HomeMy WebLinkAboutStaff Report 2.B 02/13/2017DATE: February 13, 2017
TO: Honorable Mayor and Members of the City Council through City Manager
FROM: Dan St. John, RASCE — Director, Public Works and Utilities Department
SUBJECT: A Presentation and Discussion of the 2017 Utility Rate Study.
It is recommended that the City Council discuss and provide guidance as appropriate regarding
the 2017 Utility Rate Study.
On November 14, 2016, the City Council held a workshop to discuss the subject rate study and
issues affecting rate design. The Council also provided input on concerns about significant
increases to the rates and the impact on particular rate categories and classes of customers. The
purpose of this workshop is to continue that process and gain additional guidance necessary to
finalize the utility rate proposal for the next five years, beginning with an adjustment on July 1,
2017. At this stage, the focus of the discussion will be on the basic three-step process for rate
setting, namely development of the future revenue needs, design of a rate structure that generates
the necessary revenue, and determining impacts of any rate changes on key customer categories.
The major elements of the rate development process have proceeded with the completion of the
following key steps:
• Finalization of the cash flow projections for water and sewer enterprise funds through
fiscal year 2026/27.
• Development of alternate cash flow projections for a reduced CIP scenario.
• Design of a rate structure sufficient to meet projected expenses taking into consideration
direction provided at the November workshop.
• Evaluation of proposed rate changes on key customer categories.
The cash flow projections indicate a need for rate increases to maintain stability of both
enterprise funds. In the case of the water enterprise, increased rates are needed to offset revenue
losses driven by significant gains in water conservation over the past several years. For both
enterprise funds, the pressure of supporting the proposed Capital Improvements Program (CIP)
will require an increase in rate revenues. Attachment 1 includes the "full" and "reduced" CTP
proposals that were used in developing the cash flow projections for both enterprise funds, while
Attachment 2 has the cash flow projections for both CTP scenarios.
The cash flow projections include the following assumptions for developing projected future -
year expenses and revenues:
® Operating Costs are generally escalated at the projected Consumer Price Index plus 2%.
• Pass-through of wholesale water rate increases from the Sonoma County Water Agency
and the Consumer Price Index (CPI)
• Low to Moderate growth of customer base per General Plan
• Enterprise funds reserve at year end is approximately equal to three months operating
expenses plus the average year's target CIP expenses.
• Minor water demand "bounce back" after drought.
• New debt issuance with new debt payments.
The cash flow projections also include expenditures, as discussed in November, for the new
pavement maintenance fee, and for the groundwater sustainability agency. On the wastewater
side, the impact of an aging wastewater treatment plant is taken into account with increased
maintenance and capital replacement costs, along with the fiscal impact of the proposed bio -
methane to compressed natural gas conversion program dubbed the "13213" project. The
following figures illustrate the cash flow projections for the full CTP scenarios for both funds.
rd
l
$20
as
City of Petaluma
Water Projected Revenues & Expenses, Full C
�zg=a NBWRA Projects
Pay -Go Capital
am Debt Service
Water Source of Supply
=AUkka uMar-Affigm&Lito
1:0.6
im 10.0:�
X $15 9.4
8.4 8.9
7.9
7A
61 7.1
<1 $10 - 6.7 6.1
$5
$0
2016117 2017118 2018/19 2019120 2020/21 2021122 2022/23 2023/24 2024/26 2026126 2026127
Excludes grant and debt -funded capital Improvements, but Includes projected new debt service on debt-financed projects.
N
City of Petaluma
Sewer Projected Revenu e - s 1. & Expenses, I Full C11
$60
MM MBWRA Projects
Pay -Go Capita!
$46
New Debt
Outstanding Debt
$40
L= Add[ Maint/M/Pvmt Mgmt
i* Wastewater Treatment
NMM r Pwpr Onpratinz CneN
aw
I
3M
HE,
$0 -
2016/17 2017118 2018119 2019120 2020/21 2021/22 2022123 2023124 2024/25 2025126 2026127
Note: 2015/16 Revenues include almost $3 million of one-time capacity charge revenues from new development
I
47 9,7 93 J. I
The projections are based on the following annual increases in fund revenue, and borrowing
during the five year period ending with FY 21/22:
Full CIP Scenario Reduced CIP Scenario
WATER FUND
Annual Rate Increase 5% 4%
Borrowing $17 M $15 M
SEWER FUND
Annual Rate Increase 3.5% 2.5%
Borrowing $13 M $0 M
The proposed rate structure was developed based on the full CIP cash flow projection and is
included in Attachment 3. The proposed water and sewer rates, summarized in the tables below,
are presented based on an inflation free condition, including no SCWA increase; and with
projected CPI and SCWA wholesale rate increases. That way, the pressure on rates from
existing programs and projected CIP can be seen separately from the additional pressure from
GPI and wholesale water rate. These rate proposals are based on meeting the goals discussed at
the November Council workshop, including:
3
• Shift the percentage of fixed revenue to a more stable target of 30% in the water fund and
40% in the wastewater fund.
