s) September 4, 2026 $ -
September 11, 2026 $ 2,345,466.75
Grand Total $ 7,693,869.18
_______________________________________________________________________________ Ken Matsumiya, Finance Director
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K
M
••••• munis City of Vacaville, CA - Live ... i a tyler erp solution

AP CHECK RECONCILIATION REGISTER
C o(^. \ o. zy i
FOR CASH ACCOUNT: 9999.00.0000.1011 FOR: uncleared
[CHECK # CHECK DATE TYPE VENDOR NAME UNCLEARED CLEARED BATCH CLEAR DATE 582537
582538
582539
582540
582541
582542
582543
582544
582545
582546
582547
582548
582549
582550
582551
582552
582553
582554
582555
582556
582557
582558
582559
582560
582561
582562
582563
582564
582565
582566
582567
582568
582569
582570
582571
582572
582573
582574
582575
582576
582577
582578
582579
582580
582581
582582
582583
582584
582585
582586
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
09/10/2026
026699
027483
024574
034874
001997
002338
042140
043792
003741
039241
025259
004113
004698
005692
044369
005804
005884
005909
006527
025101
025468
040080
007121
040790
045117
038250
044510
040683
026994
009317
033559
030770
027385
040358
023481
011231
034324
000434
039759
011854
043192
043113
045008
033191
012680
042488
037030
012788
013137
043817
2,268.00
1,480.12 616.93
17,641.90
1,871.42
2,848.87
184.00
3,900.00
20,801.25
280.70
2,713.72
7,218.50
6,666.66
2,447.57
4,961.70
1,575.62
1,430.55
24,511.28
922.56
206.40
13,275.12
910.80
585.00
3,368.46
3,746.00
1,778.74
119,719.00
3,192.50
847.37
87,839.60
11,957.56
1,570.80
16,550.00

14.56 8,874.12
45,973.07
1,350.00
7,000.60
9,180.00
330.00
128.40
5,299.50
1,708.96
19,307.55
55,155.08
2,737.01
13,142.34
14,439.30
1,105.79
304.67

EFT ANTHONY CAMUTI

AREA WEST ENVIRONMENTAL I

BOUND TREE MEDICAL, LLC

BSK ASSOCIATES

CALTEST ANALYTICAL LAB

CHANCELLOR PRINTING

CHRISTIANE NOELTING DRESS

GREGORY TAWNEY

ECONOMIC & PLANNING SYSTE

EVANTEC CORPORATION

FASTENAL COMPANY

FEHR & PEERS

GEORGE HILLS COMPANY, INC

HORIZON

HUNT & SONS LLC

HUNT OIL OF CALIFORNIA

IDEXX DISTRIBUTION CORP

INFOSEND INC

KIMBALL MIDWEST

LAUREN COUGHLAN

LIFE-ASSIST INC

LINDA DOGUE HOLLIMAN

LOPEZ INVESTIGATIVE SERVI

MAZZEI CHEVROLET INC

MICHAEL K NUNLEY & ASSOCI
NFI.PARTS

NTH GENERATION COMPUTING,

P & A ADMINISTRATIVE SERV
THE PAPE GROUP, INC.

PG&E

PLACEWORKS

PLAY-WELL TEKNOLOGIES

PRIME TIME LIVING MAGAZIN
REXEL USA, INC.

RON DU PRATT FORD

SOLANO COUNTY WATER AGENC

SOLUTIONS FOR TRANSIT

AMERICAN TOWER CORP

SUPERIOR BUILDING SERVICE

T-MOBILE USA, INC

TORI CARR

TRIUMPH PROTECTION GROUP,

UNDERGROUND REPUBLIC WATE

UNIVAR SOLUTIONS USA, INC

VENUETECH MANAGEMENT GROU

VESTIS SERVICES, LLC
CALMAT CO.

VWR INTERNATIONAL

WHITE CAP LP

WOODLAND WINDUSTRIAL CO
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
EFT
50 CHECKS CASH ACCOUNT TOTAL 555,939.65 .00
Report generated: 09/08/2026 15:36 user: 6582jmallory Program ID: apchkrcn

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mums City of Vacaville, CA - Live a tyler erp solution

AP CHECK RECONCILIATION REGISTER

UNCLEARED CLEARED
50 CHECKS FINAL TOTAL 555,939.65 .00
** END OF REPORT - Generated by Jennifer Mallory **
Report generated: 09/08/2026 15:36 6582imanory apchkrcn

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user:

Program id:

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City of Vacaville, CA - Live

DETAIL PROOF - FINAL REPORT
Report generated: 09/09/2026 15:37
User: 6582szamora
Program ID: prpyddpf

Page 497 ends

Pay Period 08/16/26 To 08/29/26
WARRANT: 091126 PAYROLL TYPE: BIWEEKLY C CHECK DATE: 09/11/2026 Earnings-Deductions Proof Summaries
Total: 3,584,583.00 2,721,707.10
Total Females: 336 Gross Pay: 1,091,926.07
Total Males: 519 Gross Pay: 2,500,906.29
Total Employees: 855 Gross Pay: 3,592,832.36
Total Pre-Notes: 0
Benefits Only Employees: 605 Employer Amount:

Available Cash Balance after payroll: -434,150,377.42
Total Cash Requirements:

Total Employee Checks: 7,364.87
Total Employee/Employer ACH Transactions: 2,338,101.88
Total Vendor Checks this payroll: 0.00
Total Vendor Checks other payrolls: 0.00
Total Vendor Electronic Transfers this payroll: 0.00
Total Vendor Electronic Transfers other payrolls: 0.00
Total Vendor Telephone Transfers this payroll: 0.00
Total Vendor Telephone Transfers other payrolls: 0.00
Total Cash Required: 2,345,466.75
Payments to be Processed:

Total Telephone Transfers: 0.00
Remaining Payroll Liabilities:

Total Employee/Employer (Check type = No check): 3,943,600.76 Total Pay Escrow: 0.00
Total Escrow Balance: 0.00
Total Invoices this payroll: 25,117.79
Total Invoices other payrolls: 0.00
Total Checks/Invoices/EFT/Telephone transfers
this payroll (deferred): 0.00
Total Checks/Invoices/EFT/Telephone transfers
other payrolls (deferred): 0.00
Total Liabilities: 3,968,718.55
* Employee Accruals Exist Outside Payroll Date Range - Check Accrual Out of Range Report

** END OF REPORT - Generated by Sara Zamora **
Item 9.i

CITY OF VACAVILLE

CITY COUNCIL

STAFF REPORT
Meeting Date: September 22, 2026
To: Honorable Mayor and City Council Members
Attention: Savita Chaudhary, City Manager
From: GeorgeAnne Meggers-Smith, Assistant City Manager
(GeorgeAnne Meggers-Smith, Assistant City Manager (707) 449-5651) Subject: Resolution of the City Council of the City of Vacaville Approving Five (5) Agreement and Contract Amendment
Totaling $2,159,342 Supporting Essential City Operations, Capital Projects, Regulatory Compliance, and Organizational Services
Actions for Consideration:

Adopt the Resolution approving the agreements in Attachment 1 and authorize the City Manager, or designee, to execute the agreements and any non-substantive administrative documents necessary to implement the approved actions.

Recommendations:

By simple motion, adopt the subject resolution.

Background:

City departments periodically require specialized professional, technical, maintenance, and operational services to support ongoing programs, projects, and the delivery of essential municipal services. The City has historically utilized the services identified in Attachment 1 to supplement staff resources, provide specialized expertise, and ensure the effective and efficient operation of City functions.

As the City continues to advance significant initiatives, capital improvement projects, regulatory compliance efforts, and operational priorities, these agreements are necessary to maintain continuity of services and provide the professional support needed to successfully implement and complete these activities. The consultants and service providers associated with these agreements offer expertise, resources, and capabilities that are either unavailable internally or are more cost-effective to obtain through contracted services.

The agreements generally fall into one or more of the following categories:

1. Specialized expertise and technical knowledge;

2. One-time or project-specific services;
Item 9.j

3. Industry-standard evaluations, assessments, and benchmarking;

4. Legal, regulatory, and compliance requirements;

5. Health, safety, and risk management obligations;

6. Conflict-of-interest and independent review requirements;

7. Capital improvement and infrastructure project support; and

8. Supplemental staffing resources and cost efficiencies.

The agreements presented for approval are routine in nature and necessary to maintain continuity of City operations and services. Each agreement has been reviewed by the requesting department and developed in accordance with applicable City purchasing policies, contracting procedures, and procurement requirements.

Discussion:

The City’s current Purchasing Policy was adopted by Resolution No. 2000-47 and later amended on January 12, 2010, through minute action to revise the Local Vendor Policy and establish a Local Business Preference. The City continues to follow the California Public Contract Code for all public construction projects.

Under the existing policy, Department Heads or their designees with purchasing authority may approve budgeted purchases of materials, services, supplies, and equipment (excluding public construction projects) within the limits authorized through the adopted departmental budget. While this approach provides operational flexibility, it has resulted in limited centralized visibility into contract activity across the organization and increased the risk of fragmented contract management and inconsistent procurement practices.

Historically, many contracts have been approved administratively pursuant to the City’s Purchasing Policy. As part of the City’s ongoing efforts to enhance transparency, strengthen contract oversight, and improve public visibility into consultant and vendor expenditures, staff is presenting this consolidated contract list for City Council review and approval.

This report is intended to establish a baseline inventory of significant service agreements and provide the City Council and the public with greater visibility into the contractual services supporting City operations.

This action seeks approval of five (5) agreements and/or contract amendments totaling approximately $2,159,342.00. A copy of these agreements can be found on the City’s transparency portal at https://www.cityofvacaville.gov/government/transparencyportal#Contracts. These agreements are funded through the Fiscal Year 2026-27 Budget and represent a combination of recurring operational services, project-specific support, and specialized professional expertise necessary to carry out City programs, regulatory compliance, public safety, infrastructure maintenance, and organizational support services.

These agreements are funded through the FY 2026-27 budget and are necessary to maintain essential City operations, regulatory compliance, public safety, infrastructure maintenance, and organizational support services.

Item 9.j
Additionally, the City is currently evaluating comprehensive updates to its Purchasing Policy during Fiscal Year 2026-27. In the interim, the City Manager’s Office, in collaboration with the City Attorney’s Office and Finance Department, has implemented additional controls to enhance transparency, consistency, and oversight of City contracts.

Effective immediately and until a revised Purchasing Policy is adopted, contract approval authority will be as follows:
• Contracts with a value of less than $75,000 may be approved by the Department Head or authorized designee;
• Contracts with a value between $75,000 and $150,000 require approval by the City Manager; and
• Contracts with a single or cumulative value exceeding $150,000 require City Council approval.

These interim measures are intended to strengthen contract oversight and increase transparency while the City develops a comprehensive Purchasing Policy. Staff anticipates presenting the updated Purchasing Policy to the City Council for consideration during the first quarter of 2027 and will continue refining contract reporting and procurement oversight processes as part of that effort.

Public Works projects are governed by the California Public Contract Code (PCC), specifically Section 22000, known as the Uniform Public Construction Cost Accounting Act (UPCCAA). Public Works projects are defined in PCC Section 22002(c) and are subject to the bidding thresholds and requirements established in PCC Section 22032.

The most common method used by California cities for approving routine contracts is through the Consent Calendar. The contracts included in Attachment 1 represent a combination of new agreements, renewals, work orders, and amendments for services that support the City’s day-today operations. Contractor and consultant selections were completed through competitive procurement processes, cooperative purchasing programs, qualification-based selection procedures, or other methods authorized by applicable law, the Municipal Code, City purchasing policies, and administrative procedures.

The contracts presented for Council consideration do not include: (1) agreements with other governmental agencies; (2) contracts related to employee hiring, wages, hours, or working conditions; (3) purchase and sale agreements for wholesale utility commodities and services; and (4) revenue-generating agreements or bond financing transactions.

Approval of these agreements does not:
• Authorize expenditures beyond amounts budgeted by the City Council; • Approve new positions;
• Approve construction contracts governed by the Public Contract Code; • Approve labor agreements; or
• Commit the City to future appropriations.

Item 9.j
Staff has reviewed each agreement to confirm that sufficient appropriations exist within the proposed Fiscal Year 2026-27 Budget and that the agreements are necessary to support approved programs, projects, and operations. Future contract amendments exceeding established approval thresholds will be brought back to the City Council for consideration, as required.

Approval of these agreements will allow departments to continue providing essential services efficiently and effectively while maintaining compliance with applicable procurement requirements and ensuring continuity of operations. Many of the agreements are renewals of existing services and represent ongoing operational needs rather than new programs or initiatives.

With the adoption of the Fiscal Year 2026-27 Budget on June 23, 2026, funding for the services covered by these agreements will be appropriated within the budgets of the respective departments responsible for the operation, maintenance, and administration of these programs and services.

Accordingly, staff recommends that the City Council approve the agreements identified in Attachment 1 and authorize the City Manager, or designee, to execute the agreements on behalf of the City.

Attachment 1 provides a summary of each agreement, including the department, vendor, description of services, contract amount, cumulative contract amount, contract term, funding source, and justification for the agreement.

Environmental Impact:

Fiscal Impact:

Amount Requested: No additional appropriations are requested. Funding for the agreements identified in Attachment 1 is included in the proposed FY 2026-27 Budget.

Funding Source: Funding for the agreements identified in Attachment 1 is included in the department budgets in the adopted FY 2026-27 Budget.

Budget Distribution: Funding for each of these contracts is included in the FY2026-27 budget, approved by City Council on June 23, 2026. The costs of staff time associated with this item are covered within the existing City Manager Department’s operating budget.

Item 9.j
Alternatives:

The City Council may choose to address some or all of these contracts individually, or request clarification.

1. Approve a subset of the contracts: Council could choose to pull specific contracts for separate consideration. This may lead to service interruptions and project delays.

2. Do not approve the contracts: This would require staff to renegotiate terms or re-bid services, causing significant operational delays.

Strategic Plan Goal:

Organizational Culture
Economic Development
Quality of Life
Public Safety and Infrastructure
Fiscal Health
Subject to Levine Act:

Yes
Attachments:

Contract List includes the following information:
• Department Name
• Contract/Vendor Name
• Description of Services
• Contract Amount
• Cumulative Contract Amount (including any amendments) beginning with the latest active agreement including all subsequent amendments.
• Current Contract Term
• Funding Source
• Justification for the Agreement
• Procurement Method
Item 9.j

CITY OF VACAVILLE
RESOLUTION NO. 2026-
Resolution of the City Council of the City of Vacaville Approving Five (5) Agreements and Contract Amendments Totaling Approximately $2,159,342 Supporting Essential City Operations, Capital Projects, Regulatory Compliance, and Organizational Services Whereas, City departments periodically require specialized professional, technical, maintenance, and operational services to support ongoing programs, projects, and the delivery of essential municipal services; and
Whereas, agreements for these services are necessary to maintain continuity of services and provide the professional support needed to successfully implement and complete initiatives, capital improvement projects, regulatory compliance efforts, and operational priorities; and Whereas, consultants and service providers associated with these agreements offer expertise, resources, and capabilities that are either unavailable internally or are more costeffective to obtain through contracted services; and Whereas, until the Purchasing Policy is updated in 2027, the Signing Authority Policy states that contracts with a single or cumulative value exceeding $150,000 require City Council approval; and
Whereas, this interim measure is intended to strengthen contract oversight and increase transparency; and
Whereas, the original contract amount, cumulative contract amount including amendment, contract term and other details are provided with the attached contract list; and Whereas, approval of these agreements will allow departments to continue providing essential services efficiently and effectively while maintaining compliance with applicable procurement requirements and ensuring continuity of operations.

Now, therefore, be it resolved by the City Council of the City of Vacaville that the City Council does hereby approve and authorizes the City Manager and their designees to execute the listed agreements and amendments to agreements totaling $2,159,342.00.

Contract or Amendment Name Total Approved with this Resolution Sun Ridge Systems Inc. $10,500.00
Holt of California $260,000.00
NexGen Asset Management $1,691,842.00
Downtown Ford $110,000.00
Downtown Ford $87,000.00
Item 9.j
I hereby certify that the foregoing resolution was introduced and passed at the regular meeting of the City Council of the City of Vacaville held on the 22nd day of September, 2026 by the following vote:

Ayes:

Noes:

Absent:

Attest:
_____________________________
Michelle A. Thornbrugh, City Clerk
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Levine Act Disclosure Statement -1-
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CALIFORNIA LEVINE ACT DISCLOSURE STATEMENT
In 2022, California SB1439 extended requirements under Government Code Section 84308, also known as the "Levine Act", to prohibit City of Vacaville “officers” from participating in any action related to a contract if such member receives political contributions totaling more than $250 within the previous twelve months, and for three months following the date a final decision concerning the contract has been made, from the person or company awarded the contract. The Levine Act also requires disclosure of such contribution by a party to be awarded a specific contract.

Section 84308(a)(4) of the Levine Act defines an "officer" asfollows: “Officer” means any elected or appointed officer of an agency, any alternate to an elected or appointed officer of an agency, and any candidate for elective office in an agency. The term “officer” is further defined 2 Cal. Code Regs. Section 18438.1, which states:

An officer of an agency includes only those persons who make, participate in making, or in any way attempt to use their official position to influence a decision in the license, permit, or entitlement for use proceeding, or who exercise authority or budgetary control over the agency of officers who may do so, and:
(1) Serve in an elected position, including an official appointed to an elected position due to an interim vacancy or an election otherwise canceled because the official was the sole candidate for the position; (2) Serve as a member of a board or commission;
(3) Serve as the chief executive of a state agency, or county, city or district of any kind; or (4) Have decision making authority with respect to the proceeding involving a license, permit, or other entitlement for use and is also a candidate for elected office or has been a candidate for elective office in the 12 months prior to the proceeding.

A list of City of Vacaville Council Members and Commissioners can be found online at www.CityofVacaville.gov. The party making this certification is responsible for determining whether a recipient of a political contribution is a City officer prior to answering the following questions:

1. Have you, your company, or any agent on behalf of you or your company, made any political contributions of more than $250 to any City officer, in the twelve (12) months preceding the date of the submission of your proposals or the anticipated date of any Board action related to this contract?
☐ YES ☐ NO
If YES, please identify the person(s) or agent(s) making the contribution:

If YES, please identify the City officerreceiving the contribution:

2. Do you, or your company, or any agent on behalf of you or your company, anticipate or plan to make any political contribution of more than $250 to any City officer in the three (3) months following any Board action related to this contract? ☐ YES ☐ NO
If YES, please identify the person(s) or agent(s) making the contribution:

If YES, please identify the City officer receiving the contribution:

Item 9.j
Levine Act Disclosure Statement -2-
Answering YES to either of the questions above does not preclude the City of Vacaville from awarding a contract to your firm or taking any subsequent action related to the contract. It does, however, preclude the identified City officer from participating in any actions related to such contract.

I HEREBY CERTIFY UNDER PENALTY OF PERJURY UNDER THE LAWS OF THE STATE OF CALIFORNIA THAT THE FOREGOING IS TRUE AND CORRECT.

Signature: Date Signed:

Print Name:

Title:

Company:

Vincent Yee
President
NEXGEN Asset Management
9/3/26
Item 9.j

CITY OF VACAVILLE
City Council
Staff Report
Meeting Date: September 22, 2026
To: Honorable Mayor and City Council Members
Attention: Savita Chaudhary, City Manager
From: GeorgeAnne Meggers-Smith, Assistant City Manager
(Rica Guidry, Program Manager (707) 449-5134)
Subject: Resolution of the City Council of the City of Vacaville Approving Negotiated Terms for a Fiber-Optic Network Between the City of Vacaville and Intrepid Fiber Networks and a Budget
Augmentation in the Amount of $150,000 and Adding a FullTime Traffic Signal Technician in Public Works Actions for Consideration:

Staff recommend the City Council approve the broadband partnership agreement between the City of Vacaville and Intrepid Fiber Networks; approve a budget augmentation in the amount of One Hundred Fifty Thousand Dollars ($150,000); and authorize one additional full-time equivalent position in the Public Works department for a Traffic Signal Technician.

Recommendations:

By simple motion, adopt the subject resolution.

Background:

The “Broadband Digital Infrastructure Implementation” strategy is identified in the City’s Strategic Plan for 2026-2029 as a key strategy supporting Goal 4: Public Safety & Infrastructure, Objective IN7: Integrated Digital & Technology Infrastructure Modernization. Broadband is a vital component for the City’s infrastructure, supporting economic growth, enhancing quality of life, and enabling the effective delivery of services including telehealth, education, and emergency response systems.

In June 2021, the City received a One Hundred Eighty-Seven Thousand Five Hundred dollar grant ($187,500) from the Economic Development Administration (EDA) to develop a Broadband Master Plan, specifically aimed at serving unserved and underserved residents and businesses.

The City contracted EN Engineering, LLC (Entrust, formerly Magellan Advisors) to complete Phase I of the initiative (Attachment 1 – Broadband Master Plan Phase I).

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Following the completion of the Broadband Master Plan in September 2022, City staff applied for and was awarded Four Hundred Ninety-Three Thousand Nine Hundred Thirty-Six Dollars ($493,936) Local Agency Technical Assistance (LATA) grant from the California Public Utilities Commission (CPUC) on December 8, 2022, to fund Phase II: the Digital Infrastructure Design and Implementation Plan. In June 2023, the City again contracted Entrust to begin Phase II, which also involved developing a Request for Proposals (RFP) to select a private sector partner to operate, maintain, and manage a fiber-optic network through a public-private partnership.

In April 2025, the City released a Request for Proposal (RFP) to identify qualified entities to enhance broadband access across the City of Vacaville. After evaluating four vendor submissions, staff recommended proceeding with Intrepid Fiber Networks (Intrepid).

On October 24, 2025, the City Council approved starting negotiations with Intrepid and contracted Entrust, who at that point had three (3) years of in-depth knowledge related to the City’s broadband technical infrastructure needs and goals. The cost for Entrust’s consulting services was Sixty-One Thousand Sixty-Five Dollars ($61,065.00) of which Intrepid paid the full cost (Attachment 2 – Intrepid Funding Agreement to Pay City’s Broadband Consultation Costs with Entrust).

The scope of the Agreement with Entrust (Attachment 3 – Consultant Agreement with Entrust) includes tasks consisting of:
• Micro-trenching study and analysis
• Partnership negotiations and development of a Term Sheet of future agreement • Construction specifications development
• Other related technical and legal consulting services as mutually agreed upon Discussion:

In consultation with Entrust, staff began negotiations with Intrepid Fiber Networks in October 2025. After several months, a Partnership Agreement was developed (Attachment 4 – Partnership Agreement with Intrepid Fiber Networks).

Intrepid has committed to investing Five Million Eight Hundred Four Thousand Four Hundred Dollars ($5,804,400) of in-kind contributions to the City, including the following:
• Lease forty-eight (48) strands of dark fiber at no cost to the City along its 17.8-mile fiber backbone through an indefeasible right-of-use (IRU) for twenty (20) years. • Provide access points to the dark fiber route through a fiber handoff in the right-of-way for fiber connection at the following locations:

Municipal Facilities (4) Address
City Hall/Police Department/Fire Department 650 Merchant Street Parks & Recreation/Housing & Community Services 40 Eldridge Avenue Public Works Corp Yard/Water Treatment Plant 1001 Allison Drive Item 12.a
Utilities Department 6040 Vaca Station Road, Elmira
Fire Stations (5) Address
Fire Station #71 111 S Orchard Avenue
Fire Station #72 2001 Ulatis Drive
Fire Station #73 650 Eubanks Court
Fire Station #74 1850 Alamo Drive
Fire Station #75 111 Cogburn Circle
Community Facilities (6) Address
McBride Senior Center 91 Town Square Place
Three Oaks Community Center/Walter Graham
Aquatic Center
1100 Alamo Drive
Ulatis Community Center 1000 Ulatis Drive
Georgie Duke Community Center 720 E Monte Vista Avenue
Gymnastics Sports Center 551 Davis Street
Vaca Pena Neighborhood Center 2198 Nut Tree Road
Community Parks (2) Address
Andrews Parks 614 E Monte Vista Avenue
Nelson Park 1899 Marshall Road
• Provide XGS-PON based connectivity at the following locations:

Community Parks (2) Address
Centennial Park 501 & 270 Browns Valley Pkwy
Al Patch Park 1750 California Drive
Keating Park 1310 California Drive
The City will be responsible for connecting the laterals that serve each listed facility, with these connections to be completed at a future additional cost.

These connections will support the deployment of free public Wi-Fi access in community parks and other public spaces, creating a meaningful community benefit by expanding internet access opportunities for residents, families, students, and visitors. Free public Wi-Fi will provide convenient connectivity in community gathering spaces while supporting educational activities, Item 12.a
remote work, recreation, public safety communications, and access to online government and community resources.

In addition to providing free public Wi-Fi, the expanded broadband infrastructure is expected to increase opportunities for residents and businesses to access additional affordable broadband service options as they become available. Enhanced connectivity will help advance the City’s digital inclusion goals, improving accessibility to essential services, and enhance usability and overall experience of community spaces throughout the City. The infrastructure also creates opportunities for future smart-city applications, enhanced communications capabilities, and technology improvements that can support City operations and service delivery.

Beyond delivering dark fiber access to twenty (20) locations, Intrepid will partner with the City to pursue future broadband grant funding opportunities that support long-term community connectivity and technology advancement initiatives. Potential projects and programs may include expanded broadband infrastructure deployment, digital literacy and workforce development initiatives, after-school and youth enrichment programs, telehealth access, and technology resources for underserved populations. This partnership positions the City to leverage additional state and federal funding opportunities that could enhance broadband accessibility, strengthen digital equity objectives, and expand access to educational, economic and public service resources throughout the community. Through continued collaboration on grant applications and strategic technology initiatives, the City and Intrepid can help ensure residents, businesses, students, and community organizations benefit from sustainable, future-ready broadband investments while reducing the City's reliance on local funding sources for future connectivity improvements.

Additionally, the introduction of additional Internet Service Providers (ISPs) is anticipated to provide significant public benefit by providing additional options within the local broadband marketplace. According to Intrepid, increased competition among ISPs may expand the availability of lower-cost broadband service options, providing residents and businesses with greater choice, improved service offerings, and more affordable internet access. Increased broadband competition may also benefit the City through improved connectivity options, enhanced economic development opportunities, and a stronger digital infrastructure network to support future community needs.

To support the proposed partnership and to facilitate efficient project implementation, the City will provide in-kind contributions through cost-sharing for an existing Maintenance Worker in the Utilities Department who currently performs Underground Service Alerts (USA) and will continue to provide utilities locates for sewer and water related infrastructure. Additionally, a new Traffic Signal Technician position in the Public Works Department will be required to provide utility locates for traffic signal systems and other non-utility underground infrastructure.

Intrepid will contribute funding towards the dedicated staff time required for the utility locates performed by both Utilities and Public Works departments, capped at Seventy-Five Thousand Dollars ($75,000) annually for a period of three (3) years.

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Additionally, the City will dedicate an existing Public Work Inspector to support project construction activities. Intrepid will reimburse the City for the actual cost of this position, capped at One Hundred Sixty-Two Thousand Dollars ($162,000) annually for a period of three (3) years.

The salary rate for this inspector position will remain fixed for the duration of the three-year project term and will not be subject to future increases. The City will also waive the standard fifteen percent (15%) administrative fee identified in the City’s published rates for this project-specific inspector reimbursement arrangement. In addition, Intrepid will establish a Seventy-Five Thousand Dollars ($75,000) deposit account with the City to cover costs related to inspections, permit review, permit issuance and project closeout costs. The account will be reconciled monthly and replenished whenever the balance falls to Twenty-Five Thousand Dollars ($25,000) or below.

Further, the City accommodated project-specific adjustments to its micro-trenching standards to facilitate efficient fiber-optic installation. These refinements were carefully developed to support the broadband project while preserving the City's standards for roadway integrity, public safety, and infrastructure maintenance. The modifications apply specifically to this project and reflect industry best practices for modern broadband deployment.

Environmental Impact:

This action is exempt from the California Environmental Quality Act (CEQA) pusuant to California Code of Regulations, Title 14, Sections 15301 (Existing Facilities) and 15303 (New Construction or Conversion of Small Structures), because the project involves installation of fiber-optic infrastructure primarily within existing public rights-of-way, with limited new small-scale equipment and facilities, and no expansion of existing use. No unusual circumstances exist that would result in a reasonable possibility that the project will have a significant effect on the environment.

Fiscal Impact:

The existing Maintenance Worker in the Utilities Department has already been included in the FY2026-27 operating budget for approximately One Hundred Forty-One Thousand Four Hundred Dollars ($141,400), split three ways between the General Fund ($48,080), Water Fund ($46,660) and Sewer Fund ($46,660). Intrepid’s annual Seventy-Five Thousand Dollar ($75,000) contribution will be divided evenly between both Utilities ($37,500) and Public Works ($37,500).

As a result, Utilities will offset Thirty-Seven Thousand Five Hundred Dollars ($37,500) of the current Forty-Eight Thousand Eighty Dollars ($48,080) General Fund allocation over the threeyear project term. These funds will instead be applied toward the new Public Works Traffic Signal Technician position, which is approximately One Hundred Fifty Thousand Dollars ($150,000) annually.

The remaining funding required for the additional Traffic Signal Technician is approximately Seventy-Five Thousand Dollars ($75,000) per year for FY2026-27 through FY2028-29. After the three-year projected term ends, beginning in FY2029-30, the General Fund would assume the Thirty-Seven Thousand Five Hundred Dollar ($37,500) Public Works portion previously covered by the Intrepid’s contribution for the Traffic Signal Technician and the Water and Sewer funds Item 12.a
would assume the Thirty-Seven Thousand Five Hundred Dollars ($37,500) for the Utilities Maintenance Worker.

In addition, Intrepid will reimburse the City for the actual cost of a Public Works Inspector position, capped at One Hundred Sixty-Two Thousand Dollars ($162,000) annually for a period of three (3) years. The City would establish a Seventy-Five Thousand Dollar ($75,000) deposit account in a new Special Revenue Fund to cover costs associated with inspections, permit review, permit issuance and project closeout costs. This account will be reconciled monthly and replenished whenever the balance falls to Twenty-Five Thousand Dollars ($25,000) or below. The Public Works full-time position count would be increased by one additional FTE for a new total of 105 and a citywide total of 669.

Amount Requested: $150,000
Funding Source: General Fund (1001) $75,000; Broadband – Intrepid (New) $75,000 Budget Distribution: If approved by Council, the budget would be loaded into the FY 2026-27 operating budget in a new Special Revenue Fund for the City Manager’s Office to track all related revenues, expenditures and deposits.

Alternatives
The Council could choose not to approve the partnership agreement with Intrepid Fiber Networks.

However, this option is not recommended, as it would significantly delay the City’s ability to advance its broadband access initiative.

In addition, there is a strong likelihood that another private broadband developer and/or Internet Service Provider (ISP) could operate within the City under state franchise rights issued by the California Public Utilities Commission (CPUC). In that scenario, the City would not receive direct benefits such as access to dark fiber infrastructure and would forgo a network option with an estimated twenty-year value.

Strategic Plan Goal:

Goal 4: Public Safety and Infrastructure
Objective IN7: Integrated Digital & Technology Infrastructure Modernization Strategy IN7.1: Broadband Digital Infrastructure Implementation Levine Act:

Yes
Attachments:

Resolution: Action Item
Attachment 1: Broadband Master Plan (Phase I)
Item 12.a
Attachment 2: Intrepid Funding Agreement to Pay City’s Broadband Consultation Costs with Entrust
Attachment 3: Consultant Agreement with Entrust
Attachment 4: Partnership Agreement with Intrepid Fiber Networks Item 12.a

CITY OF VACAVILLE
RESOLUTION NO. 2026-
Resolution of the City Council of the City of Vacaville Approving Negotiated Terms for a Public-Private Partnership Between the City of Vacaville and Intrepid Fiber Networks to Develop a Fiber-Optic Network
Whereas, the City of Vacaville’s 2021–2026 Strategic Plan includes the development of a Broadband Master Plan to strengthen the local economy and expand reliable broadband infrastructure throughout the community; and
Whereas, the City received grant funding from the Economic Development Administration and the California Public Utilities Commission to develop and implement a broadband infrastructure strategy focused on serving unserved and underserved residents and businesses; and
Whereas, the City released a Request for Proposals in April 2025 to identify qualified entities to enhance broadband access within Vacaville, and after evaluation of vendor submissions, staff recommended Intrepid Fiber Networks as the preferred partner; and Whereas, Intrepid Fiber Networks has committed approximately $5.8 million in in-kind contributions, including dark fiber infrastructure access, connectivity improvements for City facilities, and support for expanded public Wi-Fi and digital accessibility initiatives throughout the community; and
Whereas, the proposed partnership will support future broadband expansion, digital equity initiatives, educational and workforce development opportunities, telehealth access, and other community technology resources through collaborative grant funding efforts; and Whereas, the City Council finds that this action is exempt from the California Environmental Quality Act (CEQA) pursuant to California Code of Regulations, Title 14, Sections 15301 (Existing Facilities) and 15303 (New Construction or Conversion of Small Structures), because the project involves installation of fiber-optic infrastructure primarily within existing public rights-of-way, with limited new small-scale equipment and facilities, and no expansion of existing use, and no unusual circumstances exist that would result in a reasonable possibility that the project will have a significant effect on the environment; and
Whereas, the City Council finds that entering into a partnership agreement with Intrepid Fiber Networks will provide significant long-term public benefits by improving broadband accessibility, increasing competition among internet service providers, and supporting futureready infrastructure investments within the City of Vacaville.

Now, therefore, be it resolved that the City Council of the City of Vacaville approves the negotiated terms for Public-Private Partnership between the City of Vacaville and Intrepid Fiber Networks to develop a Fiber-Optic Network.