• Utilize the industry standard American Water Works Association (AWWA) Meter
Capacity Ratio tables for establishing rates for non-residential customers,
• Establish a new multi -family unit (MFU) fixed water rate, similar to that used in sewer
rates, based on the single-family unit rate times a demand factor of 0.6 to account for
lower average usage. Adjust the MFU sewer demand factor, currently at 0.87, to 0.85
based on metered winter use.
• Introduce a fixed monthly Account and Metering Charge for all accounts.
• Narrow the increments of the steps for Tier I and 2 from eight units to four, measured in
hundred cubic feet (equal to 748 gallons per HCF).
• Other aspects of the rate design are similar to those used in previous rate studies and rate
resolutions.
Single Family Unit (SFU)
SFU with 1 -inch meter
Multi -family Unit (MFU)
2 -inch Commercial
SFU - Tier 1 (2)
SFU - Tier 2
SFU - Tier 3
Juiv 2021, Juiv 2021,
Current July -17 no CPI or W/CPI &
SCWA (3) SCWA f4)
FIXED MONTHLY CHARGES
$7.39 $10.11
$10.75
$19.38 1
(same as above)
(1) $6.07 $11.63 1
$29.20
$41.83
1
WATER CONSUMPTION CHARGES (Per HCF)
$152
$3.52
$4.20
$3.95
$5.24
$4.50
$6.82
$535
All Others, e.g. commercial $3.91 $3.95
$3.62
$4.18
$4.79
$5.71
$4.18
Im
$12.59
$92.31
Notes:
1) Current Fixed Charge for MFU based on meter size whcih varies based on size of MFU
complex.
2) Tiered rates apply to SFU's only. Current Tiers based on 8 HCF increments. New Tier I and
2 are 4 HCF increments.
3) Equal Step increases for Fiscal Years 18, 19, and 20. Rates EXCLUDE projected CPI, and
SCWA wholesale rate automatic pass thru.
4) Includes projected CPI, and SCWA wholesale rate automatic pass thru.
A comparative study was performed to calculate the impact of the proposed rates for the
following customer class and categories. The details of this analysis are included in Attachment
4 and are summarized in the following tables:
M
Customer Description
'
Monthly
Ume(HCF)
Current
July -17
}u/�1
SFU - Low User: 2SthPercentile
8
$17.95
$20.67
$34.21
SFU ' Median User
6
$28.51
$32.09
$48.70
SFU - High User: 9OihPercentile
13
$56.55
$62.49
$87.18
k4FU,per dwelling unit /1\
4
$17.20
$21.87
$32.75
Small Business
10
$45.49
$49.61
$7138
Medium Business
IS
$108.50
$113.74
$157.95
Large Industry
| 5,000
$19,720
$19,997
$25,753 |
Notes:
1) Analysis based ona2Ounit apartment
with a2-inchmeter using 80HCF
per month.
�
The proposed sewer rates are summarized below and Attachment 3 includes the detail for all
billing categories and years.
Single Family Unit (SFU)
Multi -family Unit
Unmetered Residential
2 -inch Commercial
Residential
Commercia|-Low Strength
Commercial - Medium Strength
Commercial High Strength
FIXED MONTHLY CHARGES
$20.13
$24.57
$17.54
$20.88
$9I40
$88.55
$86.41
$111.79
COMMODITY CHARGES (Per
HCF)
$924
$9.14
$8.95
$8.92
$10.97
$11.14
$14.28
$14.60
METERED INDUSTRIAL
USERS
Juiv 2021, Julv 2021,
$39.10
$42.32
$33.23
$35.97|
$98.14
$105.30
$197.07
$213,31
$8.43
$9.14
$8.12
$8.79
$11.84
$11.84
$15.90
$15.90
Flow, Per HCF
$7.12
$6.98
$5.92
$6/1
BOD, Per Pound
$0.68
$0.76
$1.07
$1.07
Notes:
1) Equal Step increases for Fiscal Years 18, 19,and Dl Rates EXCLUDE projected CPI automatic
paethm.