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I hereby certify that the foregoing resolution was introduced and passed at the regular meeting of the City Council of the City of Vacaville held on the 22nd day of September, 2026 by the following vote:

Ayes:

Noes:

Absent:

Attest:
_____________________________
Michelle A. Thornbrugh, City Clerk
Item 12.a
Item 12.a
1 WWW.MAGELLAN-ADVISORS. C O M
Broadband Master Plan

CITY OF VACAVILLE, CA
September 30, 2022
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Contents
EXECUTIVE SUMMARY...........................................................................................................................................4 VISION ...................................................................................................................................................................5 REALIZING THE VISION ....................................................................................................................................................7 CITY ASSETS AND CONNECTIVITY NEEDS................................................................................................................9 GAP ANALYSIS.............................................................................................................................................................14 OPPORTUNITY ANALYSIS ...............................................................................................................................................17 BROADBAND DEVELOPMENT OPTIONS ............................................................................................................... 19 BUSINESS MODEL ........................................................................................................................................................19 POLICY.......................................................................................................................................................................23 STAFFING AND SYSTEMS................................................................................................................................................29 INFRASTRUCTURE.........................................................................................................................................................30 ASSETS AND SITES ........................................................................................................................................................51 RECOMMENDATIONS .......................................................................................................................................... 53 NETWORK DEVELOPMENT STRATEGY ...............................................................................................................................53 BENEFITS, COSTS, AND GOALS........................................................................................................................................60 Figures
FIGURE 1. INFRASTRUCTURE FOR VARIOUS FIBER NETWORK AND RADIO ACCESS NETWORKS IS NECESSARY TO CONNECT COMMUNITIES; CITIES CAN PROVIDE KEY PIECES...............................................................................7 FIGURE 2. KEY CONSIDERATIONS FOR SUCCESSFUL BROADBAND DEVELOPMENT ......................................................8 FIGURE 3. STREETLIGHTS IN THE CITY OF VACAVILLE....................................................................................................9 FIGURE 4. THROUGHPUT OF 531 RESPONSES BY GEOGRAPHIC LOCATION................................................................10 FIGURE 5. MIDDLE-MILE FIBER ROUTES RUN ALONG THE RAILROAD AND UP LEISURE TOWN ROAD, WITH A LOOP TO EXTENDING DOWN GRASSLAND AND HORSE CREEK DRIVES. ...........................................................................11 FIGURE 6. THE CITY OF VACAVILLE WIDE-AREA NETWORK (WAN) USES AT&T AND COMCAST TO INTERCONNECT OVER 20 SITES, ALONG WITH MULTIPLE CAMERAS, TO ITS DATA CENTER AND PROVIDE INTERNET ACCESS..13 FIGURE 7. VACAVILLE HAS VARIOUS ITEMS AND SITUATIONS THAT CAN HELP OR HINDER ACHIEVEMENT OF ITS VISION AND GOALS. ...........................................................................................................................................17 FIGURE 8. THE CITY OF VACAVILLE HAS MULTIPLE LAYERS OF OPTIONS FOR BROADBAND DEVELOPMENT .............19 FIGURE 9. THE BROADBAND BUSINESS MODELS REPRESENT A CONTINUUM OF OPTIONS WITH VARIOUS LEVELS OF PUBLIC CONTROL AND INVESTMENT.................................................................................................................20 FIGURE 10. PROSPECTIVE FIBER ROUTES IN THE CITY OF VACAVILLE .........................................................................32 FIGURE 11. TRANSPORT NETWORKS INTERCONNECT SITES AND PROVIDE ACCESS TO OTHER NETWORKS, WHICH COULD INCLUDE ACCESS NETWORKS ................................................................................................................37 FIGURE 12. PASSIVE OPTICAL NETWORK (PON) ACCESS INFRASTRUCTURE, INCLUDING HUBS AND TERMINALS, PROVIDES GIGABIT SPEED ACCESS SERVICES.....................................................................................................40 FIGURE 13. RADIO-BASED WIRELESS SERVICES PROVIDE FLEXIBLE CONNECTIONS BUT HAVE LIMITED CAPACITY AND COVERAGE..........................................................................................................................................................44 FIGURE 14 CBRS USER TIERS........................................................................................................................................46 Item 12.a
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FIGURE 15 THE RADIO ACCESS NETWORK (RAN) MODEL ...........................................................................................49 FIGURE 16. THE GENERAL RECOMMENDATIONS FOR BACKBONE DEVELOPMENT WOULD REACH MUCH OF VACAVILLE IN THE FIRST THREE PHASES............................................................................................................55 Tables
TABLE 1. NUMBER OF SITES PER CONNECTION SPEED WITH MONTHLY RECURRING COSTS .....................................12 TABLE 2. STATUS OF BROADBAND-RELATED POLICIES AND RESOURCES FOR THE CITY OF VACAVILLE .....................15 TABLE 3. TARGET DARK FIBER LEASE RATES (±20%) FOR VACAVILLE BASED ON COMPARABLE MARKETS ................22 TABLE 4. FULLY-LOADED COST ESTIMATES FOR STAFFING VARIOUS JOBS IN A BROADBAND ENTERPRISE ...............30 TABLE 5. ROAD CORRIDORS FOR PROSPECTIVE FIBER ROUTES ..................................................................................32 TABLE 6. ONE-TIME CAPITAL COSTS FOR EQUIPMENT TO ESTABLISH A TRANSPORT NETWORK TO MEET THE CITY OF VACAVILLE'S INTERNAL CONNECTIVITY REQUIREMENTS ..................................................................................39 TABLE 7. CAPITAL COSTS FOR ACCESS SERVICES, INCLUDING CENTRAL OFFICE/CORE NETWORK EQUIPMENT AND CUSTOMER PREMISES EQUIPMENT...................................................................................................................41 TABLE 8. CBRS RADIO AREA NETWORK COSTS ............................................................................................................50 TABLE 9. EACH LINE OF BUSINESS POSSIBLE WITH NETWORK INFRASTRUCTURE HAS DISTINCT BENEFITS (“PROS) AND COSTS (“CONS”) .................................................................................................................................................61 Item 12.a
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Executive Summary
The strategic vision and goals for broadband development in Vacaville directly aligns with and supports the City’s overall strategy. It focuses on enabling municipal operations and residents’ connectivity by developing state-of-the-art hybrid fiberwireless infrastructure and a variety of services from multiple providers. The City of Vacaville is envisioned as an active participant in broadband planning, primarily to address internal needs but also as a catalyst for development that benefits all members of the community.

While current retail broadband offerings are adequate, there are limited options and issues with costs. There is a general lack of local carrier-class network infrastructure, specifically for the City’s internal purposes and its economic development goals. The City of Vacaville has numerous assets and sites that require connectivity, some of which could be used to support network assets. The general strategy is to develop fiber backbone infrastructure in major corridors throughout the city in a phased manner. The primary purpose is to connect City facilities, community centers, parks, streetlights, traffic and utility assets.

The secondary purpose of the City’s investment is to attract additional private investment in network infrastructure and services, especially for new services to residential and commercial customers. The City’s role would be limited to wholesale transport services for internal purposes, local industry and institutions, and retail providers. Streetlights, other public properties, and major real estate developments would be improved for leasing to private companies that would provide services to the community.

Radio-access network (RAN) infrastructure would be layered over the backbone where appropriate for flexible connectivity. For City purposes, Citizens Broadband Radio Service could be used as distribution infrastructure to connect smaller sites.

The vision involves co-developing or leasing portions of this for private providers to offer basic, low-cost broadband. Key policy initiatives involve establishing fiber and RAN assets as development conditions, formalizing “Dig Once” policies, and integrating network infrastructure into overall planning, particularly capital improvements. There are a variety of funding sources available to accomplish this strategy, including the Local Agency Technical Assistance (LATA) grant through the California Public Utilities Commission, State of California “Last Mile” funding, a range of infrastructure funding in the Infrastructure Improvement and Jobs Act, private partners, and direct City investment.

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Vision
A city’s vision for network infrastructure and services—including but not limited to broadband—should align with and support its larger, more general strategy and values. The City of Vacaville seeks to “understand and balance our citizens’ needs, desires and resources to achieve the highest possible quality of life for the overall community through the provision of excellent services.”1 The City envisions quality of life combining the best of big cities and small towns in a diverse, inclusive community. Vacaville values “can do” attitude, individual contributions, and teamwork with accountability via an open decision-making process for customer service excellence and innovation. The City’s strategic goals are to:

Goal # 1 - Ensure Public Safety
Goal # 2 - Strengthen the Local Economy
Goal # 3 - Protect Vacaville’s Quality of Life
Goal # 4 - Maintain Effective and Efficient Services
Goal # 5 - Promote Community Engagement and Increased Equity and Inclusion
The Vacaville Strategic Plan calls for creating a fiber -optic master plan to manage impacts of growth,2 but even more is possible. In concept, broadband can and should enable all teh City’s goals. To achieve this mission resources must be aligned with vision via consistent practice. Therefore, Magellan suggests the following vision for broadband in Vacaville:

Citizens of Vacaville flexibly connect with their city and the world via a comprehensive, integrated state-of-the-art
network infrastructure, with a variety of private companies providing economical services to all members of the
community that the City of Vacaville uses to improve,
increase, and innovate its services.
1 City of Vacaville Strategic Plan, FY 2021-2026. April 21, 2021. https://www.ci.vacaville.ca.us/home/showpublisheddocument/18248/637575491623370000. Pg. 2. 2 Ibid, page 11.

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The key element of this vision is “a comprehensive, integrated state-of-the-art network infrastructure.” In practical terms, this means the City has a comprehensive plan for developing an integrated state-of-the-art network infrastructure. This document is that plan. The other elements of the vision are the focus of this plan:
• Enabling citizens—including corporate and institutional citizens—to flexibly connect,
• Ensuring the infrastructure is used by private companies to provide economical services to everyone, and
• Establishing a platform for the City to improve, increase, and innovate services.

The fundamental purpose and priority is to enable residents, to improve quality of life, but the first step is to establish the platform. Once the platform is in place, the City and private companies can build on it for the benefit of residents. The starting point is community engagement, which we have started with this plan, then address critical connectivity requirements for municipal operations. The infrastructure for that purpose can be leveraged by private service providers for better, cheaper, faster, more flexible broadband. The resulting infrastructure and services directly support economic development and public safety. Basically, the strategy for broadband involves addressing all the City’s strategic goals in reverse order:

1. Engage external and internal City stakeholders to identify needs and opportunities.

2. Provide connectivity to improve City services and reduce costs for municipal operations.

3. Recruit private companies to lease or otherwise use the City’s infrastructure to offer network services.

4. Use network features—capacity, cost, resilience, etc.—to attract business investment in targeted sectors.

5. Leverage the network for public safety and security, supporting first responders, and improving community preparedness.

It is necessary to incorporate equity and inclusion into the strategic planning process via community engagement if broadband availability is to be equitable and all citizens are to be digitally included. This approach promotes positive organizational culture and workforce as it requires capabilities in Finance, Human Resources, and Risk Management as well as Information Technology. And it ensures broadband development is fiscally sustainable. Supported by Magellan, Vacaville’s broadband planning process has been exemplary in these terms. We recommend continuing this approach by:

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(a) share this plan with the community and actively seek and incorporate citizens’ inputs; and
(b) specify and implement the plan by acquiring, allocating, and deploying resources to build infrastructure in a consistent, integrated fashion.

Figure 1 shows the general infrastructure components required to fully connect communities. By implementing this plan with a community engaged, inclusive approach, the City of Vacaville can best ensure broadband development aligns with community priorities. The City’s quality of life, local economy, and public safety, as well as effective and efficient services depend on it. In fact, Magellan recommends goals for these areas be used as key performance indicators for broadband along with deployment metrics.

Figure 1. Infrastructure for various fiber network and radio access networks is necessary to connect communities; cities can provide key pieces.

REALIZING THE VISION
This report is structured as a recipe, starting with available ingredients and issues to address, which can be seen as the gap to close. Solutions can be very low-cost.

Changes in policies and procedures can effectively catalyze broadband development.

Closing the gap can reduce costs. Core functions of the City of Vacaville depend on connectivity, which creates substantial costs for the City. Direct public investment can enable service improvements and transform operations. State and federal funds are available for this. Private investment is essential to achieving the vision. Just as the infrastructure is critical to the City, it is also valuable to businesses and institutions, which may pay to use it.

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Broadband can be an economic development initiative targeting network service providers. Network infrastructure can be developed in the same manner as an industrial park. Some minor changes in City programs could have significant results.

Major results will require additional capacity focused on developing and leveraging network assets for the community. All the ingredients—tactics—specifically prospective fiber routes, are included along with phasing and preparation recommendations and implementation guidelines.

Factors to Consider in Broadband Strategy
The factors to consider in broadband development, shown in Figure 2, can be simplified to needs and opportunities. Needs drive development while constraints determine opportunities. Needs are determined by goals, purpose, and values.

Available assets and support are constraints. Broadband development involves working within constraints to address needs and achieve goals. Strategy is how and when resources are deployed to realize the vision.

Figure 2. Key considerations for successful broadband development The competitive environment is an important consideration if a goal is to increase competition and consumer options. The same is true for community needs, which range from basic access to ironclad uptime commitments. The City itself has operational requirements, including ability to innovate. That said, the City has limited capacity and priorities other than broadband. Funding is needed for more capabilities, as well as infrastructure, and any revenue may be used for other priorities. In the end, leadership is the critical consideration. All the above requires leadership commitment to allocate resources and sustain practices.

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City Assets and Connectivity Needs
The City of Vacaville needs network assets to connect municipal facilities, other assets, and sites. It has few assets available for this purpose. The prime assets are active cellular radio access network (RAN) sites and streetlight poles that could accommodate smaller scale RAN sites. The value of these assets is limited by lack of fiber infrastructure to connect them. Both may need additional connectivity, too. The cell sites undoubtedly have privately-owned fiber that is not accessible beyond those specific locations, leased by cellular phone companies via large-scale package deals.

City of
Vacaville
PG&E
Unknown
Private
CalTrans
Figure 3. Streetlights in the City of Vacaville
Small cell infrastructure increases RAN capacity and speeds, as it is increasingly deployed as streetlights. While small cells can connect wirelessly to macro cells, fiber is preferable. Therefore, it may make sense to deploy fiber adjacent to streetlights in Item 12.a
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areas where population is denser and faster growing, specifically to enable next generation wireless broadband. To ensure equity, the City would likely need participation from PG&E, as it owns streetlights in large portions of the City including areas with lower-income population.

Less Than
11 Mbps
11 to Less
Than 28
Mbps
28 to Less
Than 120
Mbps
120 to Less
Than 300
Mbps
300 to Less
Than 500
Mbps
500 to Less
Than 1000
Mbps
1 Gbps or
More
Figure 4. Throughput of 531 responses by geographic location Item 12.a
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As shown in Figure 4, Vacaville’s core areas seem to have broadband services. Survey results indicate that around 11% of residents have less than minimum broadband speeds, e.g., aggregate throughput of less than 28 Mbps. Another 40% have broadband below the State of California’s new standard of 100 Mbps down and 20 Mbps up—or total aggregate throughput of 120 Mbps. Areas in the I-80 corridor had fewer and slower results, which may be due to socio-economic issues. Undeveloped areas to the north (Eubanks Rd) and south (Lagoon Valley) appear to have limited or no network infrastructure.

The geographic distribution of speeds suggest that low speeds were due to the cost of service rather than lack of availability. This conclusion is backed up by other results showing that half of respondents to be dissatisfied with costs. Services are available from AT&T and Comcast Xfinity, the common cable-telco duopoly, supplemented by wireless providers. Average costs for broadband were over $80 per month.

Figure 5. Middle-mile fiber routes run along the railroad and up Leisure Town Road, with a loop to extending down Grassland and Horse Creek drives.

Beyond the incumbent cable-telco duopoly, Vacaville has very limited network infrastructure. Zayo anchors a fiber route to the State Compensation Insurance Fund Item 12.a
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that contains long-haul and middle-mile fiber, portions of which are leased by other providers. This infrastructure may be accessible (at least middle-mile portions of it) by major enterprises along the middle-mile route but is unlikely to be useful for City priorities. That said, local fiber infrastructure can be interconnected to these major fiber routes, which increases the practical value of both the local and the longhaul/middle-mile fiber.

Table 1. Number of Sites per Connection Speed with Monthly Recurring Costs Speed
Mbps Sites Average MRC
20 12 $398
50 4 $431
100 6 $617
200 3 $810
1,000 1 (City Hall) $2,479 (includes DIA)3
10,000 1 (City Hall) $850
Total 27 $5,585
As shown in Table 1, the City of Vacaville itself pays over $5K per month for connectivity to 22 sites, including multiple connections at the City Hall data center, illustrated in Figure 6. Many of these connections are woefully slow— 20 Mbps or slower—especially considering the cost. Even with that expense, numerous facilities, particularly community centers and parks, have effectively no fixed connectivity, which profoundly limit their ability to provide services to residents. While many city facilities rely on cellular data connections due to lack of economic alternatives, cellular radio access networks (RAN) do not cover portions of the sites. We heard about substantial areas of the City where personnel—including fire, police, and other first responders—could not get data connections. Beyond specific personnel and sites, many City assets require connectivity for advanced operations, including streetlights, traffic signals, and water pumps.
3 DIA is “dedicated internet access,” which is a high-capacity connection with service level commitments (e.g., uptime, maximum latency, etc.) that provides bulk transport to and from the core internet.

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Figure 6. The City of Vacaville wide-area network (WAN) uses AT&T and Comcast to interconnect over 20 sites, along with multiple cameras, to its data center and provide internet access
Like the City, local businesses need bandwidth for internal operations and customer use, both of which are critical to their success. They depend on reliable connectivity for normal operations. A local fiber cut recently caused a four-hour outage, which prevented major businesses from accessing their remote corporate IT resources, including mission-critical systems. Vacaville and its businesses must compete with other areas of the region. Business leaders felt they were losing customers and investors due to the lack of broadband. Many would like at least two path redundant connections to the Internet, and they prefer multiple service providers with diverse routes to these major interconnect facilities. Cellular coverage, which functions as a fallback connection as well as providing flexible access, needs to be faster and more ubiquitous.

The City of Vacaville has several development agreements and plans that have implications for broadband infrastructure. The newest, largest opportunity is in the Northeast Growth Area, which is approximately 1,400 acres of undeveloped agricultural land along Interstate 80. The goal is to attract technology, biotechnology, and advance manufacturing industries to this area. The existing business park and industrial parks located between interstates 80 and 505 present the 2nd largest opportunity for broadband infrastructure. Other opportunities would include 141 parcels representing core retail areas, neighborhood retail centers, the Lower Item 12.a
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Lagoon Valley area, and other residential areas. As of late 2021, the City had 6,725 residential units planned. Only 14% of the subdivision units were built and none of the 623 apartment units were built. The City’s newly developed Downtown Specific Plan there are 460 parcels, totaling 160 acres in the Downtown district to be included in this master planning effort.4
Fiber infrastructure in major thoroughfares could connect most City facilities, interconnect traffic signals, and provide utility control connections as well as reach many streetlights. This could also reduce the City’s telecom costs while enabling new, high-value applications, particularly when extended to wireless RAN infrastructure. It could also enable the City to generate revenue and guide private investment to align with public priorities. This infrastructure could reach many businesses and interconnect with middle-mile fiber for direct access to major markets and tier 1 internet providers. Deploying the fiber in rings increases resilience and flexibility along with capacity. Cameras are a prime example: they have huge benefits when distributed and connected throughout the community but don’t justify building single-purpose hybrid fiber-wireless infrastructure. Local fiber could interconnect the cameras and provide economical backhaul to cloud storage for video.

Network infrastructure is most economical when it supports numerous applications, generating many times the benefits of a single-purpose network at small marginal costs. Assuming the City of Vacaville wants to improve connectivity for municipal operations, it makes sense to get as much use as possible out of each connection.

Under the same principle, it makes sense to have as many users as possible on the network, which means connecting cell sites, anchor industry and institution facilities, and even residents’ homes. This will require additional assets, partners, and organizational capacity, including ability to engage diverse stakeholders in broadband planning and deployment.

GAP ANALYSIS
The range of policies and resources available to achieve the broadband vision for Vacaville is detailed in the following sections of this report. City leaders’ decision to invest solutions may be based on the gaps in requirements and the opportunities to fill them. The gaps discussed below can be boiled down to whether policies and resources for broadband are abundant, adequate for current purposes, limited for current purposes, or non-existent, as summarized in Table 2. 4 For further information see https://www.ci.vacaville.ca.us/government/communitydevelopment/major-development-projects/downtown-specific-plan?locale=en.

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Table 2. Status of broadband-related policies and resources for the City of Vacaville Policies Status
Capital improvements planning Limited
Community Engagement Adequate
Comprehensive Planning Limited
Dig Once/Open Trench Limited
Development Conditioning None
Expedited Permitting With Tracking Limited
Fiber Construction Standards Adequate
Wireless Master License Agreement Adequate
Zoning/Appearance Requirements Adequate
Resources Status
Broadband Services Adequate
Public Fiber None
Private Fiber Limited
Streetlights Abundant
Traffic Signals Abundant
Public Properties Abundant
Radio/Wireless Adequate
Staff Capacity Adequate

1. Vacaville lacks network infrastructure and has
limited service provider options.

Vacaville is served by a cable-telco duopoly—AT&T and Comcast—like most American cities. Cellular services are available from the Big 3 providers—AT&T, T-Mobile, and Verizon—but with coverage issues in some key areas. Enterprise-class connectivity is available to major facilities from Zayo and a few other companies using essentially the same infrastructure, as well as a local wireless ISP (WISP). The City itself has very limited assets, although it is currently generating nearly $600K per year in lease revenue from cell sites.5 At the same time, the City has significant unmet connectivity needs. This represents a substantial gap in private investment. 5 Based on data provided by City of Vacaville, February 23, 2022.

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2. The city lacks connectivity for current operational
purposes.

Some municipal sites lack connections, others have slow or unreliable connections, and current connections are relatively costly. Police stationed at schools have no connectivity because they are not able to use the schools’ network. Live video from cameras around the city would improve safety and traffic. Transit sites need connectivity for real-time information displays and public wi-fi. Water utility, traffic signals, and even streetlights could operate more efficiently and effectively if connected. Community centers and parks could manage facilities better and offer new services with better connectivity. Connections to community anchors, such as hospitals and schools, county government, and neighboring cities could improve resource sharing and resilience in the face of threats like wildfire. Vacaville’s numerous and sizable development opportunities require abundant connectivity.

This gap is a major barrier to achieving Vacaville’s mission and vision.

3. The city’s data traffic patterns are changing, which will impact connectivity needs.

Vacaville is changing and growing. It is well positioned for major business investment.

Its location makes Vacaville ideal for regional retail and service companies as well as teleworkers from Sacramento and San Francisco. New corporate, family, and individual residents will demand better, cheaper, faster broadband and cellular. The City and region face environmental as well as demographic changes. Resources will need to be even more carefully managed in the future. City operations and services will have to evolve, most likely in a manner that requires even more connectivity.

Everyone is already using more services “in the cloud” and that will only increase.

Providers will eventually respond with 5G and other next generation services but not necessarily at a place and time that meets community needs. This represents a gap in planning that must be filled for Vacaville to develop and operate intelligently.

4. Needs for digital skills and technical talent are
barriers to broadband impacts and will only increase.

While workforce issues are outside the scope of this plan, it is important to note the implications of this plan. Networks require extensive knowledge and other abilities to use as well as build and operate. Success in the City’s goals for economic development will come with increased demand for technological workforce. The City of Vacaville itself will need staff with advanced and basic technical skills. Every business leader will need to understand how to capitalize on broadband, and will Item 12.a
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need employees who know data, cybersecurity, applications, etc., if this plan is to realize its full potential. No one can be left out. The skills gap may be a bigger impediment than the connectivity gap, but the two can be closed simultaneously.

OPPORTUNITY ANALYSIS
Strengths, weaknesses, opportunities, and threats can be objectively defined in terms of control and proximity—internal versus external—and whether they are positive or negative. Indeed, the important question is whether items or situations help or hinder the City in achieving its vision and goals, enabled by more specific vision and goals for network infrastructure and services. Figure 7 illustrates the current situation for Vacaville. Essentially, the City has assets it can use to enable new growth and generate new revenue as well as reducing and avoiding costs.

Figure 7. Vacaville has various items and situations that can help or hinder achievement of its vision and goals.

A general strategy is to build on strengths to address weaknesses and mitigate threats. The City of Vacaville can capitalize on public properties, streetlights, and traffic signals—in part by updating its permitting and planning processes, ordinances, and standards—to improve infrastructure and services and reduce recurring costs for anchor industries and institutions as well as the City. Anchor industries and development areas are clear strengths. The City can use them as opportunities to address items that could block achievement of the City’s goals.

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Specifically, the City can be a catalyst for private companies to deploy next generation wireless and extend long-haul and middle-mile network connectivity to support economic development, public safety, and quality of life.

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Broadband Development Options
The City of Vacaville has numerous options for developing and utilizing broadband in support of the City’s mission and vision. As illustrated in Figure 8, these can be seen a layers in a complete, effective strategy. Upper layers determine requirements of lower layers, and drive investment. The options in the upper layers are constrained by the functionality of the lower layers—starting with basic availability. This plan considers all the options for each layer, focusing on the best fit for Vacaville based on considerations discussed above.

Figure 8. The City of Vacaville has multiple layers of options for broadband development

BUSINESS MODEL
A business model describes how assets can be combined to achieve purpose as defined by vision: connectivity for all, investment by private providers, and a platform for municipal improvement and innovation. Broadband business models for local government to achieve such outcomes range from passive, policy-only approaches, through public-private partnerships, to directly providing retail broadband services.

As illustrated in Figure 9, the amount of investment involved increases with service offerings. Revenue potential also increases, but so does risk.

Organizational capacity is part of the investment needed for optimal outcomes. The risk depends on where the infrastructure is deployed but also the level of effort put into selling physical connections and services. Focus on revenue, return on investment, and profits runs the risk of missing other Item 12.a
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benefits and impacts. Good governance reduces these risks as do strong, clear partnerships.

Figure 9. The broadband business models represent a continuum of options with various levels of public control and investment
The business models in the middle of the continuum accommodate, but don’t necessitate, public-private partnership (P3). The essence of such a partnership is that for-profit and for-people entities collaborate to achieve complementary, if not common, objectives. The bottom line for private entities is profit, while it is quality of place for public agencies. In concept, private entities can flexibly mobilize resources where there is money to be made and public agencies can redistribute resources to ensure no one is left out. A P3 can help realize both these outcomes: public involvement reduces risk to private investment, and private involvement enables faster and more extensive execution. Generally, partnerships decrease risks while enabling larger or new forms of rewards.

The most apparent gaps in Vacaville are for municipal sites and operations. The City itself needs more, better network infrastructure, particularly for distributed assets— cameras, pumps, streetlights, traffic signals, etc. The City has clear interests and plans for development in commercial areas, particularly downtown and the Northeast Growth Area, that will require diverse, high-performance network services. City-owned parcels and streetlights can be used for radio access networks (RANs), particularly 5G, if they have fiber to them. While there is no clear gap in broadband availability, consumers clearly want more options and lower costs. Thus, Item 12.a
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it makes sense for Vacaville to focus on building network infrastructure for internal purpose but plan to capitalize on it as a catalyst for private investment.

Cost Savings, Revenue Potential, and Other Benefits6
As noted above and in separate technical memos, the City of Vacaville pays about $150K annually for connectivity7 and it generates almost $600K annually in lease revenue from cell sites.8 Many of the City’s current connections are rather slow.

Several city sites and many of its assets are not connected, which creates barriers to improved services and generates other costs and risks. Cellular coverage in the city could be better and new wireless systems (see “Wireless Access Infrastructure” subsection below) will require additional infrastructure, including fiber network connections. The City could get better cellular coverage with next generation technology and generate more revenue in the process.

Dark Fiber Leasing
The infrastructure leasing business model involves providing fiber (or conduit) for monthly or long-term capital leases. Demand for dark fiber depends on local market conditions. Conduit (2-inch) in core urban areas outside major metros leases for $3.00 to $5.00 per foot. Generally, Magellan Broadband does not recommend leasing entire conduits because it reduces ability to capitalize on the asset and flexibility to use it. It is possible to install inner-duct in 3-inch or larger conduits and lease one or more of those. We would only recommend leasing larger conduit to a private partner committed to building out fiber-to-the-premises for the entire area and providing deeply discounted services to anchor institutions.

Fiber leases can be boiled down to a cost per strand-mile. So, for example, a 10-mile long 244-strand backbone would have 2,440 strand miles, each of which could be leased separately.9 Typically, fiber leases have a minimum distance amount and an annual maintenance fee. A wide range of discounts may be offered, including leasing an entire buffer tube within the cable, entire end-to-end strands (rather than a 6 All prices in this section are approximate and highly dependent on specific customer requirements and market conditions.
7 Based on spending data as of August 2021, provided by the City of Vacaville, April 19, 2022. 8 Based on revenue data provided by the City of Vacaville, February 24, 2022. 9 Leasing a portion of a fiber strand can physically strand the rest of that strand. For example, if a 1- mile section of a strand is leased in the middle of a cable, the remainder on each end may be practically unusable. This is another reason for deploying fiber in rings: It reduces risk of stranded strands.

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portion), entire rings, and/or for longer terms. If structured as a long-term (20 years or more) capital lease—also known as indefeasible right to use or IRU—lessees pay the entire lease amount upfront.

Table 3. Target dark fiber lease rates (±20%) for Vacaville based on comparable markets Service Component Cost Per
Monthly Dark Fiber Lease $150 Strand Mile
20-year Dark Fiber IRU $3,500 Strand Mile
Minimum Lease 3 Strand Miles
Annual Fee $250 Route Mile
The lease rates shown in Table 3 are reasonable targets for Vacaville based on our analysis of the local market and comparable cities, particularly on the West Coast. Actual rates and total revenue depend on the amount, coverage, or length of the fiber infrastructure and the presence of major customers— including network service providers—in the area.

Data Transport Services and Revenue Sharing
Wholesale transport services revenue may generally come from either leasing capacity—Ethernet connections or lambdas 10 —or from a revenue share by wholesale customers, i.e., retail ISPs. Generally, enterprise customers pay per circuit—a lit fiber or a portion thereof (a lambda)—connecting one or more sites along with other services such as dedicated internet or firewall. Actual fees can vary greatly depending on market conditions, service levels, and other factors. Local transport for a single site is approximately $2,500 for a 10 Gbps circuit or $900 for 1Gbps. Backhaul interconnection increases costs substantially, effectively tripling costs.

Revenue share can make sense where the City owns all infrastructure including access and distribution lines. This approach ensures the City has stake in providers’ success and providers only pay for actual revenue. Typical revenue shares are between 20% and 40% or around $30 average per residential subscriber or about $300 on average for a dedicated transport circuit. It isn’t practical to provide meaningful estimates for revenue sharing due to complex dependencies, including build-out strategy.
10 A fiber path is a set of contiguous strands between two or more points. A lambda is a portion or “color” of laser light within a strand.

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Macro And Micro Cell Lease Revenue
The City is currently getting and average of $3200 per month for cell sites. This is a reasonable baseline or target rate for undeveloped sites with 10-year lease.

Developed sites have towers or other supporting facilities that have one or more attachment positions. A baseline rate for a single position with three feet of clearance is $700 per month with 5% annual escalation plus $50/month for power and $2,000 one-time set-up for a 5-year lease. Micro-cell pole attachment lease costs are approximately $350 per month with 5% annual escalation plus $30/month for power, $2,000 one-time set-up for a 5-year lease. All construction costs can be borne by the lessor. The City should have a means for vetting and approving all construction contractors.

POLICY
The state and federal broadband policy environment strongly supports expansion of the City’s broadband infrastructure to achieve Broadband Master Plan goals and vision while ensuring the City can maintain its unique aesthetic preferences and qualities. State and national policy is squarely focused on eliminating the “digital divide” and making broadband access available to all citizens and communities.

The City of Vacaville can most effectively capitalize on the current broadband policy environment through a comprehensive, proactive approach to developing its digital infrastructure, including but not limited to broadband. Traffic and utility infrastructure require and are co-located with network assets in the public right of way. Access infrastructure directly supports economic development, education, essential services, health care, and housing. While abundant resources are coming available for broadband development, it is unlikely they will be adequate, but they may be used as leverage for other funding. A wide range of complementary investments and impact multipliers are made possible by a comprehensive strategic approach.

Magellan provided an “Assessment of City Policies and Ordinances” which included detailed review of all the recent state and federal actions on broadband policy and funding, as well as assessment of the City’s policies.11 11 The Assessment of City Policies and Ordinances was provided by Magellan on June 9, 2022. This Assessment described the broadband policy environment generally and also laid out the details regarding California’s broadband policy development as well as recent policy development by the Federal Communications Commission, and the broadband infrastructure provisions of the Infrastructure Investment and Jobs Act.

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Existing City Broadband Policies and Resources
The City’s existing policies regarding wireless broadband infrastructure were adopted under the auspices of the FCC “Small Cell Order” in 2020. The ordinance (Chapter 13.22) is well crafted as is the companion “Policy on Small Wireless Facility and Other Infrastructure Deployments in the Public Rights-of-Way”.

Further documentation on small cell includes a Pole License Agreement template to provide common terms and conditions for all wireless providers for deployment of small cell facilities on City structures including streetlights, and new standard details for installation of small wireless facilities on City streetlights. These provisions are also well crafted and current.

Public Works and Community Development also should be aware of requirements of subsequent FCC decisions on wireless siting. The “5G Upgrade” decision12 allows applicants for siting of 5G antennas to start the shot clock with the first procedural step required by a City, including a pre-submittal meeting. The City’s Policy on Small Wireless Facility Deployments includes a “voluntary presubmittal conference” (under Section 6, Application and Review Procedures) which applicants may use to attempt to start the shot clock.

For larger wireless infrastructure, the City has a Telecommunications Facilities ordinance (Chapter 14.09.125) which provides regulations for permits for wireless towers and antennas. This ordinance was last amended in 2020 and is up to date and generally in line with other California cities. The FCC has taken one action subsequent to ordinance adoption which should be noted. Its “Site Modification Order” 13 expands the definition of an “eligible facilities request” to include ground excavation or deployment of transmission equipment up to 30 feet in any direction outside the boundaries of an existing tower site. The City may see applications for modification of existing tower sites which cite this provision.

Finally, to the extent it hasn’t already, Public Works will need to plan its approach for compliance with SB 378, which mandates approval of “micro-trenching” applications, which is defined as a narrow open excavation trench that is: (1) no wider than 4 inches; (2) at a depth of 12 to 26 inches; and (3) created for the purpose of installing a subsurface pipe or conduit. There appears to be a consensus within the City’s management that the shallower depth is undesirable for long term health of the City’s streets.
12 “Assessment of City Policies and Ordinances”, Appendix B at page 13. 13 “Assessment of City Policies and Ordinances”, Appendix B at page 15.

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Improving Policies to Support the Broadband Master
Plan’s Goals and Vision
Affordable Connectivity Program
The City could assist in expanding the penetration of broadband services by making it a practice to regularly publicize and promote the availability of new FCC Affordable Connectivity Program benefits14 to qualifying City residents. The ACP provides a $30 per month subsidy through participating broadband providers to reduce the price for a minimum 100 Mbps download speed broadband connection for eligible households. The City can benefit from the ACP by gaining awareness of program details and communicating them to their low-income residents and program managers for services provided to the low-income communities.

Fiber is the Foundation for Fast Broadband Access
Both wireline and wireless broadband services require fiber optic cable. The Infrastructure Investment and Jobs Act (IIJA) and SB 156 in California have made large amounts of funding available to invest in fiber optic technology, particularly in openaccess middle mile networks and last-mile fiber networks for unserved areas lacking access to 100 Mbps upload/100 Mbps download speeds. Additional policy actions by the City can also contribute to expanding the reach of fiber optic connections in Vacaville. Generally, it is advisable to incorporate fiber—or at least conduit—into all capital projects and plans. For example, including broadband in HUD plan could allow multi-dwelling units to be retrofitted with fiber.

Radio is Essential for Flexible Access
Whether via cellular or Wi-Fi, most people connect to the net via radio access network. Citizens Band Radio Service, low-power wide-area network, and millimeter wave, not to mention 5G, are growing more common. Typically, these technologies co-exist, and all rely on fiber for backhaul to core networks. They also require mounting on physical facilities—buildings, poles, tanks, or towers. Vacaville has a strong precedent for placing cell sites on public property. City assets, particularly streetlights, can be used as micro-cell sites, if connected via fiber. Permitting and zoning, including reasonable design and construction standards, can facilitate this. A thorough review of assets and sites will identify what is practical for development.

Wi-Fi infrastructure can be inexpensively deployed in most public spaces— 14 The FCC’s Affordable Connectivity Program is funded by the Infrastructure Investment and Jobs Act.

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community centers, major parks, public buildings, transit centers, etc.—particularly if implemented in a standardized manner.

Transportation and Utility Projects and Broadband
Transportation and utility infrastructure are getting smart so require connectivity to operate, improving traffic and reducing impact on natural resources. Network assets can be economically incorporated into other infrastructure. Fiber for traffic signal interconnects can include additional fiber and conduit for other applications, including broadband services and cell site backhaul. IIJA provides more funding for traditional infrastructure programs than specifically for broadband. The City can capitalize on that and complement investment specifically for network assets. The key to this is to fully incorporate and include network infrastructure into other capital projects and permits.

Utility Coordination and “Dig Once”
State and federal policies are being established for coordination of utility work in the public rights of way to foster efficient and cost-effective placement of fiber whenever the public rights-of-way are opened for any project. The Federal Highway Administration implemented a new rule 15 this year to facilitate installation of broadband infrastructure. To accommodate broadband in the right of way federal highway projects by rule the state department of transportation is to identify a “broadband utility coordinator” to be responsible for facilitating infrastructure efforts in the rights of way. This is a substantial change of policy direction at the federal level, toward allowing the use of federal highway funding to expand broadband infrastructure and encouraging broadband utility coordination while working on projects involving work in the right-of-way.

Similarly, Caltrans has implemented new policies under state legislation pertaining to wired broadband facilities on state highway right of way on its website. This includes a new resource for “Accommodation of Wired Broadband Facilities within Access-Controlled State Highway Right of Way” 16 dated March 14, 2022 that addresses state legislation and considers the new rule from FWHA. The Caltrans website provides contact information for its Broadband Coordinators, including for 15 See, 23 CFR Part 645.307(a), and “Assessment of City Policies and Ordinances” at page 9. 16 https://dot.ca.gov/-/media/dot-media/programs/trafficoperations/documents/encroachmentpermits/attachment-a-wired-bb-accommodation-a11y.pdf Item 12.a
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17 Inventory and mapping of Caltrans-owned wired data communications assets including broadband conduits is available from the Caltrans district contact.