2) includes projected CP}automatic pass thm.
-
5
The impacts of the proposed sewer rates are summarized below and presented in greater detail in
Attachment 4.
Customer Description
Monthly
Use (HCF)
Current
Juiv 2017
Juiv 2021
%
Increase
%
Increase
July 2017
July 2021
SFU - Low User: 25th Percentile
3
$47.55
$51.99
$69.71
9.3%
46.6%
SFU - Median User
5
$65.83
$70.27
$87.97
6.7%
33.6%
SFU - Higher User
8
$93.25
$97.69
$115.36
4.8%
23.7%
MFU, per dwelling unit (1)
3
$44.96
$48.30
$63.36
7.4%
40.9%
Small Business - Low Strength
10
$109.63
$113.77
$130.22
3.8%
18.8%
Restaurant - High Strength
25
$387.38
$403.03
$466.13
4.0%
203%
Large Industry
5,000
$59,042
$60,687
$67,329
2.8%
14.0%
Notes:
1) Analysis based on a 20 unit apartment using 60 HCF per month.
2) Assumes CPI Automatic Rate pass thru.
City Council guidance is sought regarding the proposed rates and any modifications that may be
desirable, which could include:
• Reductions in the level of service in discretionary areas such as polishing pond
management, water conservation or other programs where cost saving opportunity exists.
• Removing Groundwater Sustainability Agency (GSA) participation cost from the water
enterprise fund with the understanding that the new GSA agency will bill parcel owners
directly via the county property tax process.
• Reducing the CIP program as suggested in the "reduced CIP" scenarios, particularly in
the area of urban recycled water pipeline extensions or as otherwise directed.
• Including refinancing of existing debt with a new issuance that would also generate the
necessary additional debt reflected in the cash flow analysis.
The rate study will be completed in accordance with the Proposition 218 process. Public noticing
of the proposed rates would be mailed 45 days or more prior to a public hearing scheduled to
allow for a protest voting procedure. It would be anticipated that this process would result in
adoption of rates in April and implementation of those rates beginning with water and sewer
services billed after July 1, 2017. A 30 -day notice for implementation of the new rates would be
sent to customers beginning in May.
I W 101 1115,111"041W., V-�, �10
The proposed rate structures for the water and sewer funds will increase revenues above what
would be generated by the existing rate structure to meet the cash flow projections which include
all existing programs and the full CIP scenario. In the first year, the net increase in revenue
would be $934,000 and $638,000 above that from the existing rate structure for the sewer and
V
water funds, respectively. By the end of year five, FY 21/22, the cumulative increases of the
annual revenues would be $8,129,000 and $16,723,000 for the sewer and water funds,
respectively. The following table shows the growth of revenue over the 5 -year rate period.
Curnmu-1-at-i-ve Revenue Increases
$20,000,000
$15,000,000
$10,000,000
$9
$5,000,000
$0
2019/20
Fiscal Year
$16,723,000
- -AMEMEN
2020/21 F
2021/22
WATER
SEWER
11 SEWER
11 WATER
1. Full and Reduced CIP Scenarios for Water and Wastewater Enterprise Funds
2. Full and Reduced CIP Scenarios Cash Flow Projections for Water and Wastewater
Enterprise Funds
3. Proposed Rate Structures
4. Impact of Proposed Rate Structures within Key Customer Categories
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Table 20City of Petaluma With CPI Inflation AdjustmentProjected Wastewater Rates Current July 1 July 1 July 1 July 1 July 1Rates 2017 2018 2019 2020 2021FIXED MONTHLY CHARGEResidential
Fixed monthly charge per dwelling unit
Single Family Residential $20.13 $24.57 $29.01 $33.45 $37.89 $42.32
Multi‐Unit Residential 17.54 20.88 24.66 28.43 32.21 35.97
Unmetered Residential (assumes 7 hcf)93.40 88.55 92.99 97.43 101.87 106.30
Non‐Residential
Fixed monthly charge per meter size