The Golden State Network (below) is a new public corporation that will build and operate statewide middle-mile network in Caltrans rights-of-way. The City should explore these opportunities with the representative on broadband utility coordination and GSN. Deployment of additional broadband infrastructure for other purposes can be planned in conjunction with traffic fiber for Intelligent Transportation Systems (ITS) and the City’s fiber master plan.

Implementation of the utility coordination concept often begins by coordination among City departments first, such as Public Works, Utilities, Community Development and the various transportation improvements at regional (e.g., Jepson Parkway, Caltrans projects, City of Fairfield, etc.) and local levels. The concept can then be extended to include projects of private utilities and other occupants of the public right of way using the same cost saving/pavement protecting objectives.

Utility coordination can begin with city departments ensuring they are coordinating on major projects to include broadband infrastructure where needed by considering at early stages of the projects how can it be used to expand broadband capacity and availability. Going forward, all significant City projects and initiatives should include explicit consideration of broadband implications. Broadband is critical infrastructure and general plan elements should incorporate actions which support expansion of broadband infrastructure.

Utility coordination is consistent with the Public Facilities and Services element of the General Plan, which states “to avoid damage to the public investment in landscaping and roads, and to avoid disruption to residential neighborhoods, maintenance and installation work should be coordinated and properly scheduled.” It supports deployment of fiber to streetlights and traffic signals in alignment with the Broadband Master Plan, as well as include placement of conduit in economic development corridors, transportation planning and capital improvement projects.

In sum design and development processes and documents need to include broadband as a fundamental consideration.

Development Standards and Conditions on Development Agreements Inclusion of requirements to place fiber/conduit, concurrent with development, in developer agreements would ensure efficient provision of fiber-optic based next 17 Caltrans Broadband Coordinators, Caltrans.
https://dot.ca.gov/programs/design/wiredbroadband/poc
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generation broadband services furthers achievement of elements of the City’s General Plan – particularly the Land Use and Public Facilities and Services elements.18 Examples of approaches to conditioning development include:
• The City of Brentwood California requires developers to place conduits and fiber optic systems for use by the City and its licensed franchisees. [See, Title 16, Subdivisions and Land Development, Chapter 16.120.120, Undergrounding – Electric, communications, street lighting and advanced technology systems.] • The City of Shafter California conditions approval of developer agreements in part on installation of fiber optic systems to serve each buildable lot and dwelling in the development in concert with its municipal fiber optic network.

The City provides detailed fiber optic requirements.19 [See, Appendix D, Developer Agreement Conditions for the City of Shafter CA] • Sandy, Oregon requires all development sites shall be provided with public water, sanitary sewer, broadband (fiber) and storm drainage, constructed concurrent with development. Work to install public improvement facilities must proceed according to procedures adopted by the City Engineer, to among other things “provide for orderly and efficient land division patterns supported by a connected system of streets, fiber (broadband), water supply, sanitary sewer and stormwater drainage facilities.” [Development Code, Chapter 17.84.60] • Ocala Florida through its Utility Services department establishes fiber conduit rules which contain detailed specifications and procedures for conduit to be installed by the developer, including developer/contractor responsibilities, trench specifications and procedures, requirements for use of joint trench, conduit specifications and procedures, and drawings and exhibits. Ocala Utility Services will install the fiber optic systems using these conduits constructed under its “Fiber Conduit Rules and Regulations”. These specifications are similar in nature to the City of Shafter’s developer conditions.

Broadband access and internal building wiring can be required for affordable and public housing and CDBG and other HUD funds can be applied to this purpose. 18 “Assessment of City Policies and Ordinances” at pages 12-14. 19“Assessment of City Policies and Ordinances”, Appendix D at page 19.

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Resource and Policy Gaps that Constrain Attainment of
Broadband Goals and Vision
The lack of cost-based open access “middle mile” network fiber facilities is known to impede provision of “last mile” broadband connections to businesses and residents.

The State of California has provided substantial funding for the “Golden State Network” –a statewide middle mile network, and numerous projects are underway to construct the network. Corporation for Education Network Initiatives in California (CENIC) has been selected as the administrator for this network. There is a proposed GSN route through Vacaville that promises to be useful and cost-effective for connecting the City’s broadband networking to the Internet. The City should include this GSN middle mile networking in the planning for its broadband networking since it promises to be cost effective and efficient. The City should establish contacts with the staff for the project at CENIC.

STAFFING AND SYSTEMS
Organizational capacity is needed to deploy, manage, and operate a network. The investment increases with level of control in businesses models including staff and systems for these purposes. At the minimal level of an infrastructure-only business model, the City of Vacaville will need at least one network technician and part of a GIS specialist position. It would probably be best to combine these roles in a Network Infrastructure Manager position responsible for executing and tracking adds, changes, or moves.

Other departments, particularly Public Works, will see marginal increases in workload as they accommodate network assets in other projects and programs.

Capacity to promote the network as a useful asset for business will be needed to generate revenue. This function could be part of Economic Development’s work and may be shared by staff responsible for tracking revenue from cell site leases. It would be advisable to invest in specialized fiber management software, which may require additional staff capacity.

Any business model beyond leasing a limited amount of dark fiber will require dedicated staff. The City of Vacaville would need a Broadband Director with strong understanding of facilities leasing and maintenance to be responsible for overall organizational performance, focused on finances and governance. If the City is actively promoting use of the network, it will also need a Marketing Manager for identifying and managing lessees. The Marketing Manager may also work with wholesale customers to promote their internet services to the community.

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At this level, the City will have a “Broadband Department” comprised of a Director, Infrastructure Manager, and Marketing Manager. The Broadband Department will need a fiber management system (FMS) and should have a maintenance fund to cover repair costs. Budget approximately $75,000 for one-time software costs with annual fees of 15%. Major maintenance or repair tasks—anything requiring excavation—may be contracted out or may be handled by Public Works. If the Broadband Department offers any service that involves a service level agreement, it will need external contractors on ready and a dedicated full-time Network Engineer.

Table 4. Fully-loaded cost estimates for staffing various jobs in a broadband enterprise

POSITION ANNUAL
COST
Broadband Director $178,200
Accounting Manager $126,360
OSP/Engineering Supervisor $157,140
Sales & Marketing Manager $129,600
Headend/Network Engineer $113,400
Customer Support Manager $105,300
Technical/NOC Support Manager $129,600
Business/Enterprise Account Manager $72,900
Network/NOC Technician (Data Center/Inside) $97,718
Technical Service Rep Level 1 $50,544
Technical Service Rep Level 2 $60,653
Field Services Technician (in-house) $77,501
Field Locates Technician (in-house) $72,446
A retail broadband enterprise has substantial overhead and operating costs , as well as much larger capital investment in infrastructure and equipment.

Payroll can account for 90% or more of ongoing costs for a broadband enterprise. For reference purposes, Table 4 lists estimated annual costs to fully staff a broadband enterprise. Equipment licenses, maintenance, refresh, and upgrades create recurring costs and large periodic costs. Limiting operations to a backbone network greatly reduces both up-front and on-going costs while providing critical functionality and setting the stage for private investment.

INFRASTRUCTURE
There are various types of network infrastructure. Generally, local broadband networks are composed of feeder (or core), distribution, and access infrastructure.

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Access infrastructure terminates at customer premises where it connects to private infrastructure, including Wi-Fi routers, LANs, “campus fiber” that interconnects multiple, co-located buildings at a large site. Ring topology minimizes risks from an equipment failure or fiber cut. The rings are interconnected to increase flexibility and resilience.

The local networks interconnect with long-haul and middle-mile networks but are typically totally separate infrastructures. Special purpose networks, particularly for utility SCADA systems and traffic signal interconnects, are typically totally separate infrastructures. The standard medium for all these networks is optical fiber, although radio-based wireless connections are common in access infrastructure and other settings. Fiber has more capacity, but radio is more flexible. There is also a good bit of legacy copper coaxial and twisted pair cables but that is generally being phased out. All these forms of network infrastructure can and do coexist and interconnect.

More generally, local network infrastructure can be thought of as “backbone” and “last mile.” Backbone routes follow major thoroughfares, as well as some secondary streets where appropriate to complete a ring. Spurs extend into remote areas where it is not practical to complete a ring. Last-mile infrastructure, also referred to as “edge networks,” reaches into homes, offices, vehicles, and literally the palm of your hand.

The City of Vacaville is not going to become a retail broadband service provider, so is unlikely to deploy last mile distribution and access infrastructure.

Therefore, we focus on backbone infrastructure, which could be leased to network service providers to use as feeder network. We also review options for access infrastructure because (a) it defines prospective providers’ capital investment and connectivity requirements, (b) it is required for achieving some of the City’s goals, mission, and vision, and (c) the City may decide to deploy it for specific projects or purposes.

Backbone Fiber
The route analysis features backbone network infrastructure to interconnect multiple other networks and sites. It consists of high strand-count (e.g., 288-strand) fiber cable deployed overhead and underground, based on the City of Vacaville’s power infrastructure (i.e., overhead where there are poles). Underground also tends to be more aesthetically acceptable. The design should include two separate conduits with shared access points (hand holes) at regular intervals and hubs at key locations.

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Tower
Monopole
Prospective
Fiber Route
Vacaville
Municipal Site
City Owned
Parcels
Downtown
District
Northeast
Growth Area
Vacaville
Municipal
Boundary
Figure 10. Prospective fiber routes in the City of Vacaville Table 5. Road corridors for prospective fiber routes
Corridor Miles
Alamo Drive 6.99
Allison Drive 1.76
Browns Valley Parkway 0.99
Browns Valley Road 2.18
Depot Street 0.27
Dobbins Street 0.20
Elmira Rd 4.68
Eubanks Drive 1.72
Farrell Road 0.49
Leisure Town Road 5.49
Mason Street 0.81
Merchant Street 1.04
Midway Road 3.82
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Corridor Miles
Monte Vista Avenue 5.75
North Orchard Avenue 1.38
North Village Parkway 1.93
Nut Tree Road 4.41
Orange Drive 2.34
Ulatis Drive 2.19
Vaca Valley Parkway 4.81
Yellowstone Drive 1.44
All/Total 54.71
Backbone fiber can be managed as a physical asset by assigning specific strands to specific users, commonly on a lease basis, and uses. Strands in various cables must be physically spliced together or optically interconnected, including via splitters, to form complete paths so that any light shone (transmitted) down the fiber is seen (received) at the other ends. This approach has relatively low cost because it doesn’t require purchasing or operating equipment, but it can also be very in efficient.

For example, if two strands in a 10-mile-long backbone (20 strand-miles total) are used to connect two sites that are a mile apart (2 strand-miles), the other 18 strandmiles become stranded and can only be used on each side of the interconnected sites. This approach also misses the benefit of redundant paths: If the fiber is cut between the two sites, the connection is lost because the information can’t flow in other directions.

Fiber Construction Methods
There are many different construction methods to deploy a fiber optic network, some use existing infrastructure and other methods are new and require substantially more labor, materials, and expertise. There are types of construction that are better to use when a speedy deployment is desired. The baseline cost for fiber construction is approximately $95 per foot. 20 Plan for 20% contingency, which makes total baseline planning costs for fiber about $114 per foot or about $600K per mile. 20 Based on Magellan Advisors’ information about current market conditions in the region and state, including local prevailing wages.

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Aerial or Overhead
Overhead deployment is around 15% to 20% of the baseline cost, assuming the cable can be attached to existing poles.
21 Poles must be inspected and engineered to make
sure that a new cable does not “blow” the pole. A blown pole means that the pole is unsafe and has more weight on it than it can safely handle. If the engineering proves the pole can support new cable placement on an existing strand, then placing a new cable on an existing strand can be a desired method. Cost for aerial fiber is between $40 and $60 a foot in favorable circumstances.

Boring/Directional Drilling
Direction drilling aka Boring, requires a large, 4’x4’x4’, hole to be dug, a machine uses flexible rods that are drilled, and spun into the ground. The first rod has a beacon or bore head that is used to keep track of the path and the position of a paddle attached to the bore head with a new rod being screwed on every 10’. The bore head has a flat paddle that when it is being drilled or spun by the machine goes in a straight line to direct the path. When the head stops spinning, and the paddle gets positioned in a specific angle and pushed forces the paddle to push the rod in the direction needed to guide the rods to the desired location. Most boring is done in 300’-500’ segments.

Locating the existing utilities is required and anytime the bore path crosses a utility, that utility must be “potholed” and physically located to verify the boring will not come into contact with the existing utility. Potholes slow the process of boring down, especially when numerous potholes are necessary. Next to open trench, boring is the most expensive construction method. Costs can range from the baseline amount to as high as $250 per foot in dense, highly developed urban areas.

Microtrenching
Microtrenching is a method of creating a small trench approximately 2” wide and up to 24” deep. It is approximately a quarter of the baseline cost. A machine with a carbide tipped blade cuts through rock, asphalt, concrete, dirt, etc. to make the trench. Then a conduit is placed in the bottom and the trench is then backfilled and compressed. The top 2”-4” is capped with different sealants and substances to protect the trench from accidental damage and prevent moisture from seeping into the ground and causing other serious issues. While cities may be hesitant to use or allow microtrenching due to the shallow depth of the conduit and risk of damage from other excavation efforts including water emergencies as well as the poor 21 GO128 is the California code for attaching to utility poles, which specifies standards that must be adhered to for the safe co-existence of electric and telecom assets.

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restoration that can occur, recent State of California regulations require it to be accommodated.

Open Trench/ Joint Trench
Open trench is when a trench is dug into the ground with shovels, backhoes, skid steers, or mini excavators. The width may vary, but the trench is usually 12” wide by 4’ deep. Once the trench is “cut” conduit is placed in the bottom of the trench and backfilled to cover the conduit. In most cases it is the most expensive method for new construction. The high cost is due to cutting through asphalt, concrete, other hardscape, labor cost, and restoration cost. This is a slow method that requires a high number of man-hours. Joint trench is the same as open trench except there are many participants from different telecom, power, and cable companies that all share the expense of construction making it more cost-effective. Trenching can easily cost $120 per foot to as much as $150 per foot.

Plowing
Plowing or vibratory plow is a method where a large machine drags a blade ranging between 2’-4’ deep in the ground and vibrates up and down to “cut” through the ground. The blade is rounded but sharp on the leading edge and has a slot on the back edge that conduit is fed through as the blade is moved forward. The conduit is routed over the top of the machine into the slot on the backside of the blade and is placed as the machine moves along only leaving a line where the blade had been.

The restoration is minimal, and this is a very effective method in open areas with wide easements and minimal utilities in the ground. For these reasons, plowing costs about half to three-quarters of the baseline, depending on existing infrastructure, soil conditions, and other factors.

Rock Drill and Rock Wheel
Rock drills are like giant jack hammers, which make holes as small as 4” in solid stone.

Rock wheels use a carbide tipped saw blade that cuts through asphalt, concrete, dirt, rock, etc. and just like microtrenching, and cuts a trench that is 6” wide and up to 36” deep. Both rock drill and rock wheel are very expensive—two to three times baseline cost—and slow methods of construction but when needed they are effective methods for placing conduit.

Traffic Signal Interconnect
Traffic signal interconnect conduit systems are built to utilize copper cables and are usually not able to accommodate fiber optic cables with the needed specifications.

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of handholes resulting in small handholes and 90-degree elbows. Fiber cables consist of strands of flexible glass that carry light from one end of the cable to the other. If the strands are bent too tight the light cannot reach the other end. To use traffic signals, conduits may need to be upgraded to accommodate fiber. The hard elbows need to be changed to sweeps and handholes must be large enough to allow for the static minimum bend radius of the new fiber. This construction method is more expensive than overhead but cheaper than other underground construction methods.

Equipment and Services
Beyond leasing dark fiber, use of network infrastructure involves offering services.

There are two general classes or types of services that can be provided over modern network infrastructure. Access services are relatively inexpensive, “best effort” services that do not include any solid performance guarantees. Generally, access services are considered “retail broadband.” Transport services are “dedicated” services that typically come with guaranteed bandwidth and uptime commitments, which are referred to as service level agreements (SLAs). Transport services are variously referred to as “backhaul,” “bulk IP,” “carrier-class,” “enterprise,” “long-haul,” “managed,” “metro,” or “middle-mile” services depending on the context. Generally, they are used by large organizations, including providers.

Access and transport services are complementary but involve different components and costs as well as customers. As Vacaville is most likely to offer transport as part of public sector connectivity business, we describe transport services infrastructure first, followed by information about co-location, a related service. We include a reasonably comprehensive consideration of access service infrastructure as Vacaville may seek partners to offer those services using a portion of the City’s network.

Improved access services for the community would directly achieve key results for this plan and address one or more of the City’s strategic goals.

Transport Services
Transport services involve relatively few, stable but high-performance connections.

Users are major businesses and institutions, including network service providers. The service is moving information from one point to another, rather than leasing an asset, so the value comes from ensuring the information keeps moving. This requires equipment that lights the fiber, maintains connections, and transmits data as diagrammed in Figure 11. Some form of hand-off to other networks or services, which requires additional equipment, is commonly a part of transport service.

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Figure 11. Transport networks interconnect sites and provide access to other networks, which could include access networks
Networks typically have a core network composed of a few centralized core sites— called central offices, data centers, or headends depending on type of ISP— interconnected by fiber in a ring architecture. Core sites contain the most powerful equipment to connect the local network to the global network. They must be secure, with high reliability power, and preferably centrally located. At least one, ideally two, sites must connect to high-capacity dedicated internet services, ideally via different providers with fiber following separate routes, for bulk IP.

Transport customers typically have substantial network operations of their own that incorporate transport services where needed, which requires next generation technologies—specifically software-defined wide-area networks (SD-WAN) and sophisticated management systems. Customers may require dual-homed connections, which connect to the core site via two diverse routes, and redundant connections to cloud services, tier 1 ISPs, and other service providers.

Transport service providers often co-locate in other companies’ data centers to reduce costs. Access service providers generally prefer to own their core network sites, known as “central offices” or “headend” facilities, and access infrastructure called “pedestals” or “points of presence” (POP). This is changing somewhat with the emergence of wholesale open access infrastructure. Interconnection sites between different providers ranges from massive data centers to relatively small huts.