Up to 3/4" Meter $20.13 $24.57 $29.01 $33.45 $37.89 $42.32
1" Meter 30.38 38.03 45.68 53.33 60.98 68.63
1‐1/2" Meter 55.79 71.51 87.23 102.95 118.67 134.39
2" Meter 86.41 111.79 137.17 162.55 187.93 213.31
3" Meter 157.88 205.80 253.72 301.64 349.56 397.46
4" Meter 259.96 340.07 420.19 500.31 580.43 660.53
6" Meter 514.94 675.59 836.24 996.89 1,157.54 1,318.19
Metered Industrial
Fixed monthly charge per meter size
2" Ultrasonic Meter $234.40 $306.47 $378.54 $450.61 $522.68 $594.76
10" Ultrasonic Meter 514.98 675.62 836.26 996.90 1,157.54 1,318.19
2" Magnetic Meter 157.88 205.80 253.72 301.64 349.56 397.46
3" Magnetic Meter 336.43 443.34 550.25 657.16 764.07 870.98
4" Magnetic Meter 541.98 710.38 878.78 1,047.18 1,215.58 1,383.96
6" Magnetic Meter 1,280.29 1,577.24 1,874.20 2,171.16 2,468.12 2,765.06
COMMODITY CHARGE
Rate per hundred cubic feet of metered water use ($/hcf)
Residential
Based on a) average of 4 months of metered winter water use or b) actual water use*
Single Family Residential $9.14 $9.14 $9.14 $9.14 $9.14 $9.14
Multi‐Unit Residential 9.14 9.14 9.14 9.14 9.14 9.14
Commercial
Based on metered water use
Low Strength 8.95 8.92 8.89 8.86 8.83 8.79
Medium Strength 10.97 11.14 11.32 11.50 11.68 11.84
High Strength 14.28 14.60 14.93 15.26 15.59 15.90
Metered Industrial Users (Based on sampling data for each customer)
Flow ($/hcf)7.12 6.98 6.84 6.70 6.56 6.41
BOD ($/lb)0.68 0.76 0.84 0.92 1.00 1.07
SS ($/lb)0.79 0.85 0.91 0.97 1.03 1.10
* Winter baseline usage currently based on 2 lowest use months from January through April.
Sewer rates currently increase annually by CPI‐U (San Francisco Area) + 1.5%
Proposed Rates
SEWER 88
Table 20BCity of Petaluma BASE RATES WITHOUT COST INFLATIONProjected Wastewater Rates Current July 1 July 1 July 1 July 1 July 1Rates 2017 2018 2019 2020 2021Water Rate CPI AdjustmentsCPI Adjustment 2.00% 2.00% 2.00% 2.00%Compounded Inflation Adjustment 2.00% 4.04% 6.12% 8.24%
FIXED MONTHLY CHARGE
Residential
Fixed monthly charge per dwelling unit
Single Family Residential $20.13 $24.57 $28.44 $32.15 $35.70 $39.10
Multi‐Unit Residential 17.54 20.88 24.18 27.33 30.35 33.23
Unmetered Residential (assumes 7 hcf)93.40 88.55 91.17 93.65 95.99 98.14
Non‐Residential
Fixed monthly charge per meter size
Up to 3/4" Meter $20.13 $24.57 $28.44 $32.15 $35.70 $39.10
1" Meter 30.38 38.03 44.78 51.26 57.46 63.40
1‐1/2" Meter 55.79 71.51 85.52 98.95 111.83 124.16
2" Meter 86.41 111.79 134.48 156.24 177.09 197.07
3" Meter 157.88 205.80 248.75 289.93 329.40 367.19
4" Meter 259.96 340.07 411.95 480.88 546.95 610.23
6" Meter 514.94 675.59 819.84 958.18 1,090.78 1,217.80
Metered Industrial
Fixed monthly charge per meter size
2" Ultrasonic Meter $234.40 $306.47 $371.12 $433.11 $492.53 $549.47
10" Ultrasonic Meter 514.98 675.62 819.86 958.19 1,090.78 1,217.80
2" Magnetic Meter 157.88 205.80 248.75 289.93 329.40 367.19
3" Magnetic Meter 336.43 443.34 539.46 631.64 720.00 804.65
4" Magnetic Meter 541.98 710.38 861.55 1,006.52 1,145.47 1,278.57
6" Magnetic Meter 1,280.29 1,577.24 1,837.45 2,086.85 2,325.76 2,554.49
COMMODITY CHARGE
Rate per hundred cubic feet of metered water use ($/hcf)
Residential
Based on a) average of 4 months of metered winter water use or b) actual water use*
Single Family Residential $9.14 $9.00 $8.96 $8.79 $8.61 $8.43
Multi‐Unit Residential 9.14 9.00 8.96 8.79 8.61 8.43
Commercial
Based on metered water use
Low Strength 8.95 8.78 8.72 8.52 8.32 8.12
Medium Strength 10.97 11.14 11.32 11.50 11.68 11.84
High Strength 14.28 14.60 14.93 15.26 15.59 15.90
Metered Industrial Users (Based on sampling data for each customer)
Flow ($/hcf)7.12 6.88 6.71 6.44 6.18 5.92
BOD ($/lb)0.68 0.76 0.84 0.92 1.00 1.07
SS ($/lb)0.79 0.85 0.91 0.97 1.03 1.10
* Winter baseline usage currently based on 2 lowest use months from January through April.