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The network equipment required to deliver broadband services to customers is comprised of several functional groups and multiple components. All business models require core equipment, which is very similar to what the City of Vacaville has in place already for its wide-area network (see Figure 6). This must be supplemented with various types of access equipment and infrastructure.

Core Equipment
The core equipment aggregates traffic from all access equipment, connecting customers and routing their data to and from the IP edge equipment or other endpoint destinations. Standard network protocols provide link redundancy and dynamic traffic re-routing in the event of an equipment failure or fiber cut. Core equipment can easily support thousands of customers and hundreds of gigabits of traffic throughput at deployment and will accommodate future system growth through the addition of service modules, optical interfaces, and/or software licenses.

Internet Protocol Edge (IP Edge) Equipment
Separate from the core switches, the network must maintain an “internet perimeter.” The internet perimeter will include internet routers and internet firewalls to be used to manage routing throughout the network. Firewalls will be utilized to protect critical back-office systems, including provisioning, network management, data storage, and other information. The two core switches will be interconnected to two internet routers providing redundancy for internet services in the event of a single interface or equipment failure. As mentioned above, bulk IP should be acquired from at least two providers using diverse paths, one of which should be a Tier 1 provider.

Estimated Costs
The estimated one-time capital costs for equipment and services to establish a transport network for the City of Vacaville’s 51 sites, 22 based on vendor-provided
pricing, would be about $530K as summarized in Table 6. The core network in this scenario would consist of the City’s data center as the “central office” and a secondary, backup site, which we assume would be an existing site. We assume that each site would have a single router combining edge/core functionality, an aggregation switch, cloud service/firewall appliance for security, Internet Protocol services, and management software for server, network elements, and back-office functions.
22 Based on information provided by the City of Vacaville as of June 10, 2022.

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Table 6. One-time capital costs for equipment to establish a transport network to meet the City of Vacaville's internal connectivity requirements Item Unit Cost Quantity Total
Core/Edge Routing $80,000 2 $160,000
Switching $7,500 2 $15,000
Software $15,000 2 $30,000
Security $50,000 2 $100,000
Management $30,000 2 $60,000
IP Services $5,000 2 $10,000
Spares $15,000 1 $15,000
$390,000
CPE $1,200 51 $61,200
$451,200
Pro Services $78,000 1 $78,000
Total Capital Cost $529,200
Estimated costs for the two core network sites’ equipment alone are $390K.

Expect professional services at approximately 20% of the total equipment costs to be required. All the City’s sites would get 1 Gbps connections, scalable to 10 Gbps. Each site requires customer premise equipment (CPE) that terminates the transport network and provides an interface to the sites local area network (LAN). We assume there are existing LAN equipment capable of 1 Gbps connections. Sites without connections or legacy equipment would involve additional site-specific costs. Budget around $47K annually for maintenance and other recurring equipment costs.

The central office would house core and edge equipment for ISPs serving customers within the area. Other carriers could be co-located in these sites so circuits and traffic could be connected and routed to the rest of the world. Equipment and facilities requirements are reasonably modest—primarily separate, secure cages for providers and major network users to place equipment, along with environmental controls and clean, reliable power. We assume the central office would be the City’s data center. Otherwise, plan to spend approximately $500K to build out a data center, not including property acquisition or construction costs.

Access Services
The major difference between a local transport network and a fiber access network is the addition of access and distribution infrastructure, including hubs and multi-site terminals, illustrated in Figure 12. The core network delivers much the same functionality to broadband distribution hubs—also called points-of-presence (POP)— Item 12.a
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as to transport service customer sites. The dedicated connections function as feeder lines, which are also typically deployed in rings, between the core sites and distribution hubs. The core and feeder networks and hubs comprise the “transport” network. Access requires additional equipment that supports connections to many customers.

Figure 12. Passive Optical Network (PON) access infrastructure, including hubs and terminals, provides gigabit speed access services
Feeder fiber connects optical line terminators (OLT) in the core sites to passive splitters called fiber distribution hubs (FDHs), typically in outdoor cabinet enclosures placed strategically throughout the service area. Splitters may also be located within the access POP itself. In areas where aerial fiber deployment may be used, FDHs may be placed aerially or transitioned from the aerial pole to a ground mounted FDH. As this plan is limited to assessing major corridors as fiber routes, we assume coverage is limited to customer premises within 500 feet of the backbone. This requires only a single FDH.

The distribution network branches out from the FDHs. Multiple access lines drop off the distribution lines—hence the term “fiber drops”—via drop terminals into customer premises. Major sites can be directly and diversely connected to the core sites via “laterals,” basically putting them on the feeder network. The backbone fiber may be used for a distribution, feeder network, and/or laterals, as well as core network. The particular use of specific fiber strands is a matter of how they are spliced together and where they terminate. Indeed, a single fiber cable can Item 12.a
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accommodate multiple physically separate networks for purposes such as SCADA or traffic signal interconnection.

Hubs may be powered cabinets, prefabricated shelters, or existing structures with sufficient space for equipment racks and other components. Fiber in the routes analyzed above could connect retail ISPs’ POPs anywhere in the City of Vacaville with backhaul via diverse routes to multiple upstream service providers for maximum fault protection. In practice, a distribution infrastructure can and should be built in a phased manner in response to consumer demand and/or in conjunction with other capital projects. For cost estimation, we assume:
• 3500 Customer Premises Served per Hub
• 50%23 Prospective Customer Take Rate
• 1,750 Total Subscribers (Drops) per Hub
• 0 Video Subscribers
• 1 Data Center
• 1:32 Split ratio
The size of the subscriber base impacts the types, quantity, and costs of central office equipment. Core routing and edge routing are assumed to be separated due to increased capacity required. An optical line terminal (OLT), which establishes connections over access infrastructure to subscriber premises, is also required along with equipment for each subscriber site. For estimating costs, we assume that each customer requires a separate broadband/Wi-Fi router, enclosure, and interface (optical network unit or ONU). Required professional services will be approximately 20% of total equipment costs. If additional FDHs were required beyond the central office, plan to spend about $460K per remote hub to serve up to 2,250 subscribers.

Table 7. Capital costs for access services, including central office/core network equipment and customer premises equipment
Role Unit Cost Quantity Total
Edge Routing $80,000 2 $160,000
Core Routing $125,000 2 $250,000
Switching $7,500 2 $15,000
Access Network $50,000 2 $100,000
Software $10,000 1 $10,000
Security $30,000 2 $60,000
23 Take rate in the context is used to estimate costs only, not revenues, and is set to a level intended to result in conservative cost estimates.

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Role Unit Cost Quantity Total
Management $75,000 2 $150,000
IP Services $15,000 2 $30,000
Spares $25,000 1 $25,000
$800,000
ONU $275 1,750 $481,250
NID enclosure $50 1,750 $87,500
Residential Gateway $159 1,750 $278,250
RG Management $6,000 1 $6,000
$853,000
Pro Services $160,000 1 $160,000
$1,813,000
Software/Systems
Billing $50,000 1 $50,000
Subscriber/Provisioning $25,000 1 $25,000
$75,000
Total Capital Expenses $1,888,000
Feeder and Distribution Fiber
Feeder infrastructure that extends from the POPs to neighborhoods and business districts typically requires only a few fibers, at most a single 24-strand buffer tube.

The backbone typically consists of 288-strand fiber therefore at least a hundred strands would be available for use as distribution. The estimated costs are based on feeder fibers are sized based on the demand forecast and sizing of each enclosure to ensure that each service area is well equipped for broadband services. These details are addressed in engineering design to get optimal coverage for the least practical costs.

Each OLT serves 512 subscribers at a 1:32 split. The number of POPs and OLTs per POP depends on the number subscribers. The cost includes OLT and backhaul hardware necessary to connect each POP to the core routers. In an actual design/implementation, each OLT would not need backhaul hardware, two line cards, 16 optical interfaces, etc.

Distribution fiber extends from the splitters in the FDHs to network access points (NAPs), or drop terminals, which connect individual fibers entering customers’ premises. NAPs may be attached to aerial strand, located in ground level pedestals or placed in underground vaults or hand holes located near the sidewalk or curb in residential neighborhoods or business districts. NAPs are costed as an integral component of the distribution infrastructure estimates. Fiber distribution to NAPs Item 12.a
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will be sized based on the service area density to provide service to between 8-12 premises per NAP.

Fiber Service Drops
Fiber drops connect from each NAP to the customer premise equipment that delivers broadband service. At the customer premise, the drop cable terminates in a protective “clamshell” enclosure attached to a home or building for storage of slack and connection to the home equipment. Drop fiber may be installed aerially or underground, typically for a flat fee. Providers may charge additional drop costs for special circumstances such as burying fiber through difficult landscapes or under driveways. The average cost of a fiber drop in Magellan’s experience, including all these components and labor, and recognizing that drops can vary greatly in complexity and distance, is approximately $2,500.

Optical Network Terminal
An Optical Network Unit (ONU), sometimes called an Optical Network Terminal (ONT), serves as the demarcation point between the retail ISP’s fiber network and the router or firewall connecting to the customer’s local area network (LAN). There are two general methods for installing ONTs. The first method involves mounting an outdoor rated ONT on an exterior wall of the structure and extending service wiring inside the premise. The second method involves extending the fiber into the premise and installing an indoor-rated ONU inside. In either case, the ONT is typically installed somewhere near the fiber entrance and an AC power source. The ONT terminates the fiber-based PON signals and provides customer access to their services through traditional copper interfaces. XGS-PON ONT’s supporting greater than 1 Gbps data service may also support optical small form-factor pluggable (SFP) interfaces for connection to enterprise-class LAN equipment.

Wireless Access Infrastructure
While the City of Vacaville would not deploy or operate radio access network or other wireless infrastructure under the model in this study, it is important to consider this infrastructure in the design to accommodate cellular and fixed wireless ISPs and capitalize on the assets. Wireless broadband can operate as mobile or fixed service.

Although cellular connections can approach broadband speeds, mobile wireless broadband is still in its infancy, as discussed below. Fixed wireless can be used to connect remote locations or sparsely populated areas, where DSL or cable service would not be economically feasible, via long-range directional microwave antennas.

As discussed below, most of these connections are built on proprietary technologies, although they generally extend Wi-Fi and similar standards.

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Figure 13. Radio-based wireless services provide flexible connections but have limited capacity and coverage
Coverage and speed are an intrinsic trade-off for wireless technologies. The farther a signal travels, the less information it can carry. High frequency signals, which have inherently high capacity, travel shorter distances than lower frequency signals (at the same power level). Lower frequency signals cover terrain and penetrate physical objects more effectively than high frequency signals. Spectrum in the lower frequency ranges offer better non-line-of-sight solutions, whereas the higher spectrum ranges need a more line-of-sight solution. Line-of-sight requires the transmitting antenna to be able to “see” the receiving antenna with limited trees and buildings in the way to be effective.

Terrain, then, plays an important role in the network design. Radio signals do not get over mountains or hills very well, nor does certain spectrum do very well in penetrating through buildings, foliage, or water, including rain and snow. The farther away the transmitter and the receiver are from each other, the less bandwidth is available. Transmitter sites need a means of connecting to the network, whether via fiber or microwave, to another site where it then transitions to a wireline fiber network. Fiber can be costly to install in remote locations. Electrical power, security and access are also considerations when locating appropriate tower sites. A propagation analysis to determine appropriate tower locations for City of Vacaville’s specific terrain would be part of a wireless high-level design to be conducted in the future.

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Cellular Mobile Wireless
Mobile wireless connections operate from antennas on towers that create wireless cells across a geographic area. Connectivity is maintained as devices move from wireless cell to wireless cell. The base of each tower site is connected to other tower sites and the internet, optimally via fiber-optic cables. Today, 4G transmits data at around 12/5 Mbps.24 With each new generation, more wireless applications become possible as more data can be carried across the airwaves. 5G networks operate multiple frequencies using millimeter wavelengths to offer anticipated download/upload speeds of 1 Gbps. The networks are designed to provide increased efficiencies while decreasing latency and to improve the performance of connected devices that define the Internet of Things (IoT), including autonomous vehicles, healthcare monitoring technologies, ultra-high-definition video, virtual reality, and many more applications ripe for development.

With limits in return on investment and physics, it is unlikely that 5G will be an allencompassing broadband solution. While the big three cellular providers have nominally launched 5G nationwide, a mature 5G network will take time and continued investment by carriers. The extent of full 5G rollout is to be determined, but if the investments in current infrastructure are any indicator, mid-sized cities like Vacaville are not the priority. Two keys to full 5G deployment are spectrum—all of which is effectively owned by AT&T, T-Mobile, and Verizon—and vertical assets with fiber connections.

Fixed Wireless
Fixed wireless services allow consumers to access the internet from a fixed point while stationary, and typically requires an external antenna with direct line-of-sight between the distant wireless transmitter and the customer building-mounted receiver. Speeds are generally comparable to DSL and cable modem. These services have been offered using both licensed spectrum and unlicensed devices. There are numerous small ISPs using fixed wireless to serve remote, sparsely populated areas, and several focused on more dense, urban areas.

Fixed wireless can be deployed as point-to-point (PtP) or point-to-multipoint (PtMP).

PtP involves a one-to-one relationship between antennas at different locations. It is typically used for interconnecting sites, such as a headquarters or main buildings, to a remote facility. Fiber has much greater capacity and is more reliable, so internet service providers typically use this approach for connecting to customer locations where they do not have wired infrastructure. End-users typically use it as a backup 24 Several providers have announced they will discontinue 3G services in 2022.

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or secondary connection or for non-critical or remote sites. PtMP involves multiple— even hundreds of—users’ antennas connecting to a single, central base station.

As illustrated in Figure 13, PtP and PtMP are complementary technologies. PtP can be used to interconnect PtMP base stations as well as for remote sites (although fiber is preferable due to its capacity and reliability). The networks require Line of Sight (LOS) or near Line of Sight (nLOS) to operate. As implied by the term, fixed wireless does not allow for mobile use. The systems utilize proprietary protocols and specialized devices to achieve the long ranges and high throughputs. Different vendors’ products may not interoperate with each other.

Citizens’ Broadband Radio Service (CBRS)
The FCC set aside the 3550-3700 MHz (3.5 GHz) spectrum in 2015 under a new, shared spectrum approach. There are three tiers of CBRS users, diagrammed in Figure 14. Current, incumbent, tier 1 spectrum users, which include US military, fixed satellite stations, and, for a limited time, wireless internet services providers (WISPs) are protected from interference by other users. Ten Priority Access Licenses (PAL) for 10 MHz channels between 3550 and 3650 MHz in each county was auctioned off by the FCC in July 2020. These licensees are protected from interference by other users but may not interfere with incumbent users. A licensee may aggregate up to 4 PALs.

Any portion of the spectrum may be used without a license for General Authorized Access (GAA), but this may not interfere with incumbent or PAL users.

Tier 3550 MHz 3600 MHz 3650 MHz 3700 MHz

1. Protected from
interference by other
users
Fixed Satellite Stations Incumbent Access
U.S. Military radar Incumbent Access

2. Licensed 10 MHz
channels; must not
interfere with tier 1
Priority Access License (PAL)

3. Must not cause
interference; gets no
protection from
interference
General Authorized Access (GAA)
Figure 14 CBRS User Tiers
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CBRS use is managed by a Spectrum Access System (SAS) with which all Citizen Broadband Service Device (CBSD) base stations must be registered. There are two classes of CBSD. Class A base stations, which can transmit at 1 watt of power, are meant for smaller-scale indoor, enterprise, or campus use. Class B base stations can transmit at 50 watts, giving them much greater range. Strategically placed radio signal sensors will ensure that uses do not interfere with each other, particularly military radar.

Another important characteristic of CBRS is the Long-Term Evolution (LTE) protocol is commonly used with the spectrum. LTE is also used for 4G cellular data service, so it is widely implemented in user equipment. CBRS involves different spectrum, but some smartphones have antennas that operate in the CBRS bands. It is reasonably easy and economical to add CBRS/LTE to devices without changing their operating characteristics or systems. Therefore, there are few barriers to end user adoption.

The combination of CBRS/LTE in base stations and user equipment is a radio access network (RAN). A RAN has a network core (an Evolved Packet Core or EPC) that authenticates and authorizes user equipment and manages connections to multiple base stations. This allows for mobile roaming from base station to base station without loss of connectivity and makes RANs very secure. The downside of a CBRS/LTE RAN is that some entity must operate EPC and the SAS. These are relatively inexpensive services that can be purchased from vendors or operated on private servers.

Low-Power Wide Area Networks (LPWAN)
Although not broadband, LPWAN technology should be considered in any network infrastructure plans. It is generally used to connect many small devices over a large geographic area. Water meter reading is a prime example of a LPWAN application.

These are message-based networks, meaning end devices send small packets of information to an LPWAN gateway that then sends the data via a wired network to monitoring or tracking software. Real-time control of the devices is very limited but other, similar technologies exist that allow for remote control.

There are numerous standards for LPWAN with varying degrees of openness and propriety. The proprietary technologies were first to develop and currently have the largest installed bases. The open standards for LPWAN are still evolving. The major open standards are extensions of other standards, specifically 5G and Wi-Fi. The costs and flexibility of open standard based systems tend to be much better than proprietary technologies, although proprietary technologies may perform better in the short-term.

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Wi-Fi
Wi-Fi, which was originally termed “Wireless Fidelity,” is an open standard that was developed to connect computers to a local area network (LAN) via unlicensed radio spectrum (the same frequencies used for cordless phones, garage door openers, and other non-network wireless devices). Generally, Wi-Fi is a PtMP technology: Wi-Fi access points connect multiple devices within limited range, typically no more than 150 feet indoors and up to 1,500 feet outdoors. There are multiple standards or versions of Wi-Fi. Some can provide up to 1 Gbps of throughput. Other new Wi-Fi standards are intended to cover large areas with minimal power requirements.

Wi-Fi coverage and speed depends on multiple factors such as buildings, foliage, and other physical barriers, interference from other spectrum users, radio spectrum used, transmission power, type of antenna(s), and weather. New versions of the WiFi protocol operate at greater distances and/or speeds. It can be deployed PtP to interconnect sites and is being adapted for LPWAN applications.

Wi-Fi access points are often integrated into routers that interconnect the Wi-Fi network (also called a service set identifier or “SSID”) to other networks, including a broadband connection to the internet. This is typically referred to as a “hotspot” or Wi-Fi zone. Multiple access points can be interconnected to each other as well as a router to cover a larger area. A WiFi network can even be extended over multiple otherwise independent routers via a centralized server to create “community” Wi-Fi.

The latest version, Wi-Fi 6, improves these functions as well as expands the spectrum and increases speeds for Wi-Fi connections.

Today, many organizations use Wi-Fi to provide wireless connectivity throughout a building or campus. Many cities and counties have deployed public Wi-Fi in zones that extend into parks, other public spaces, and even throughout the community. WiFi hotspots are common at hotels, restaurants, and public buildings for public access, and are widely used in homes and businesses for private access. The conceptual network is designed to accommodate Wi-Fi as well as other wireless technologies but does not include them. While the City of Vacaville could potentially offer public Wi-Fi, we assume any such equipment would be provided separately by the City of Vacaville or other entity.

Radio Access Network model
The Radio Access Network (RAN) model, diagrammed in Figure 15, accommodates all the above forms of wireless connectivity, and thereby maximize the number, types, and value of wireless providers as customers. Under this model, the City of Vacaville could lease co-location facilities, fiber backbone, poles, towers, and other assets to Item 12.a
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private companies to deploy and operate RANs. The particular type of RAN would depend on the equipment providers deploy.

Figure 15 The Radio Access Network (RAN) Model
The key issue for the City of Vacaville is how and whether to develop assets and facilities to accommodate RANs. The conceptual network design incorporates poles, but that doesn’t mean they can be used for RAN infrastructure. Fiber must be physically accessible at poles and towers to connect cells. Poles would need to be assessed and possibly upgraded to support small cell infrastructure. Tower sites would need secure, multi-tenant huts for providers to deploy their gear (these huts may also serve as fiber hubs, depending on location). Providers may need the backbone to route to their points-of-presence and will definitely need interconnection to their regional/national networks.

RANs are much less costly than fiber networks.25 They are more flexible, too, but have much less capacity and lower reliability. Mounting facilities can be the largest cost for RAN because antennas need to be above the surrounding terrain. Aesthetics is also an important issue because, as boxes on poles and towers, cell sites are not particularly attractive. People want connectivity but may object to cell sites in their neighborhood.
25 The active components of a RAN will need refreshed in 5 years at most. Historical trends suggest the costs of those components can be expect to drop substantially in that time.

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Wireless Broadband Cost Estimates
For cost purposes, we assume that any wireless solution must qualify as broadband, ideally meeting the State of California’s new standard of 100 Mbps download and 20 Mbps upload. CBRS is the best technology for economically meeting these criteria. A CBRS cell with full coverage would have four sectors, each with an antenna and base stations which may come as an integrated unit. Each cell requires a router with fiber interface, power, and an equipment hut, which may be shared with other network infrastructure such as a GPON POP. It also requires a tower, which would typically be a 50 to 150 feet tall monopole but can be most any tower suitable for antenna mounting.

Such a cell would accommodate 2,000 subscribers—500 subscribers per base station—with 200 Mbps throughput per base station, divided among all users in that sector. Users should generally get 50 Mbps to 100 Mbps throughput, depending on the number of other simultaneous users. A CBRS cell would nominally provide 60 Mbps download at a 10-mile radius in “ideal” circumstances, including no foliage or terrain. The practical range is around 3 miles.

Table 8. CBRS Radio Area Network Costs
Component Unit Cost Quantity Cost
Antenna, base station, installation,
wiring, and network management
software license, per sector26
$12,500 4 $50,000
150-foot direct embed monopole,
shipping and installation $110,000 1 $110,000
Equipment hut, generator/battery
backup and AC $65,000 1 $65,000
Router with fiber interface $1,000 1 $1,000
Construction, engineering, and project
management services 15% $33,900
Total per CBRS cell $259,900
Each 4-sector cell requires four 65-degree, 4-port antennas and base stations, which may come as an integrated unit, one per sector. Antennas are mounted on towers and a hut is generally required for other network equipment. A router is required to 26 Based on Telrad equipment (see https://telrad.com/products/breezecompact-1000/). There are multiple vendors of CBRS RAN equipment. Magellan Advisors does not endorse or recommend a particular solution or vendor.

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connect the cell to the fiber network for backhaul. Each customer premise will need equipment that consists of an CBRS LTE antenna and base station with integrated router and Wi-Fi access point. Installation cost is approximately $200 based on Magellan’s experience, and each customer initialization involves a $35 fee for EPC.

Each customer involves about $750 in capital expenses. There is also a monthly recurring cost of $2.25 per customer.

ASSETS AND SITES
As discussed in detail above, optical fiber is the standard for high-capacity, highreliability network infrastructure. As assets, fiber cables must be placed either overhead, attached to utility poles, or underground. While there are methods for directly burying fiber cables, they are typically placed inside conduits. Splice points are in “handhole” boxes or vaults at regular intervals. Underground fiber can be economically deployed via joint-build with other infrastructure—water, sewer, transportation, etc. Cabinets or huts may be needed for access and distribution equipment. Fiber must physically route into buildings to be served; major buildings may need dual, redundant connections.

Antenna and base stations for radio access networks (RAN) must be sited within range of customers—from a few hundred feet to a couple miles depending on the services, speeds, and technologies involved. The antenna must be installed somewhat above ground, ideally with line of sight to most of the covered area. Base stations must be adjacent to the antenna, ideally with fiber connection for backhaul.

This means buildings, poles, and towers can be valuable “vertical assets,” particularly in more densely populated areas. Towers in more remote areas can be essential to inexpensive broadband options.

Vacaville has numerous options for broadband assets and sites. Two of the most prominent are its planned traffic management upgrades and streetlights. Several existing city-owned tower sites are along the routes analyzed above (Figure 10.

Prospective fiber routes in the City of Vacaville). Sites in other parts of the city may be of interest to cellular companies, especially if they have fiber connections.

Community anchor industry and institution sites, along with city sites can be seen as targets for the network infrastructure. Development in greenfield commercial, industrial, and residential areas can be conditioned to include network assets.

Two more general opportunities are with the Northeast Growth Area and Lagoon Valley. As greenfield areas, network infrastructure—poles and towers as well as conduit and fiber—can be very economically deployed as a condition of the development. These conditions and associated standards can then be applied to Item 12.a
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other areas, including redevelopment. Any road or other infrastructure improvements in these areas could easily accommodate network assets.

There are many options for connecting city assets and facilities. Many city facilities are along West Monte Vista Ave and Elmira Rd and in the downtown area—bounded by Depot, Mason, and Merchant streets. Therefore, those corridors make for a good starting point. Beyond this core area, general options are to encircle first then fill-in or to extend outward and then add segments along the edges to create rings. These options depend on demand and funding and should be done opportunistically. For example, while there are relatively few city sites along East Monte Vista but transportation funding for traffic signal interconnection along that corridor could make it economical to extend fiber to Nut Tree Road and the airport.

Third party facilities also represent other options for Vacaville to develop broadband.

The state middle-mile network, Golden State Net, will follow Caltrans easements along the freeways. Private companies have long-haul and middle-mile along Leisure Town Road and the railroad east of town that apparently serve some major enterprises in the freeway wye but that infrastructure doesn’t seem to terminate in other local facilities. Areas around the airport, along Eubanks and Midway, in Lagoon Valley, and, of course, the Northeast Employment Area are likely to facilities that need high-capacity/high-reliability connections.

In some ways, the asset and sites options are the most straightforward: capitalize on every asset and to connect as many sites as possible. But assets and sites can be very complicated, especially due to the range of stakeholders involved. Coordination and planning are essential. The assets will need to be actively promoted to ensure they are fully used, so marketing and sales capabilities are also needed. Assets will not just develop on their own.

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Recommendations
The City of Vacaville’s Strategic Plan for FY 2021 through 2026 doesn’t mention broadband or even networks, but implicitly requires network infrastructure and services. This is common for local governments as connectivity hasn’t traditionally been a critical resource and it was easy to lease them from private providers. As connectivity requirements increase, they also become more diverse and critical to municipal operations, and it becomes more important to explicitly plan for and invest in them.

NETWORK DEVELOPMENT STRATEGY
Use the layered model in Figure 8 to guide planning and implementation. Plan from the top down and implement from the bottom up. The commonality between the two—the literal touchstone—are the sites to be connected and the services they require. Generally, start with backbone between core city sites and work outward from there. This general approach has several practical and strategic implications. These are encapsulated in the vision and strategic goals stated at the beginning of this report and detailed below. Implementation of the recommendations will enable the City to meet current and future broadband needs of its near-term and long-term initiatives.

1. Engage stakeholders to identify needs and
opportunities.

Stakeholders are anyone with an interest in the city, which includes residents as community members but also businesses, county, regional, and state agencies, institutions, and major industry. Equity is when people have access to and control over resources comparable to others given preconditions. In concept, no one should be arbitrarily excluded from economic opportunity and social institutions. The corollary is that everyone should have ability and access to use the internet and other digital technologies.

Stakeholder engagement, which directly addresses strategic goal #5, was initiated with this planning process. It was necessarily focused and preliminary. Digital equity implies common understanding and useful tools as well as network access.

Incorporate engaging activities into next steps, including implementation, that directly empower residents, including businesses and other organizations, to make full use of the technology. Diverse participation and practical outcomes come from persistent practices, which benefit from strong partnerships. Work with communityItem 12.a CITY OF VACAVILLE, CA BROADBAND MASTER PLAN PAGE 54
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based organizations to identify and serve disadvantaged persons, families, and businesses, focused on empowering them.

Practically, this means providing public connectivity around and in sites connected via the initial backbone then using this service to garner additional stakeholder input.

The implication is that the City of Vacaville must have means to provide access and get input about needs and opportunities for getting and using additional technologies. The most effective means is a Wi-Fi captive portal, a default web page for a Wi-Fi network that any user is driven to for acceptable use policy and authentication before being allowed access to the internet. It may be best to have informational fliers, signage, workshops, and even pop-up booths to inform people about the connectivity. These may be combined with an on-going survey or “tech suggestion box.”

2. Provide connectivity to improve City services and
reduce costs for municipal operations.

Build a fiber backbone along major routes with access points at city sites, parks, schools, streetlights, traffic signals, transit locations, utility assets, and other assets.

Enhance this infrastructure and add equipment to establish a carrier-class network serving internal purposes. Layer on wireless technologies as appropriate, including support for cellular 5G and fixed wireless broadband deployment as well as public Wi-Fi, low-power wide-area network (LPWAN, generally for sensors and Internet of Things (IoT)), and wireless distribution infrastructure.

The following general recommendations for prioritizing fiber routes are based on potential impact in terms of City assets and locations of wireless infrastructure.

Evaluate city properties for use as distribution hubs and/or radio access network sites. Consider constructing access infrastructure where needed for internal purposes and of value to stakeholders, particularly network service providers.

Equipment and infrastructure technical requirements are addressed in the “Infrastructure” section above and in attached appendices.

Route, phasing, and location recommendations
The basic concept for phasing development, illustrated in Figure 16, can be summarized as “through, around, within, and beyond.” Start with a core east-west fiber corridor through the city, including a ring around downtown and a section extending along Merchant past City Hall. Develop a fiber ring around the city. Build sub-rings within the city. Then extend fiber to the northeast and southwest, beyond the populated portions of the city. The total cost for complete build out of all corridors, without any cost saving tactics, would be between $21.7M and $34.7M.

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Fiber is the foundation for each phase but plan to develop wireless assets— specifically, streetlight poles and public properties for RAN cells—for each phase. — Phase 1
— Phase 2
— Phase 3
— Phase 4
Figure 16. The general recommendations for backbone development would reach much of Vacaville in the first three phases.

This general approach that can and should be adapted to circumstances. Actual routes and sequence of development should be determined by strategic value. It may not make sense to develop the entire length of some corridors, some “within” routes may not be valuable, and “beyond” routes may be incorporated into broader development plans. Segments of routes should be jointly built with other projects, such as sewer upgrades for Alamo Dr at West Monte Vista. The state’s middle-mile network, which is planned for the I-505 and I-80 corridors may be integrated into, extend, or substitute for some of these routes. Phasing should be based on demand, Item 12.a
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particularly from the City itself and among providers interested in investing in the area and leasing city-owned assets.

Phase 1: East-West “Through” Corridor
Core backbone along the entire length of Elmira, Merchant, Monte Vista, and downtown area streets (Depot, Dobbins, Main, and Mason), would be a total of 12.75 miles, cost approximately $6.4M to construct, and connect:
• Andrews Park
• City Hall, including data center (core site #1) and Police Department • Current and future cell sites
• Fire Station 71
• Housing and Community Services
• Interconnection points with GSN (at I-80) and private fiber in the railroad through Elmira
• Libraries and Performing Arts Theater
• McBride Senior Center
• Public Works Corporate Yard (core site #2)
• Skate Center
• Streetlights
• Traffic signals
• Vaca Pena Middle School
• Vacaville City Coach
• Vacaville High School Police Station
• Vacaville Social Services Center
• Vacaville Transit Plaza
• Water Utility Central Office, pump stations (3), and wells (4) Phase 2: Ring Around Vacaville
A backbone along Alamo, East Monte Vista, Leisure Town, North Orchard, and Vaca Valley would encircle most of the city with over 19 miles of fiber for approximately $9.6M and connect:
• Current and future cell sites
• Fire Station 74 and 73
• GSN and private fiber at additional points
• Laterals to Police Stations at schools: Jepsen Middle, Hemlock Elementary, North Orchard Elementary
• Mariposa Head Start Center
• Nut Tree Airport; airport “campus” fiber
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• Streetlights
• Three Oaks Community Center
• Traffic signals
• Water Utility lift/pump stations and wells
Phase 3: Sub-rings Within the City
Fiber routes along Alison, Brown, Browns Valley, Marshall, Nut Tree, Peabody, and Ulatis would create multiple sub-rings, consisting of over 15 route miles, costing approximately $7.7M to construct, and providing more flexible, resilient connectivity options as well as extending high-capacity infrastructure into Vacaville’s neighborhoods for:
• Current and future cell sites
• Educational Service Center
• Incorporating GSN along I-505 and I-80 and additional options for private fiber connections
• Laterals to Police Stations at schools: Jepsen Middle, Hemlock Elementary, Markham Elementary, North Orchard Elementary
• Outlets Police Stations
• Streetlights
• Traffic signals
• Ulatis Community Center
• Vacaville Regional Transportation Center
Phase 4: Extending Beyond the Core
An extended ring along Eubanks, Midway, and North Village could incorporate stretches of GSN fiber to create additional sub-rings in the Northeast Employment Area and reach Lagoon Valley. These corridors are a total of 7.5 miles, which would cost approximately $3.7M to construct and connect:
• Current and future cell sites
• Development agreements to include fiber and wireless facilities • Streetlights
• Traffic signals
Extension into Lagoon Valley could make use of GSN or extend into areas beyond city boundaries, which would require collaboration with Solano County, neighboring cities, service provider companies, and others. While all phases would benefit from development agreements that include fiber and wireless facilities, this phase would be especially appropriate for those tactics.

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These are initial estimates for the entire length of the corridor. Costs can be greatly reduced by focusing development to specific portions of the corridor and via joint build with partners and other projects. Of course, any extension would add significantly to the costs. Recruiting private companies to lease or otherwise use the City’s infrastructure to offer network services will greatly increase the impacts while reducing direct costs to the City.

Broadband is intertwined with economic development. A fundamental challenge with broadband and other network infrastructure and services is capital investment.

Economic development is essentially about attracting business investment.

Networks are a variation on this theme particularly when strategy involves public investment as a catalyst for private investment. Indeed, you can approach broadband development in much the same way as you approach development of business district, a downtown area, or industrial park. The goal is to attract multiple companies that will create solid, good paying jobs and provide valuable services in the community.

The assets are very different but complementary: commercial centers, downtowns, and industrial parks need broadband, cellular, and other network services. Network services companies need facilities to operate. And providers want to literally connect with as many prospective customers as possible. All this directly impacts local government operations and strategy, and public interest more broadly. The digital divide is a result of lack of investment in areas that are relatively costly to serve and with low-income households. Thus, attracting private investment for strategic goals and to targeted areas can and should be part of economic development practice.

Planning and Policies
It is essential to have policies and procedures in place to encourage and expedite broadband development. Development conditioning, “Dig Once,” master license agreements, etc., should be clear and, ideally, aligned with county policies and those of neighboring cities. Planning and permitting should include network infrastructure as a matter of course. All capital improvements, other projects, and programs should be reviewed for opportunities to improve connectivity. Establish a fund for covering the marginal cost of such additions. Work as closely with providers as possible, track their activities and assets, and inform them about public priorities and issues, such as under-served areas.

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3. Use network features—capacity, cost, resilience,
etc.—to attract business investment in targeted
sectors.

Modern enterprises require advanced connectivity—highly reliable, high-capacity network services that can be flexibly deployed and managed. Fiber to a site is essential for most expansions and relocations, second only to workforce. Major enterprises require physically diverse connections from multiple providers. Cellular can be critical to business operations as well, particularly those with field workers and fleet assets. Some businesses are establishing their own cellular networks using CBRS spectrum or by leasing capacity from cellular companies. This requires additional investment the City might leverage or share with business to benefit the community. Network infrastructure can be an important differentiator for attracting these companies, which tend to be in advanced manufacturing, distribution and logistics, health and medical, tech, and transportation sectors.

This tactic flows directly from the previous. The challenge is that most telecom companies are market takers rather than market makers, so they only want to invest where there is evident, strong demand. Thus, public investment may be required to develop both the demand and supply side of the market. The other challenge is for public agencies is to capitalize on infrastructure. While economic multiplier and ripple effects are great, they don’t directly create public revenue. The way to recoup public investment is to rent assets to providers. Another tactic is to take a share of revenue from providers. Generally, getting providers to expand offerings is specific areas, particularly if it makes a difference for targeted industry prospects, may be adequate return on public investment. This outcome, which directly relates to strategic goals #2 and #3, may require direct local public investment.

4. Leverage the network for public safety and security, supporting first responders, and improving
community preparedness.