Sewer rates currently increase annually by CPI‐U (San Francisco Area) + 1.5%
Proposed Rates
SEWER 89
Table 31
City of Petaluma
Single Family Residential (3/4" Meter) Bill Impacts
Monthly % of % of Bills Current 5‐Year
Use Bills at or Monthly July 1 July 1 July 1 July 1 July 1 Increase
(hcf) in Block Below Bill 2017 2018 2019 2020 2021 per Bill
2015/16
0 1.8% 1.8% $7.39 $10.11 $12.83 $15.55 $18.27 $20.98 $13.59
1 4.4% 6.2% 10.91 13.63 16.57 19.51 22.45 25.39 14.48
2 8.5% 14.7% 14.43 17.15 20.31 23.47 26.63 29.80 15.37
3 11.2% 25.9% 17.95 20.67 24.05 27.43 30.81 34.21 16.26
4 12.0% 37.9% 21.47 24.19 27.79 31.39 34.99 38.62 17.15
5 11.5% 49.4% 24.99 28.14 32.01 35.88 39.75 43.66 18.67
6 9.8% 59.2% 28.51 32.09 36.23 40.37 44.51 48.70 20.19
7 8.1% 67.3% 32.03 36.04 40.45 44.86 49.27 53.74 21.71
8 6.5% 73.8% 35.55 39.99 44.67 49.35 54.03 58.78 23.23
9 5.1% 78.9% 39.75 44.49 49.47 54.45 59.43 64.46 24.71
10 4.1% 83.0% 43.95 48.99 54.27 59.55 64.83 70.14 26.19
11 3.2% 86.2% 48.15 53.49 59.07 64.65 70.23 75.82 27.67
12 2.6% 88.8% 52.35 57.99 63.87 69.75 75.63 81.50 29.15
13 2.0% 90.8% 56.55 62.49 68.67 74.85 81.03 87.18 30.63
14 1.7% 92.5% 60.75 66.99 73.47 79.95 86.43 92.86 32.11
15 1.3% 93.8% 64.95 71.49 78.27 85.05 91.83 98.54 33.59
16 1.1% 94.8% 69.15 75.99 83.07 90.15 97.23 104.22 35.07
17 0.8% 95.7% 74.39 81.34 88.76 96.18 103.60 110.92 36.53
18 0.7% 96.4% 79.63 86.69 94.45 102.21 109.97 117.62 37.99
19 0.6% 96.9% 84.87 92.04 100.14 108.24 116.34 124.32 39.45
20 0.5% 97.4% 90.11 97.39 105.83 114.27 122.71 131.02 40.91
21 0.4% 97.8% 95.35 102.74 111.52 120.30 129.08 137.72 42.37
22 0.3% 98.1% 100.59 108.09 117.21 126.33 135.45 144.42 43.83
23 0.3% 98.4% 105.83 113.44 122.90 132.36 141.82 151.12 45.29
24 0.2% 98.6% 111.07 118.79 128.59 138.39 148.19 157.82 46.75
25 0.2% 98.8% 117.89 124.14 134.28 144.42 154.56 164.52 46.63
26 0.2% 98.9% 124.71 129.49 139.97 150.45 160.93 171.22 46.51
27 0.1% 99.0% 131.53 134.84 145.66 156.48 167.30 177.92 46.39
28 0.1% 99.2% 138.35 140.19 151.35 162.51 173.67 184.62 46.27
29 0.1% 99.3% 145.17 145.54 157.04 168.54 180.04 191.32 46.15
30 0.1% 99.3% 151.99 150.89 162.73 174.57 186.41 198.02 46.03
Projected Monthly Bills
Median
Average
Lowest 25%
Top 10%
ATTACHMENT 4 - Impact of Proposed Rate Structure within Key Customer Categories
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