A wide range of public safety functions depend on various types of connectivity. First responders require cellular service for data and voice, as well as secure “push-to-talk” land mobile radio. Too often, such services are weakest where they are needed most:
in isolated, remote areas or inside large buildings. Mobile connectivity enables public safety preparation and response. Not only do fire fighters, medics, and police need information to respond effectively to incidents, they generate a great deal of data, some of which must be shared in real-time to be of the most value.

Item 12.a
CITY OF VACAVILLE, CA BROADBAND MASTER PLAN PAGE 60
MAGELLAN BROADBAND, LLC SEPTEMBER 30, 2022
The City of Vacaville and its residents have a range of systems that directly enable public safety. Public and private surveillance cameras may be the most prominent example. Many buildings have access control systems and alarm system that directly impact first responders. Floorplans, evacuation routes, and information about hazardous materials are required for effective preparation and response. Utility locations and shutoff instructions can be a matter of life and death. For public safety personnel should have flexible, ready, secure access to such systems, first responders must have access. Businesses, institutions, and residents must have access, too, to make these systems available.

BENEFITS, COSTS, AND GOALS
An initiative to provide public broadband access could mean lower costs and more options for Vacaville residents. The core issue is exactly what “public” means. It could mean “owned by the City government for operational purposes.” Or it could mean “free broadband for everyone.” Regardless, broadband access involves costs, which must be covered or justified somehow. The key to balancing costs with benefits is clear goals. Vacaville’s strategic goals easily translate into broadband development goals, as we just detailed.

Under this approach, the greatest benefits will accrue from the City connecting its assets and sites Specifically, such connectivity will avoid and reduce recurring costs for the City and will enable it to operate more efficiently and effectively. While most of these benefits result from systems deployed over the network, they are enabled by the network. For example, reduced power costs for streetlights and reduced traffic congestion depend on totally separate systems, both of which require network connections.

Many more benefits may flow from opening the network to private uses. Beyond the management and policy challenges inherent in putting multiple uses by multiple parties in a facility, private companies can offer a range of services—enterprise network, managed services, security, streaming media, telehealth, etc.—as well as generating revenue. Of course, this requires staff, which means additional costs, as described in the “Staffing and Systems” subsection, above. The City must consider the trade-off between providing connectivity directly to local businesses and institutions, which involves greater costs, and simply allowing one or more network services companies to manage and market such services.

Item 12.a
CITY OF VACAVILLE, CA BROADBAND MASTER PLAN PAGE 61
MAGELLAN BROADBAND, LLC SEPTEMBER 30, 2022
Table 9. Each line of business possible with network infrastructure has distinct benefits (“pros) and costs (“cons”)
Line of Business Benefits/Pros Costs/Cons
Asset Leasing • Minimal overhead
• No equipment costs
• Could result in
additional investment
by network services
companies
• Lowest revenue
• Responsible for break-fix
• May result in stranded,
under-utilized assets
Transport Services
(Wholesale)
• Competitive option for
local business and
institutions
• Revenue could cover
network costs,
depending on
customers and
services
• Could result in
revenue from network
services companies
• Must guarantee response
time and service levels
• Substantial overhead from
dedicated staff
• Significant increase in
equipment requirements
• Some competition with
existing providers
Wired Access
Services (Retail)
• Relatively high
margins, presuming
strong take-rate and
low churn
• Very high-speed
services
• Very high capital and
operating expenses
• Major staffing
requirements and large
overhead costs
• Direct competition with
existing providers
Wireless Access
Services (Retail)
• Relatively low capital
and operating
expenses
• Flexible deployment
• Substantial staffing
requirements and
overhead costs; must
manage customers
• May have capacity/speed
and coverage limitations
Item 12.a
CITY OF VACAVILLE, CA BROADBAND MASTER PLAN PAGE 62
MAGELLAN BROADBAND, LLC SEPTEMBER 30, 2022
Line of Business Benefits/Pros Costs/Cons
• Indirect competition with
existing providers
Our recommendations is to focus Vacaville’s public broadband access initiative on key locations such as the downtown area, parks, community centers, sports facilities, and other City facilities. Use fiber as the backbone, Wi-Fi as the primary access technology, and CBRS RAN for intermediate distribution (between fiber and Wi-Fi, where needed). This will give Vacaville a great deal of flexibility in deploying “smart” assets, including hotspots, kiosks, sensors, variable message signs, etc., and could be upgraded to handle moveable or even mobile connections.

Deploy the fiber first where it can connect the most assets, including sites for wireless infrastructure. Establish clear standards and practices for deploying and managing fiber—including joint builds—to ensure it is consistent and adequate for carrier services. Plan the CBRS to accommodate other private wireless networks— education, healthcare, other anchor institutions—as well as other wireless network infrastructure (e.g., any poles and towers should be able to support cellular infrastructure).

Establish fiber-based transport services for internal purposes and provide to other organizations on a case-by-case basis. Establish a wholesale pricing framework for community anchors/non-profits, economic development, and network service providers. We do not recommend the City provide retail broadband. Consider outsourcing development and management of the CBRS network to a third party, which might also use it for retail services. Work with community-based organizations to deploy access via fiber or CBRS to key locations for underserved communities.

Item 12.a
BHGR 9.26.25
CITY OF VACAVILLE AND INTREPID FIBER NETWORKS, INC.

CONSULTING SERVICES FUNDING AGREEMENT
THIS FUNDING AGREEMENT ("AGREEMENT") is dated for reference purposes this _____ day of _____________ 2025 and made and entered into by and between the CITY OF VACAVILLE, a municipal corporation ("CITY"), and BIF IV Intrepid OpCo LLC, d/b/a Intrepid Fiber Networks, a Delaware limited liability company ("INTREPID"). The term "PARTIES" as used herein refers collectively to CITY and INTREPID.

R E C I T A L S
WHEREAS, INTREPID has approached CITY regarding the development of fiber optic infrastructure within the City of Vacaville; and
WHEREAS, CITY and INTREPID desire to explore a partnership for fiber infrastructure development that would benefit both PARTIES and the community; and
WHEREAS, CITY requires specialized consulting services to evaluate the technical and legal aspects of such a partnership; and
WHEREAS, INTREPID has agreed to fund CITY's consulting costs for the initial phase of this partnership evaluation; and
NOW, THEREFORE, in furtherance of the foregoing recitals, and for good and valuable consideration, the receipt and sufficiency of which INTREPID and CITY each accept and acknowledge:

SECTION 1. TERM OF AGREEMENT
The term of this AGREEMENT shall be from the date of execution by both CITY and INTREPID ("EFFECTIVE DATE") through completion of the consulting services described herein, subject to early termination in accordance with SECTION 4 of this AGREEMENT (the "TERM").

SECTION 2. OBLIGATIONS OF CITY
A. CITY will retain the services of EN Engineering LLC, a Delaware limited liability company with headquarters at 28100 Torch Parkway, Suite 400, Warrenville, IL 60555 ("CONSULTANT") to provide specialized consulting services related to fiber infrastructure development and partnership structuring.

B. CONSULTANT services shall include:

1. Microtrenching study and analysis

2. Partnership negotiations and development of a Term Sheet for future agreement

3. Construction specifications development

4. Other related technical and legal consulting services as mutually agreed upon Docusign Envelope ID: 1546B9C4-F344-4E65-8896-5C6781EB18CC Docusign Envelope ID: 41362E70-F638-44BC-B838-3FAE942C5D47 Item 12.a
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C. CONSULTANT is selected by CITY, retained by CITY, paid by CITY, reports directly to CITY, and shall remain independent of INTREPID. Nothing in this AGREEMENT prohibits CITY and CONSULTANT from conferring with INTREPID regarding the project to the extent permitted by law.

D. COSTS means all CITY costs directly related to the consulting services, as more particularly described on the attached Schedule 1, including:

1. CONSULTANT fees and expenses

2. Administrative costs associated with CONSULTANT’s consulting services E. COSTS will not exceed sixty-one thousand sixty-five dollars ($61,065), (the “FUNDING CAP”) without INTREPID’s prior written consent.

SECTION 3. COLLABORATIVE PROCESS
A. Review and Communication: Upon completion of each deliverable, the delivering party shall provide the deliverable to the other party for review. The PARTIES shall communicate regarding the deliverable and any next steps within fifteen (15) calendar days of receipt. Notwithstanding anything to the contrary, Intrepid may use, reproduce, modify, and create derivative works of all finished and delivered materials for any purpose, including other projects, on a perpetual, worldwide, and royalty-free basis.

B. Joint Decision-Making: Both PARTIES recognize the value of open communication throughout this process. Decisions regarding progression to subsequent deliverables shall be made jointly, with both PARTIES committing to timely review and response to maintain project momentum.

C. Acknowledgment of Expertise: The PARTIES recognize that INTREPID brings specialized technical expertise in broadband infrastructure deployment, and that CITY brings knowledge of local community needs and regulatory requirements. Both PARTIES value the unique contributions each brings to this partnership.

D. Good Faith Partnership Approach: The PARTIES acknowledge that CITY's participation in this partnership is governed by local authority requirements, and that INTREPID has certain state statutory rights regarding fiber infrastructure deployment. Both PARTIES recognize their mutual interest in a successful collaborative partnership. To that end, the PARTIES agree to:

1. Communicate promptly and transparently about any concerns regarding deliverables, timeline, or project direction

2. Engage in constructive dialogue to address issues as they arise

3. Consider each other's legitimate interests and constraints in decision-making

4. Work together in good faith to identify solutions that advance both PARTIES' goals E. Concerns and Discussion: If either party has concerns about a deliverable or questions about proceeding to the next phase, that party shall promptly communicate such concerns to the other party. The PARTIES shall meet and confer in good faith to discuss the issues and explore mutually acceptable paths forward. Either party may propose modifications or adjustments to the scope or sequencing of remaining work for joint consideration.

SECTION 4. OBLIGATIONS OF INTREPID
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A. Within 30 days of INTREPID’s receipt of an invoice from the CITY for COSTS paid by the CITY, INTREPID shall reimburse CITY up to an aggregate amount not to exceed the "FUNDING CAP".

B. Upon completion of each deliverable, with the initial deliverable being the construction specifications, INTREPID and CITY will mutually agree to move to the next deliverable.

C. INTREPID acknowledges and agrees that nothing in this AGREEMENT guarantees any particular result or approval of any partnership arrangement.

D. NO GENERAL FUND LIABILITY: It is understood that all COSTS shall be borne by INTREPID and are not the obligation of CITY or CITY's General Fund.

SECTION 5. TERMINATION
A. CITY shall have the right to terminate this AGREEMENT, without cause, by giving not less than seven (7) days' written notice of termination.

B. If INTREPID fails to perform any of its material obligations under this AGREEMENT, in addition to all other remedies provided by law, CITY may terminate this AGREEMENT immediately upon written notice.

C. INTREPID may terminate this AGREEMENT, without cause, with seven (7) days written notice to CITY.

Other than as required by law, CITY shall be under no obligation to issue permit approvals upon termination of this AGREEMENT.

D. Upon termination, INTREPID shall remain responsible for all COSTS properly incurred prior to the effective date of termination. The CITY shall take reasonable actions to minimize additional COSTS once the CITY has received notice of termination from INTREPID.

SECTION 6. INDEMNIFICATION AND DEFENSE
A. INDEMNITY. To the fullest extent allowed by law, INTREPID shall indemnify and hold harmless CITY and its officers, officials, employees, volunteers, and agents from and against damages, liabilities, or costs of all types including, court costs, reasonable attorney's fees, litigation expenses and costs of investigation to the extent they are caused by the negligence, recklessness, or willful misconduct of INTREPID, or anyone directly or indirectly employed by them, or anyone for whom they are legally liable, whether or not CITY accepted or approved any service or work product.

B. OBLIGATION TO DEFEND. INTREPID shall, upon CITY's request, defend with counsel approved by CITY (which approval shall not be unreasonably withheld), at INTREPID's sole cost and expense, any thirdparty action, claim, suit, or cause of action which asserts liabilities resulting from any allegedly negligent act, omission, or misconduct, of INTREPID in connection with this AGREEMENT.

SECTION 7. GOVERNING LAW
CITY and INTREPID agree that the law governing this AGREEMENT, and all claims or causes of actions (whether in contract, tort, or statute) that may be based upon, arise out of, or relate to this Docusign Envelope ID: 1546B9C4-F344-4E65-8896-5C6781EB18CC Docusign Envelope ID: 41362E70-F638-44BC-B838-3FAE942C5D47 Item 12.a
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AGREEMENT, or the negotiation, execution, or performance of this AGREEMENT (including any claim or cause of action based upon, arising out of, or related to any representation or warranty made in or connection with this AGREEMENT or as an inducement to enter into this AGREEMENT), shall be governed by, and enforced in accordance with, the internal laws of the State of California including its statute of limitations, without regard to any conflict of law principles.

SECTION 8. COMPLIANCE WITH LAWS
INTREPID shall comply with all applicable laws, ordinances, codes, and federal, state, and local government regulations. INTREPID represents and warrants to CITY that INTREPID has and will maintain during the term of this AGREEMENT all licenses, permits, qualifications, and approvals legally required to perform the obligations under this AGREEMENT.

SECTION 9. CONFIDENTIAL INFORMATION
INTREPID understands and agrees that, in the performance under this AGREEMENT, INTREPID may have access to private or confidential information that may be owned or controlled by CITY. INTREPID agrees that, absent express written consent of CITY, all information disclosed by CITY to INTREPID shall be held in confidence and used only in performance of this AGREEMENT. Similarly, CITY understands and agrees that, in the performance under this AGREEMENT, CITY may have access to private or confidential information owned or controlled by INTREPID. CITY agrees that, absent express written consent of INTREPID, all information disclosed by INTREPID to CITY shall be held in confidence and used only in performance of this AGREEMENT.

SECTION 10. CLAIMS AGAINST CITY
In the event any claim or cause of action is brought against CITY by INTREPID, its officers, employees, subconsultants, subcontractors, or agents in connection with the performance or nonperformance or arising out of or in any way connected to this AGREEMENT or the duties and obligations contemplated herein, INTREPID, its officers, employees, subconsultants, subcontractors, or agents must comply with Vacaville Municipal Code (VMC) Chapter 1.10, as may be amended from time to time. Any claims arising out of or in any way connected to this AGREEMENT, the performance or non-performance hereof, or the duties and obligations contemplated herein must be presented in writing to CITY no later than six (6) months after the accrual of the cause of action and such claims shall be governed by the provisions of VMC Chapter 1.10, as may be amended from time to time. No lawsuit, complaint, or cause of action arising out of or in any way connected with this AGREEMENT, the performance or non-performance hereof, or the duties and obligations contemplated herein may be brought against CITY, or any officer, employee, board, commission, or authority of CITY, until a written claim has been presented to CITY’s City Council (by and through CITY’s City Clerk) and has been acted upon or has been deemed to have been rejected by CITY.

SECTION 11. VENUE AND JURISDICTION
In the event that suit shall be brought by either party to this AGREEMENT, the PARTIES agree that venue shall be exclusively vested in the state courts of the County of Solano or, where otherwise appropriate, exclusively in the United States District Court, Eastern District of California, Sacramento, California.

SECTION 12. WAIVER
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BHGR 9.26.25
INTREPID agrees that waiver by CITY of any breach or violation of any term or condition of this AGREEMENT shall not be deemed to be a waiver of any other term or condition contained herein or a waiver of any subsequent breach or violation of the same or any other term or condition.

SECTION 13. NOTICES
All notices required under this AGREEMENT shall be in writing and delivered to:

TO CITY:

City of Vacaville
650 Merchant Street
Vacaville, California 95688
(707) 449-5105
Project Manager: Rica Guidry
[email protected]
TO INTREPID:

BIF IV Intrepid OpCo LLC
11001 West 120th Avenue
Broomfield, CO 80021
Project Manager: Eddie Holland
[email protected]
Notice shall be deemed effective on the date personally delivered or, if mailed, three (3) days after deposit in the mail.

SECTION 14. MISCELLANEOUS
A. INCORPORATION: Any exhibits attached hereto are incorporated by reference.

B. COUNTERPARTS: This AGREEMENT may be executed in counterparts and, when signed by both PARTIES, constitutes a binding agreement.

C. COMMUNICATION AND ISSUE RESOLUTION: The PARTIES agree that open communication and collaborative problem-solving serve both PARTIES' interests. In the event of any disagreement or concern regarding this AGREEMENT or the consulting work, the PARTIES shall first attempt to resolve the matter through good faith discussion between designated representatives of each party. This provision does not limit either party's termination rights under Section 5 or other remedies available under this AGREEMENT or applicable law.

D. MODIFICATIONS: This AGREEMENT may be modified only in writing signed by both PARTIES.

E. ENTIRE AGREEMENT: This AGREEMENT represents the entire understanding between the PARTIES regarding the subject matter herein.

F. ELECTRONIC SIGNATURES: The PARTIES agree that electronic signatures shall have the same force and effect as manual signatures.

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G. INTERPRETATION: Each party has reviewed this AGREEMENT and any question of doubtful interpretation shall not be resolved by any rule providing for interpretation against the drafting party. This AGREEMENT shall be construed as if both PARTIES drafted it.

H. SIGNATOR'S WARRANTY: Each party warrants that the person signing this AGREEMENT is fully authorized and competent to enter into this AGREEMENT in the capacity indicated.

I. SEVERABILITY: If any part of this AGREEMENT is declared invalid for any reason, such invalidity shall not affect the other provisions which can be given effect without the invalid provision. (SIGNATURE PAGE FOLLOWS)
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BHGR 9.26.25
WITNESS THE EXECUTION HEREOF on the day and year last written below.

APPROVED AS TO FORM:

Melinda C. H. Stewart, City Attorney
By:

Nancy Ashjian, Assistant City Attorney
“CITY”
CITY OF VACAVILLE, a municipal corporation
By:

Savita Chaudhary, City Manager
Dated:
“INTREPID”
BIF IV Intrepid OpCo LLC, a Delaware limited
liability company
By:

John F. Waters, CEO
[email protected]
Dated:

By:

Tim Bruny, CFO
[email protected]
Dated:

Docusign Envelope ID: 1546B9C4-F344-4E65-8896-5C6781EB18CC 10/21/2025
10/21/2025
Docusign Envelope ID: 41362E70-F638-44BC-B838-3FAE942C5D47 10/21/2025
Item 12.a

Page 1 of 31 ends

Vacaville City CouncilSeptember 22, 2026

Vacaville City Council
September 22, 2026